HomeMy WebLinkAboutZC 267; HPI DEVELOPMENT; SUPPLEMENTAL REPORT TO AN APPLICATION MADE FOR SD LOCAL AGENCY FORMATION COMMISSION FOR PACIFIC RIM COUNTRY CLUB & RESORT REORGANIZATION; 1984-02-01PROPOSED PACIFIC RIM COUNTRY CLUB
AND RESORT REORGANIZATION
Annexation to the City of Carlsbad
and detachment from CSA 83, CSA 17
and the Encinitas Fire Protection District
SUPPLEMENTAL REPORT
FOR APPLICATION TO THE
SAN DIEGO LOCAL AGENCY FORMATION COMMISSION
Prepared for Hunt Properties, Inc.
February 1984
INTRODUCTION
The following is a Supplemental Report to the application made
to the San Diego Local Agency Formation Commission for a
reorganization of territory known as The Pacific Rim Country Club
and Resort Reorganization. This report is a compilation of
information gathered through meetings with representatives of the
City of Carlsbad, San Diego County Flood Control District and the
Costa Real Municipal Water District, Leucadia County Water District
and the following written materials:
Environmental Impact Report; Hunt Properties Annexation
SCH #83032309
Carlsbad EIR 83-2; prepared for the City of Carlsbad by
WESTEC Services, Inc.
City of Carlsbad Staff Report September 14, 1983; Subject
EIR 83-2/GPA/LU 83-15/ZC-267 -HPI Development
Resolution No. 7367 of the City Council of the City of
Carlsbad
Ordinance No. 9701 of the City Council of the City of
Carlsbad
"Why Plan Ahead"; City of Carlsbad Information Brochure
The intention of this report is to expand on the general LAFCO
application and focus on issues that may be of special concern to
the Commission. Copies of the aforementioned documents have been
submitted simultaneously with this report and reorganization
application.
TABLE OF CONTENTS
I. Description of Project -Page 1
II. zoning -Page 2
III. Public Facilities -Page 3
IV. City Public Facilities Financing -Page 4
v. Water Distribution -Page 5
VI. Sewer Service -Page 6
VII. Batiquitos Lagoon -Pages 7 and 8
VIII. Flood Control -Page 9
IX. Agriculture -Page 10
x. Open Space -Page 11
' L
•
EXHIBITS
1. Pacific Rim Country Club and Resort Reorganization Area
2. Proposed Detachment from CSA 17 and CSA 83
3. Proposed Detachment from Encinitas Fire Protection
District
4. Pacific Rim Country Club and Resort Land Uses
5. zoning and Land Use Diagram
6. City of Carlsbad Public Facilities Management System
7. Water Service Districts
8. Water Distribution Mains
9. Sewer Districts
10. Sewer Main Locations
A.
B.
c.
APPENDICES
Costa Real Municipal Water District
Establishing A Major Facilities Charge
Connection Surcharge.
Resolution
and Direct
Olivenhain Municipal water District Policy for District
Facilities.
Acreage Allocations.
J\/<
DESCRIPTION OF PROJECT
The Pacific Rim Country Club and Resort reorganization
territory includes 1,148.6 acres proposed to be annexed to the City
of Carlsbad (see Exhibit 1). 374. 7 acres of this territory is
proposed for detachment from County Service Area No. 83 (San
Dieguito Local Parks) and CSA No. 17 (San Dieguito -Paramedic)
(see Exhibit 2). Detachment of 37.5 acres from the Encinitas Fire
Protection District is also planned (see Exhibit 3). The
reorganization is proposed in order to pursue a 1665 acre master
planned resort community which includes most of the reorganization
area plus approximately 729 acres already within the City
boundaries.
The majority -936 acres -of the reorganization property is
owned W. H. Hunt and N. B. Hunt, who are represented by Hunt
Properties, Inc. (HPI), which is planning the new resort,
residential and commercial development. Public entities represent J /
1
ownership of 170 acres of the reorganization. El Camino Real, La (
Costa Avenue and nine smaller private owner ships constitute the
remaining 42.6 acres. The reorganization area, which includes the
majority of the Batiquitos Lagoon, is located generally north and
south of La Costa Avenue and west of El Camino Real.
