Central Avenue and White Street Corridor Design Phase 1 Recommendation for Selection of Professional Consultant ServicesCity of Dubuque
City Council
ACTION ITEMS # 3.
Copyrighted
November 17, 2025
ITEM TITLE: Central Avenue and White Street Corridor Design Phase 1
Recommendation for Selection of Professional Consultant
Services
SUMMARY: City Manager recommending City Council concurrence in the
selection of Bolton & Menk, Inc. as the first -ranked
Consultant and that the City be authorized to negotiate a
Professional Consultant Services Agreement to complete a
corridor design for Phase 1 for Central Avenue and White
Street between 14th Street and 22nd Street and the feasibility
of corridor solutions, including first steps with parking needs
and then pavement marking restriping, while incorporating
feedback from continued public engagement and a holistic
approach. Engineering staff will make a presentation.
SUGGUESTED Receive and File; Approve; Presentation
DISPOSITION:
ATTACHMENTS:
1. MVM Memo
2. Staff Memo
3. Presentation -Uploaded 11.17.25
Page 670 of 750
Dubuque
THE CITY OF
uFA�a9a av
DuBE
13
Masterpiece on the Mississippi zoo�•*o
rP PP 2017202019
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Central Avenue and White Street Corridor Design Phase 1
Recommendation for Selection of Professional Consultant Services
DATE: November 10, 2025
City Engineer Gus Psihoyos is recommending City Council concurrence in the selection
of Bolton & Menk, Inc. as the first -ranked Consultant and City staff be authorized to
negotiate a Professional Consultant Services Agreement to complete a corridor design
for Phase 1 for Central Avenue and White Street between 14t" Street and 22nd Street
and the feasibility of corridor solutions, including first steps with parking needs and then
pavement marking restriping, while incorporating feedback from continued public
engagement and a holistic approach.
The current available funding for the Central Avenue and White Street Corridor Design
Phase 1 and the estimated Professional Consultant Services fee is summarized as
follows..
Project Code
Fund Description
Fund Amount
5521000017
Central Ave. White St. Corridor Master
Plan Design and Implementation
Improvements 4t" — 22nd St
$ 1,400,000
6051000001
Central Ave. Streetscape Plan
$219,243
Total Project Funding
$ 1,619,243
I concur with the recommendation and respectfully request Mayor and City Council
approval.
1�,A� k�4
Mic ael C. Van Milligen
MCVM:sv
Attachment
Page 671 of 750
cc: Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
Gus Psihoyos, City Engineer
Justine Hull, Civil Engineer I - Traffic
Robert Schiesl, Assistant City Engineer
Duane Richter, Traffic Project Supervisor
Ian Hatch, Assistant Economic Development Director
Jason Duba, Assistant Planner
Brain Wulfekuhle, Public Works Foreperson
Steve Fehsal, Park Division Manager
Russ Stecklien, Transportation Services — Operations Supervisor
2
Page 672 of 750
THE CITY OF
Dubuque
DUB E
AII•Medca City
n«n�
Masterpiece on the Mississi i
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2007-2012.2013
2017*2019
TO: Michael C. Van Milligen, City Manager
FROM: Gus Psihoyos, City Engineer
SUBJECT: Central Avenue and White Street Corridor Design Phase 1
Recommendation for Selection of Professional Consultant Services
DATE: November 7, 2025
INTRODUCTION
The purpose of this memorandum is to request Mayor and City Council concurrence in
the selection of Bolton & Menk, Inc. of Des Moines, Iowa as the Professional Services
Consultant to complete corridor design for Phase 1 for Central Avenue and White Street
between 14th Street and 22nd Street.
BACKGROUND
In January 2021, the City of Dubuque regained control of Central Avenue and White
Street, opening the opportunity to pursue two-way conversion and apply complete street
and urban design elements from the Central Avenue Corridor Streetscape Master Plan.
A 2024 study found that Central Avenue and White Street carry roughly 8,000 and 5,000
vehicles per day respectively and are essential to the downtown network. It recommended
treating the corridor as 22 unique blocks shaped by surrounding land use and managing
freight through a designated truck route to reduce local impacts.
After community input and traffic analysis, the City adopted the Multi -Modal Focused
Alternative. The design keeps one-way travel but reallocates space for wider sidewalks,
landscaping, and outdoor dining on Central Avenue, and a two-way cycle track on White
Street improving safety and accessibility while maintaining efficient traffic flow.
PROJECT OBJECTIVES
The Central Avenue and White Street one-way pair corridor spans approximately 44 city
blocks and 38 intersections. The corridor serves three key land use districts (Mixed -
Use, Civic, and Downtown) and accommodates a mix of residential, business, and
freight activity.
The primary focus for initial design is the segment from 14th Street to 22nd Street,
selected based on coordination with other planned infrastructure investments, adjacent
residential and business activity, and the continued need to support freight movement. In
response to City Council and stakeholder priorities, the first stage of work will focus on
evaluating and addressing parking needs within this portion of the corridor.
Page 673 of 750
The consultant will develop a corridor plan and advance design through Stage 3 (detailed
corridor design). As part of the contract negotiation process, the sequencing of Stage 1
(parking mitigation) and Stage 2 (corridor restriping) will be refined from what was outlined
in the RFQ to ensure parking solutions are evaluated and established prior to
implementation of roadway changes. A Stage 4 cycle track remains proposed as a future
alternative.
Stage 1— Parkin_g Mitigation Strategy
Identify and implement parking solutions to offset removal of on -street parking
associated with corridor modifications. This includes evaluating property acquisition
options and optimizing nearby side streets for replacement parking. Addressing parking
impacts is a priority for the City Council and the community.
Stage 2 — Corridor Restripin_g (4th to 22nd Streets)
Prepare the corridor for future conversion by restriping Central Avenue and White
Street. Alternatives will be evaluated to determine the feasibility of including an on -street
cycle track.
Stage 3 — Detailed Corridor Desi_pn (13th/14th to 22nd Streets)
Develop detailed design plans in the following sub -sections, including side street
connections between Central Avenue and White Street:
• Section 1 (14th-17th): Prepare for the 14th Street Overpass connection. Focus
on the east side of White Street and the full corridor of Central Avenue.
• Section 2 (17th-20th): Continue full corridor improvements on Central Avenue
and the east side of White Street, with cycle track completion following.
• Section 3 (20th-22nd): Complete full corridor improvements on both streets,
including side streets.
• Section 4 (13th-14th): Coordinate with the 14th Street Overpass and Prescott
School to complete this small connection segment.
• Section 5 — 18th Street Plaza: Create a pedestrian plaza by closing 18th Street
and integrating it into the corridor design.
Stage 4 — Cycle Track (5th to 19th Streets)
Develop a raised, sidewalk -grade cycle track along the west side of White Street,
enhancing multimodal safety and connectivity between Downtown and northern
neighborhoods.
CONSULTANT SELECTION COMMITTEE
The Consultant Selection Committee for the Central Avenue and White Street Corridor
Traffic Study includes the following:
• Justine Hull, Civil Engineer I - Traffic
• Duane Richter, Traffic Project Supervisor
• Ian Hatch, Assistant Economic Development Director
• Gus Psihoyos, City Engineer
• Robert Schiesl, Assistant City Engineer
• Jason Duba, Assistant Planner
• Brain Wulfekuhle, Public Works Foreperson
• Steve Fehsal, Park Division Manager
• Russ Stecklien, Transportation Services — Parking Operations Supervisor
Page 674 of 750
CONSULTANT SELECTION PROCESS
The consultant selection was based upon the consultant's qualifications and experience,
and the Selection Committee's determination of the consultant best suited for this specific
design project.
On August 8, 2025, the City issued solicitations for competitive proposals from qualified
professional consulting engineering firms or project teams to determine interest and
capabilities providing Professional Consultant Services that will include project
management, public involvement and engagement communications/visual animations
and displays with the public and private sector, and design plans for the current corridor
segments regarding pavement markings and right-of-way design plans for new
construction, and a parking analysis for off-street needs.