A conceptual plan for a residential resort community has been
developed for the entire 1665 acre HPI property by Gruen
Associates, a Los Angeles-based planning, architectural and
engineering firm. Based on the conceptual plan, which anticipates
gradual development over a 10-20 year period, a General Plan
Amendment was approved by the City of Carlsbad in October of 1983.
HPI is currently working with the City of Carlsbad on a master plan
for the area. Elements of the plan, outlined in the conceptual
plan, will include resort, residential and commercial uses
generally as shown on Exhibit 4.
The majority of the proposed reorganization lies within the
LAFCO -adopted Sphere of Influence for the City of Carlsbad. The
annexation would also include 293 acres (including that portion of
El Camino Real which would be a part of this annexation) located
south of La Costa Avenue which are not presently within the City's
Sphere. Inclusion of this area within the City's Sphere, however,
would allow City boundaries to follow the natural ridgeline that
creates Green Valley and bring El Camino Real, a part of the City's
scenic corridor system, fully within the City's jurisdiction.
Furthermore, Green Valley's inclusion within the City's Sphere will
place the entire Pacific Rim Country Club and Resort ownership
within a single municipal jurisdiction and allow for the
development of a well-integrated and comprehensive plan. In
addition, this action will serve to further consolidate public
services within more unified service and political boundaries.
-1-
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: EXHIBIT 4.
Land Use Acreage (%)
Residential 450 27
Golf Course and Clubhouse 175 10
Hotel 50 3
Commercial and Office 125 8
Lagoon 310 19
Roads 100 6
Parks and Open Space
(including side slopes, easements
and flood plain) 455 27
TOTAL ACREAGE 1, 66 .5
Above estimates for land uses reflect the Pacific Rim preliminary
plan concept. Actual acreages will vary as the project masterplan
is refined.
ZONING
The entire reorganization area is currently within the San
Dieguito Community Plan and zoned by the County of San Diego. A
General Plan Amendment adopted by the City of Carlsbad in October,
1983, extended the City's General Plan to include the entire area
and prezoned the territory for purposes of annexation and master-
planning. The reorganization area is also claimed by the
California Coastal Commission to be under its jurisdiction. A
comparative chart of all land use designations and zoning follows
as Exhibit 5.
With regard to land use and future population growth, the
Pacific Rim Country Club and Resort Master Plan will provide for an
orderly and efficient pattern of development over a 10 to 20 year
period of time. The reorganization area is adjacent to other
populated areas which are experiencing significant growth; this
growth is expected to continue. Thus, the plans for _the
reorganization area will complement those for the surrounding
areas. It is anticipated that a second General Plan Amendment to
be filed with the City of Carlsbad will be necessary to provide for
the proposed hotel and resort use.
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l
(Island)
2
(Island)
3
(Island)
4
(No. La Costa)
5
(So. La Costa)
6
( public lands)
Total Zoned
Acreage : * * *
Acres
25
20
10
600
281
170
1,106
THE PACIFIC RIM COUNTRY CLUB AND RESORT REORGANIZATION
ZONING Atm LAND USE DIAGRAM
County
L.U.
Desig.
(San Dieg. C.P.)
Residential
l du/4 ac
Residential
l du/4 ac
Residential
l du/4 ac
AC (SPA 2.8)*
ERA (Lagoon)**
AC (SPA 2.8)
ERA (Encinitas Creek)
ERA
County
Zoning
S-90
(holding)
S-90
S-90
C
S-90
A-70-8
(Limited Ag. )
C
A-1-8, A-70-8
A-72-8
FP
0-S
Carlsbad
City
General Plan
Desig.
RLM
(0-4 du/ac)
RLM
RLM
RLM
RM (4-10 du/ac)
RMH (10-20 du/ac)
RC (rec. comm)
TS (travel comm.)
OS
Comb. Dist.
C
0 (Prof. Office)
RMH (10-20 du/ac)
Open Space
City
Zoning
PC
(planned
community)
PC
PC
PC
PC
0-S
EXHIBIT 5
Coastal
Commission
L.U. Desig.