On September 18, 2025, two (2) consultant response proposals were received and are
listed as follows (in alphabetical order):
• Bolton & Menk, Inc.
• Fehr Graham
The Consultant Selection Committee reviewed the proposals, conducted an initial
screening, and invited Bolton & Menk and Fehr Graham to participate in presentations
and interviews on October 20 and 21, 2025.
Following the consultant interviews, the Consultant Selection Committee met to evaluate
and rate each of the consultants. The Committee carefully deliberated each consultant's
strengths and weaknesses. Although each of the consultants was uniquely qualified, the
Selection Committee selected Bolton & Menk, Inc. of Des Moines, Iowa as the first -ranked
consultant. The selection ranking was based upon the overall strength of information
provided in the Consultant's response proposal submitted, the Consultant's presentation
and interviews, and the Consultant's demonstrated competence, experience, and
qualifications. The final consultant selection ranking and the recommended order of
preference to initiate contract negotiations is as follows:
• No. 1 — Bolton & Menk, Inc.
• No. 2 — Fehr Graham
PROJECT TEAM
Bolton & Menk, Inc. provides comprehensive infrastructure solutions that include traffic
engineering, urban planning, public engagement, and utility and mobility management.
Their multidisciplinary team specializes in corridor studies and design projects that
integrate complete streets principles, multimodal connectivity, and context -responsive
urban design that reflects the corridor's historic character and surrounding land uses.
With recent experience leading similar multimodal corridor projects across Iowa and the
Midwest, as well as contributing to our own City's Smart Parking and Mobility
Management Study and our Central Avenue and White Street Corridor Traffic Study,
Bolton & Menk brings direct, relevant expertise to this effort. In partnership with Walker
Consultants, they will advance the Central Avenue and White Street Corridor Design
Phase 1 by building on the 2024 corridor study and the community's established vision.
Page 675 of 750
The team's approach emphasizes collaboration, data -driven analysis, and creative
design within a constrained downtown environment. Their workflow recognizes that
corridor success depends on interconnected urban values, safety, mobility, economy,
sustainability, and placemaking. Through this framework, Bolton & Menk can deliver
design solutions that balance parking needs, freight access, and pedestrian and bicycle
safety, while reinforcing the historic and economic character of the corridor. With
experience on similar downtown projects and a strong record of work with the City, the
team is well positioned to deliver a design that reflects Dubuque's identity and supports
long-term revitalization.
CONSULTANT TEAM QUALIFICATIONS
Bolton & Menk assembled an in-depth, in-house, multidisciplinary project team with the
capability, talent, qualifications, and experience to successfully complete the traffic, utility
and mobility elements, engage the community, and create feasible corridor
recommendations that would be guided by the previous corridor study and planned
continued engagement.
PROJECT MANAGER
Important evaluation criteria were the qualifications and experience of the lead
consultant's Project Manager. Bolton & Menk has designated Mr. Zach Parsons PE, as
Project Manager, to lead the project team.
• 10 years of experience as a transportation design practice leader and principal
engineer
• Successfully delivered complex infrastructure elements which include roadway
retrofits, full roadway reconstruction, roundabouts, lighting analyses, multimodal
facilities with ADA compliance, signing and pavement marking, and traffic signals.
• Presenting his creative problem solving and strategic thinking, along with curating
a diverse team, a unique blend of field and office experience for coordination
ensures that proposed solutions transition seamlessly into detailed plans.
PROJECT SCHEDULE
The anticipated schedule for the Central Avenue and White Street Corridor Traffic Study
scope of services, fee proposal negotiations and contract approval are as follows:
• Council Approve RFP Issuance
• RFP's Released to Consultants
• Consultant Response Proposals Due
• Selection Committee Review
• Consultant(s) Invited to Interview
• Consultant Presentations / Interviews
• Recommendation to City Council
• Negotiate Scope of Services / Fees
• City Council Approve Contract
• Consultant - Notice to Proceed
RECOMMENDATION
August 4, 2025
August 8, 2025
September 18, 2025
September 29, 2025
October 7, 2025
October 20-21, 2025
November 17, 2025
Nov 18 - Dec 8, 2025
December 15, 2025
December 16, 2025
✓ Completed
✓ Completed
✓ Completed
✓ Completed
✓ Completed
✓ Completed
Page 676 of 750
Based on the review of proposals, the presentations, and interviews, and qualifications,
the Consultant Selection Committee recommends the selection of Bolton & Menk, Inc. as
the first -ranked Consultant and City staff be authorized to negotiate a Professional
Consultant Services Agreement to complete a corridor design for Phase 1 for Central
Avenue and White Street between 14t" Street and 22nd Street and the feasibility of corridor
solutions, including first steps with parking needs and then pavement restriping, while
incorporating feedback from continued public engagement and a holistic approach.
BUDGETIMPACT
The current available funding for the Central Avenue and White Street Corridor Design
Phase 1 and the estimated Professional Consultant Services fee is summarized as
follows:
Project Code
Fund Description
Fund Amount
5521000017
Central Ave. White St. Corridor Master
Plan Design and Implementation
Improvements 4t" — 22nd St
$ 1,400,000
6051000001
Central Ave. Streetscape Plan
$219,243
Total Project Funding
$ 1,619,243
ACTION TO BE TAKEN
I respectfully request Mayor and City Council concurrence in the selection of Bolton &
Menk, Inc. as the first -ranked Consultant and City staff be authorized to negotiate a
Professional Consultant Services Agreement to complete a corridor design for Phase 1
for Central Avenue and White Street between 14t" Street and 22nd Street and the
feasibility of corridor solutions, including first steps with parking needs and then pavement
marking restriping, while incorporating feedback from continued public engagement and
a holistic approach.
Prepared by: Justine Hull, Civil Engineer I - Traffic
cc: Robert Schiesl, Assistant City Engineer
Duane Richter, Traffic Project Supervisor
Ian Hatch, Assistant Economic Development Director
Jason Duba, Assistant Planner
Brain Wulfekuhle, Public Works Foreperson
Steve Fehsal, Park Division Manager
Russ Stecklien, Transportation Services — Operations Supervisor
Page 677 of 750
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Central Ave. & White St. Corridor Design Phase 1:
14 th St. — 22nd St.
CENTRAL & WHITE
Page 678 of 750
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Page 679 of 750
History & Jurisdictional Changes
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Page 680 of 750
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Page 681 of 750
Districts &Destinations
Page 682 of 750
Vision Statement
Central Avenue and White Streets will become a valued
and vibrant place in Downtown Dubuque — a place for
businesses to thrive, people to live, and for the unique
identity of the City to shine.
Page 683 of 750
•
Traffic Volumes
Speeding Concerns
High % of Children under 14
Higher Multi -modal Reliance
Traffic Volumes
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Page 685 of 750
Speeding is a significant concern
25% of total injury crashes are speed related
547 Total Crashes on the Corridor (2019-2023)
27% crashes involved speeding
7% crashes involved trucks
60% occurred at intersections
2% Pedestrian/Bike related crashes
Quantity low, but all ped & bike crashes
result in injury
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Page 687 of 750
Higher Multi -Modal Reliance
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Page 688 of 750
Why do we need change?
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Page 689 of 750
Multi -Pronged
Approach
We are going
DOOR-TO-DOOR
LET S MAY 15 -17
to talk with
residents and
businesses about
TALK* THEIR VISION
for
CENTRAL AVE.
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Page 690 of 750
• PMT Meetings
• Existing Conditions/Crash Analysis
• Traffic Analysis
• Alternatives Development
• Alternatives Analysis
• Selection of Preferred Alternative
• Urban Design Ideas
• Multi -Modal Technology Ideas
• Implementation Plan
• Graphic Rich Report
• InputlDTM -
• Stakeholder Meetings
• Door Knocking
• Resident & Business Focus Groups
• Pop Ups (May and July)
• 2 Council Work sessions
• 1 Open House
• Survey
• Video
• Public Hearing
LJ
April - May June - July August - October = November - January
DISCOVER
LET'S 19,
TALK!
CENTRAL & WHITE
Study Kick -Off
Data Collection
Existing Conditions
ANALYZE
LET'S
EXPLORE!