RLM (0-4 du/ac)
RLM
(Agriculture-residen-
tial) 2 du's/acre
AC (SPA 2.8)
( ag. crop; Spec·.
Plan 2.8 du/ac)
ERA (ecological
Resource Area)
NC (Neigh. comm.)
ERA .
0-S
_....,.,.._ ________________________________________________________________________________________________ _
* Agri?ultural cropland; Specific Plan 2.8 du/ac.
** Environmental Resource Area ~**Does not include 42.6 acres of miscellaneous public 8nd private ownerships.
PUBLIC FACILITIES
The Pacific Rim Country Club and Resort reorganization
includes the detachment from CSA No. 83 (San Dieguito Local Parks),
CSA No. 17 (San Dieguito -Paramedic), and the Encinitas Fire
Protection District. The reorganization will allow for
consolidation of some of the public facilities/services within a
single municipal jurisdiction and, in some cases, may enhance the
quality of service. For example, Carlsbad's Fire Department could
provide more responsive service to Green Valley than could the
Encinitas Fire Department for the following reasons:
Currently, the Carlsbad Fire Department has a station located
approximately 3,000 feet north of Green Valley at El Camino Real
and Arenal Road with a downhill run and one major intersection as
compared with the Encinitas Fire Department which has the following
locations: (i) Village Parkway and Mountain Vista Drive, located
approximately two miles southeast of Green Valley with an uphill
pull and two major intersections; (ii) West of the I-5 Freeway
which requires excessive travel time due to distance and man made
barriers (i.e. the freeway). Carlsbad is currently providing fire
protection service for the property immediately east of El Camino
Real and across from Green Valley. Therefor·e, based on the
location and the relationship to natural barriers, the Carlsbad
Fire Department is the most logical candidate to provide the
service.
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CITY PUBLIC FACILITIES FINANCING
Included in the Environmental Impact Report for the General
Plan Amendment and rezoning of the reorganization territory, is an
analysis of the fiscal impact of the inclusion of 293 acres to the
City of Carlsbad Sphere of Influence. In order to address the
potential fiscal impact of annexation of this area to the City,
three development scenarios possible under the "Combination
District" were evaluated. The three scenarios that were analyzed
consisted of all commercial development in "best case", a mix of
commer ical, off ice and residential in the "likely case", and all
residential development in the "worst case". Based on these
scenarios, impacts to the City's operating and capital finances
would be positive under "best" and "likely" cases, with an
estimated annual operating surplus of approximately $3. 9 million
and $670,600, respectively, at buildout. The unlikely "worst case"
would result in a net annual operating deficit of approximately
$470,000.
The predominant City of Carlsbad revenue sources are property
tax and sales tax. Other general fund revenue sources include
transient occupancy tax, franchise tax, business licenses,
construction permits, interest, plan checking/engineering fees and
refuse collection fees. Other operating fund revenue sources
include gasoline tax, sewer service charges, street lighting
assessments, Housing Authority Federal grants and water sales.
Three major sources of revenue used by the City of Carlsbad to
finance its public capital facilities needs include: 1) a Sewer
Facilities Fee; 2) Park Land In-Lieu Fees and 3) a relatively new
tool, the Public Facilities Fee. Sewer Facilities Fees are
collected on a per unit basis. Park Land In-Lieu Fees are
collected only from residential developments of less than 200 acres
in lieu of parkland dedication. The Public Facilities Fee
represents a major source of capital improvement revenues for the
City and is derived from a tax of 2 percent of estimated
construction improvement value collected at the time building
permits are issued.
All three fees are part of an overall "Public Facilities
Management System" instituted by the City designed to identify,
plan, and provide financing for City-wide public facilities needs.
The public facilities identified for funding include capital
expenditures for fire stations, general government, libraries,
parks, traffic signals and transportation arterials. According to
the City, 95% of the revenues needed for these capital improvement
facilities City-wide will be provided by the three fees. The
following charts, shown on Exhibit 6 and excerpted from the City's
brochure on the Public Facilities Management System entitled "Why
Plan Ahead", depict the relationship between the three key public
facilities revenue sources and City capital facilities spending.