.
U CENTRAL & WHITE
Analyze Data &
Public Feedback
Concept Design
SHARE
LET'S �' I
DO THIS!
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Share Final
Recommendations
Implementation Plan
Public Events & Public Events & • • - ' • Public Hearing
Interactive Comment Community Survey Public Engagement
Map I Report
Page 693 of 750
Evaluation Matrix
Safety
Equity
Connectiuity
Economic Deuelopment
Through Travel Times
Heavy
Conflict
Predictive
(min)
On Street
Pedestrians
Bicycles
Transit
Vehicles /
Landscape
Sidewalk
Points
Crashes/year
Parking
Central
White
EMS
Both Central &
facility on
Prefer two
limited trees.
parking both
Do Nothing
White Remain One
531
9('3
Status quo
parallel
Status quo
1
5
lanes to allow
Most on
Status quo
sides
Way
street
passing
white now
Both One -Way
Facility
Prefer two
6' Grass Blvd,
Multi -Modal
Wider
Enhanced
parking loss
12' sidewalk,
Cycle Track on
523
94
Present on
4
5
lanes to allow
additional
Focus
sidewalks
bus stop
one side
16' dining
White
White
passing
tree wells
Getting to and
Both Two -Way
facility on
stops on
Only one lane
parking loss
Additonal
Sticking
Parking on Both
976
•10
bumpouts
parallel
both sides
5
5
for travel each
8th to 12th
12' sidewalk
tree wells
Around
Sides
street
of street
direction
one -side
large
Regular SW
Remain One -Way
wider
facility on
Room for
Transition
parking loss
landscape
22nd to 1
Slow and Flow
One Lane: 9th to
503
9.1
sidewalks &
parallel
enhanced
13
25
down to 1 lane
one side 9th
area 9th to
12' SW 9th to
4th
bumpouts
street
stops
at 9th
to 4th
4th
4th
Asymmetry:
Two -Way: 22nd to
facility on
Transition at
different
13th;
parking both
Additonal
757
61
bumpouts
parallel
Status quo
5
5
13th, more
12' sidewalk
roads.
One -Way: 13th to
sides
tree wells
street
turns needed
different roles
4th
LEGEND Negative Neutral Positive
Effect Effect Effect
Page 694 of 750
Preferred Alternative
• Central and White one-way,
two lanes
• Parking removed on one
side of each street
• Wide sidewalk, outdoor
dining, and landscaping on
Central
• Two-way cycle track on
White
rantrnl Awn
White St
If Di"
is n
Page 695 of 750
Preferred Alternative -Evaluation Matrix
V Improve Safety for Ped Crossings
Add Landscaping/Trees
V One Way Streets
Maximize Parking
Wider Sidewalks
Reduce Speeds
Dampen Noise
Safer Cycling Options
Enhances pedestrian crossings with bump -outs. Limits intersections to two
travel lanes, reducing crossing complexity.
Expands opportunities for landscaping and trees along both streets.
Retains One -Way Streets. Provides two lanes for passing and maintains good
signal progression for EMS, police, and freight.
Reduces on -street parking on one side of Central/White. Allows for loading
zones on -street. Seeks additional on -street parking on the side streets.
Allows for wider sidewalks for outdoor dining, additional landscaping, and
pedestrian space to support local businesses.
Includes narrowed lanes, landscaping, and intersection bump -outs to reduce
speeds, addressing resident concerns.
ncludes landscaping/trees to slow speeds and dampen noise.
Establishes a dedicated cycle track on White Street, meeting residents' desires
for safer cycling options.
Page 696 of 750
NEXT STEPS
Design Work and Construction
Proposed Multi -Phased Construction Approach:
FY26 — Design Work & Parking Strategy
FY27 — Pavement Re -Striping
FY28 — 1411 St — 1711 St Construction
FY29 - 17th St — 201h St Construction
FY30—Cycle Track Construction
FY30+ - 2011 St — 22nd St Construction,
13th — 14th St Construction,
181h St Plaza Construction
111h -13th St Construction,
8th -111h St Construction
41h - gth St Construction
CONCURRENTLY: Design of other sections plans
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Phase 2 (22nd -17th)
Phase 3 (17th -13th)
Phase 4 (13th -11 th)
Phase 5 (11th - 8th)
Phase 6 (8th - 4th)
Page 697 of 750
Design Phase 1:
141h St. — ZZnd St.