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CITY OF CARLSBAD
PUBLIC FACILITIES MANAGEMENT SYSTEM*
FUNDING SOURCES TO FINANCE $166 MILLION
OF PUBLIC FACILITIES BE1WEEN 1982
AND FINAL DEVELOPMENT
1001--------------------.I
801------------1
40
20
Other
Funding
Sourcu
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HOW Sl66 MILLION WIU BE SPENT
1001--------------------.1
80 Park•
$71
EXHIBIT 6
* ex c e r p t e d from II W h y P l an Ah e ad II p u b l i s h. e d by t h e C i t y o f Ca r l s b ad
WATER DISTRIBUTION
Principal water purveyors to the reorganization area include
the Costa Real Municipal Water District working jointly with the
City of Carlsbad and the Oli venhain Municipal Water District.
Olivenhain Municipal Water District will serve the territe:,ry
located south of La Costa Avenue. Costa Real Municipal Water
District and the City of Carlsbad will serve all property located
north of La Costa Avenue (see Exhibit 7).
An historical dispute between the City of Carlsbad and the
Costa Real Municipal Water District was recently resolved,
resulting in the signing of a Water Service Agreement by both
agencies in May of 1983. The new Water Service Agreement between
the two agencies creates a functional division of responsibility
between Costa Real Municipal Water District and the City.
Basically, the wholesale function of water delivery, including
maintenance and operations of the entire distribution system and
responsibility for new capital improvements to the system rests
with Costa Real Municipal Water District. The retail or customer
services function, including meter-reading, billings and
collections and ownership and maintenance of water meters, is a
responsibility vested with the City. All reclaimed water services,
including distribution and customer service functions, will also be
the responsibility of the City of Carlsbad.
Delivery of water to the reorganization area will not be a
demanding task. As shown on Exhibit 8, several Costa Real
Municipal Water District mains run near or adjacent to the
territory located north of La Costa Avenue. The Olivenhain
Municipal Water District owns a main water line which parallels El
Camino Real and will serve the southerly portion of the
reorganization area.
Financing construction of the internal distribution lines for
development will be the responsibility of HPI. Both Districts also
collect connection fees and installation charges. Copies of the
Districts' related policies and fee schedules are included as
Appendix A and B of this report.
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SEWER SERVICE
The majority of the reorganization area will be provided with
sewer service by the City of Carlsbad (see Exhibit 9). A City sewer
main traverses the property from west to east along the northern
edge of Batiquitos Lagoon, turning north to parallel El Camino Real
(see Exhibit 10).
The provision of sewer service to the area south of La Costa
Avenue is currently under discussion. This area, known as Green
Valley, could be served by either the City of Carlsbad or the
Leucadia County Water District (LCWD). Green Valley is currently
outside of both agencies' service boundaries. However, the Green
Valley area is paralleled on its eastern edge by a sewer main
(paralleling El Camino Real) which is owned by the Leucadia County
Water District.
HPI, developer of the Pacific Rim Country Club and Resort, has
been in contact with both the City and LCWD regarding this issue. A
series of meetings involving City and LCWD elected officials, their
staff and representatives of HPI is in progress and targeted to
resolve the question of sewer service for Green Valley. If
negotiations are not concluded with LCWD, Carlsbad could serve
Green Valley as well as all other portions of the annexation area.
-6-
SEVVER DISTRICTS EXHIBIT 9
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LAKE ~ ~r::F
CAL AVERA
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CARLSBAD
P~LOMAR
vo1ttst111r>.
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BATIQUITOS LAGOON
The original natural drainage patterns of Batiqui tos Lagoon
have been altered considerably by the construction of the Southern
California Railroad, the Santa Fe Railroad, the Pacific Coast
Highway and California Interstate 5 -all of which have crossed the
lagoon channel system. As a result of these disruptions, the
lagoon has had minimal contact with the ocean and virtually no
tidal action, if any, since the 1930's. Although the County of San
Diego has attempted periodically to open the channel to release
impounded runoff, the openings have not been sufficient to allow
complete tidal excursion. As a result, tidal inflow has reached
only to the I-5 bridge in recent years and only for short periods of
time. ('John Sue Associates 1976' -WESTEC EIR).
The lack of a permanent tidal opening, combined with continued
development in the 52. 3 square mile watershed that drains into
Batiquitos Lagoon, has created a process of gradual filling of the
Lagoon. In addition, the construction of an upstream dam at Lake
San Marcos on San Marcos Creek has "greatly reduced the volume of
flood waters entering the lagoon" ( 1 John Sue Associates 1976' -
WESTEC EIR). According to the EIR prepared for this project, the
upper lagoon is currently at an intermediate stage between a true
tidally influenced lagoon and a saline marsh wetland. The lack of
tidal currents and upstream flood flows has resulted in the gradual
filling of the basin and, without some form of outside influence or
"upgrading," "it is estimated that the eastern basin of the lagoon
will be filled within the next century" (Mudie et al, 1976 -WESTEC
EIR).
A study prepared by John Sue Associates in 1976 found that the
control of tidal flow and lack of a permanent tidal opening to the
ocean constitutes a major concern, and that, if adequate tidal
flows could be maintained to remove sediments out to the ocean, the
effects of increased levels of sedimentation from upstream sources
would be considered relatively unimportant. Annexation of
Batiqui tos Lagoon and the surrounding properties to the City of
Carlsbad should provide an opportunity for positive measures to be
taken to enhance the lagoon and solve the current problems facing
this important natural resource. Annexation will vest planning and
development control with the City of Carlsbad, whose staff is
currently preparing a proposal for a Lagoon Management Plan, and it
will, by virtue of the development plans proposed for the area by
HPI, initiate an incentive for private participation in Lagoon
enhancement.
The City of Carlsbad is currently preparing an outline for a
Batiquitos Lagoon Management Plan. The Plan is proposed to
identify key environmental, social, economic and political factors
-7-
that will exert influence on the future of the lagoon and develop
land use policies and guidelines to direct development in and
around the lagoon. The preliminary outline for the lagoon plan
includes tasks to: delineate the study area; review resources and
factors that influence the lagoon; identify community needs, goals
and values; compile all applicable statutes, policies and plans
addressing the area; and, finally, prepare a management plan that
will estabfish land use designations, include guidelines and
policies and provide performance criteria for the study area.
The proposed Pacific Rim Country Club and Resort development
will naturally be a major consideration in the development of the
lagoon plan. By the same token, the master plan for the resort
development currently under preparation will recognize the unique
characteristics of the lagoon; it will seek to complement the
lagoon and its immediate surroundings. A major element of the
master plan is an examination of lagoon enhancement programs,
primarily aimed toward supplementing the lagoon's natural water
supply with salt water to flush sediments. An important factor in
the success of upgrading the lagoon will be a continued close
working relationship between the developers and the City of
Carlsbad.
-8-
FLOOD CONTROL
The Pacific Rim Country Club and Resort reorganization area is
situated within the watersheds of San Marcos Creek, Encinitas Creek
and Batiquitos Lagoon. The San Marcos Creek watershed was modified
by the construction of a darn creating Lake San Marcos in 1952. Over
50 percent of the stream drainage area is controlled by the darn
(WESTEC EIR) •
The entire territory is located within the boundaries of San
Diego County Flood Control District -zone 1. The District has no
existing or planned flood control facilities for the area involved
in the reorganization. Although development of the territory will
be guided by City drainage guidelines, detachment from the District
is not proposed at this time.
Flood Control District staff does not oppose the Pacific Rim
Country Club and Resort reorganization nor does it oppose the
detachment of the area from zone 1 (Bob Summers 12/13/83).
District staff is pursuing preparation of a proposal for new
legislation which would ultimately automatically exclude all
incorporated areas in the County from the Flood Control District.
As envisioned by District staff, each City will then separately
contract with the District for any flood control services that it
does not wish to assume.
Flood Control in the Pacific Rim Country Club and Resort
reorganization area will be determined greatly by drainage
improvements required of new development by the City of Carlsbad.
The City has completed a City-wide erosion and drainage study that
will guide this as well as all other new development within the
City. Guidelines and policies resulting from the City-initiated
lagoon management study now beginning will also give direction for
drainage improvement conditions. After annexation, the City of
Carlsbad F-P Floodplain Overlay Zone will be applied to existing
floodplain areas on the site, thereby preserving zoning protection
that is similar to the existing county floodplain zone (WESTEC
EIR).