Jan. 2025 — Council Approval of Traffic Study
July 2025 — RFQ for Design Phase 1 Published
Oct. 2025 —Consultant Interview
Jan. 2026 — Consultant Contract Signed
2026 Consultant Proposed Scope —
• In -Depth Technical Analysis for Parking
Needs
• Pavement Marking re-design/striping plan
set
• Design plan set for 141h St — 22nd St in small
sections, cycle track and 18th St Plaza
-' '
Page 698 of 750
Design Phase 1:
Stage 1—
Parking Mitigation Strategy
Maximize Parking Reduces on -street parking on one side of Central/White. Allows for loading
zones on -street. Seeks additional on -street parking on the side streets.
503 on -street spaces exist
Highest Parking Peak: Weekday Evenings with a utilization of 24%
With proposed removal — utilization increases to 52% overall;
while there are some on -street block with 80%+, utilization in
surrounding areas are low
Acceptable walking distance from a parking space is 1,000 ft or 3
city blocks — yet there is an observed low tolerance for walking
IN THIS DESIGN PHASE:
• Identify & implement parking solutions to offset removal of
on -street parking
• Continued effort for understanding needs in this design area
• Continued guidance from the Smart Parking & Mobility Plan
and Central Ave. & White St. Corridor traffic study
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Page 699 of 750
Design Phase 1:
Stage 2 —Corridor Restriain
Prepare corridor for future
conversion by restriping
Central Avenue and White
Street
• Narrow lanes
• Updated existing
parking
• Pedestrian Crossing
Improvements
------
1643
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4th — 22nd Streets
Page 700 of 750
Design Phase 1:
Stake 3 —Detailed Corridor Design (13th/14th to 22"d Streets
• Multiple Sections to be designed for moderately priced shovel -ready projects
Section 1 (14th-17th): Prepare for the 14th Street Overpass
connection. Focus on the east side of White Street and the full
corridor of Central Avenue.
Section 2 (17th-20th): Continue full corridor
Section 3 (20th-22nd): Complete full corridor
improvements on both streets, including side streets.
Section 5 —18th Street Plaza: Create a pedestrian
plaza by closing 18th Street and integrating it into
the corridor design.
improvements on Central Avenue and the east side of
White Street, with cycle track completion following.
Section 4 (13th-14th): Coordinate with the 14th Street
Overpass and Prescott School to complete this small
connection segment
Page 701 of 750
Design Phase 1:
Stage 4 —Cycle Track (5t" to 19t" Streets
• Develop a raised, sidewalk -grade cycle track
along the west side of White Street.
Page 702 of 750
Recommendation & Timeline:
Recommended Consultant:
Staff Recommendation -- Nov. 17, 2025
Scope negotiations -- late Nov. — December 2025 BO LTO N
Consultant Contract Approval -- Early Jan. 2026
- & MENK
Stage 1: Parking Mitigation Strategy -- Jan 2026 — April 2026 Real People. Real Solutions.
Stage 2: Corridor Restriping Plan Set -- Completed by June/July 2026
Construction of Pavement Marking Restriping completed by Nov. 2026
Stage 3: Detailed Corridor Design Plan Set from 131h/141h to 22nd Streets -- Completed by Early 2027
Section 1 (14th -17th )
Section 2 (17th — 20th )
Section 3 (20th — 22nd )
Section 4 (13th — 14th)
Section 5 (18th St Plaza)
Stage 4: Cycle Track Design Plan Set from 5th St — 191h St — Completed by Early 2027
Construction for Section 1 could begin in Late 2027
Page 703 of 750
Central Ave. & White St. Corridor Design Phase 1: 14t" St. — 22"d St.
I FET'S
DO THIS.
CENTRAL & WHITE
Page 704 of 750