-9-
,,,.,
AGRICULTURE
Until recently, approximately 344 acres of the entire 1665
acre HPI property was cultivated on a lease basis. Only 130 acres
is currently under cultivation. Crops include tomatoes, flowers,
mixed vegetables and watermelons. A detailed description of
agricultural uses, history and soil conditions is included in the
Environmental Impact Report.
The economic feasibility of continued farming on the site and
in the general area is questionable. Recently a 150 acre farm on
the north shore of the lagoon was abandoned by the tenant due to
financial insolvency. Another tenant farming 12 acres on the north
shore has given notice of non-renewal of his lease, citing
declining yields over the past several years as the reason. A
third farm in Green Valley (52 acres) recently gave notice of non-
renewal for the same reasons. Within the general area and less
than 1/2 mile from the HPI site, two additional farm leases have
been abandoned within the past 12 months; one by insolvency, and
the other by formal bankruptcy.
Profit to the property-owner from leases of property for
farming is neglible and in some cases HPI indicates it is
subsidizing farming activity. Some acreages actually net fewer
dollars in farm lease revenue than total respective assessments for
current taxes. In cases of abandonment, agricultural leases have
actually become a liability to the property owner. Owners have
been saddled with high "clean-up" expenses and property liens from
unpaid water utilities.
The entire project area submitted herein is claimed by the
California Coastal Commission to be within its jurisdiction. The
Local Coastal Plans (LCP' s) involved include those of both the
County (San Dieguito) and City of Carlsbad (Mello I and Mello II
LCP). The San Diegui to LCP requires preservation of one-half of
the active cropland and provides for a density transfer to the
Green Valley parcel. The Mello I and II LCP's allow development
implemented under a master plan and require preservation of no more
than 200 acres of agricultural uses from areas containing Class I-
IV soils. This reorganization, however, should have no effect upon
the agricultural requirements under either or both jurisdictions.
Because the Pacific Rim Country Club and Resort development
will proceed as a materplanned project requiring approvals from
both the City of Carlsbad and the California Coastal Commission,
final resolution of agricultural preservation issues will
necessarily occur during the master plan permit and hearing
process. It is important to note, however, that none of the
property within the proposed development falls within a designated
agricultural preserve.
-10-
OPEN SPACE
Area 6 of the reorganization territory (See Exhibits 1 and 5)
is presently designated as an open space by a variety of local
agencies. This area is comprised of the western segment of the
Batiquitos Lagoon, and is an area which will retain its open space
designation after annexation to the City of Carlsbad (See Exhibit
5). Thus, this reorganization will not result in a conversion of
existing open spaces of Area 6 to other uses, nor for that matter is
any development of Area 6 even under consideration. Consequently,
neither this annexation nor any other long range plans for Area 6
have any implications concerning LAFCO's conversion of open space
policies.
Otherwise, one of the functions of the master plan for the
Pacific Rim Country Club and Resort will be to define other open
spaces. Until the master plan is completed, these open space areas
will not be fully defined. In addition, the development of the
Pacific Rim Country Club and Resort will provide for orderly and
efficient growth over a 10 to 20 year period of time.
-11-
APPENDIX A
Costa Real Municipal Water District Resolution
Establishing A Major Facilities Charge and
Direct Connection Surcharge
APPENDIX B
Olivenhain Municipal Water District
Policy for District Facilities
APPENDIX C
Acreage Allocations
APPENDIX C
Annexation to City of Carlsbad
Hunt Hunt Hunt
Ownerships
Hunt
Islands North of La Costa South of La Costa
936 acres
Semi
Public
170 acres
Miscellaneous
42.6 acres
55
Fish & Game
138
El Camino Real,
La Costa Blvd. &
Miscellaneous
Owners
42.6
Detachments
Encinitas Fire P.D.
37.5
600
Santa Fe
7
CSA 83
374.7
Other Districts
Acres in Costa Real Municipal Water District
Acres in Olivenhain Municipal Water District
·* Located north of La Costa Avenue
** Located south of La Costa Avenue
653*
281 **
281
State D-;0.T.
25
CSA 17
374.7