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August 25, 2017
Van Wyck Expressway (I-678) Capacity and
Access Improvements to JFK Airport
NYSDOT PIN X735.82
COORDINATION PLAN
August 25, 2017
Van Wyck Expressway (I-678) Capacity and Access Improvements to JFK Airport COORDINATION PLAN
P.I.N. X735.82 August 2017
Page i
Table of Contents
Table of Contents .......................................................................................................... i
Section 1. Introduction .............................................................................................. 1
1.1 Purpose of Coordination Plan ....................................................................... 1
1.2 Project Overview .......................................................................................... 1
1.3 Key Resource Concerns ................................................................................ 2
Section 2: Cooperating/Participating Agencies ......................................................... 3
2.1 List of Agencies, Roles, and Responsibilities ................................................ 3
2.2 Agency Contact Information......................................................................... 5
Section 3. Schedule and Methodologies ...................................................................... 6
3.1 Project Schedule ........................................................................................... 6
3.2 Methodology for the Environmental Analyses ............................................. 7
Section 4. Public Involvement Activities .................................................................. 10
4.1 Public Scoping Meeting .............................................................................. 10
4.2 Public Hearing ............................................................................................. 10
4.3 Other Meetings........................................................................................... 10
4.4 Limited English Proficiency Outreach ......................................................... 10
4.5 Environmental Justice Outreach ................................................................ 10
4.6 Americans with Disabilities Act Outreach .................................................. 11
Section 5. Revision History ...................................................................................... 12
Tables:
Table 1: List of Invited Cooperating and Participating Agencies - Page 4
Table 2: Agency Contact Information - Page 5
Table 3: Overall Project Schedule - Page 6
Table 4: Summary of Methodologies - Page 7
Table 5: Revision History - Page 12
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Section 1. Introduction
1.1 Purpose of Coordination Plan
This Coordination Plan for the Van Wyck Expressway Capacity and Access Improvements to JFK Airport
(the Project) located in Queens, New York conforms to the requirements of the National Environmental
Policy Act (NEPA) and specifically complies with the current federal surface transportation law, Fixing
America’s Surface Transportation Act (FAST Act).
The 2005 Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-
LU) increased opportunities for the public and federal, state, and local agencies to have active and early
involvement in the NEPA process and to provide input on a project’s purpose and need, environmental
study methodology, and alternatives under consideration. Section 6002 of SAFETEA-LU entitled,
“Efficient Environmental Reviews for Project Decision-making,” required the development of a
Coordination Plan for all highway and transit projects for which an Environmental Impact Statement
(EIS) is being prepared under NEPA. These increased opportunities for involvement are included in the
FAST Act, which also includes a collaborative and integrated approach to transportation decision-making
that considers benefits and impacts during the planning process. Accordingly, the Federal Lead Agency
(the Federal Highway Administration (FHWA)) and the Joint Lead Agency (the New York State
Department of Transportation (NYSDOT)) prepared this Coordination Plan to describe the process and
communication methods for disseminating information about the Project, as well as to solicit and
consider input from the public and other agencies.
The Coordination Plan will be in effect throughout the environmental review process, beginning with
scoping and ending with the Record of Decision. The plan is a flexible “living” document that can be
amended as needed during the project environmental review process. Changes to the Coordination Plan
are documented in the “Revision History” section on the last page of the document.
1.2 Project Overview
The Van Wyck Expressway (I-678) (VWE) is the major transportation corridor providing access to and
from John F. Kennedy (JFK) International Airport. JFK Airport is a major international gateway to the
United States that handles 58.9 million passengers with over 400,000 aircraft operations annually.
According to the “Recommendations for a 21st Century Airport for The State of New York,” a report
prepared by the Airport Advisory Panel on January 2017, the number of passengers at JFK Airport is
expected to grow by nearly one-third to a total of over 75 million passengers by 2030. The VWE also
serves as the major route for commercial truck traffic to get to and from the airport, with trucks
accounting for eight percent of morning peak volume and five percent of evening peak volume on I-678.
The needs for the Project are to provide increased capacity on the VWE to and from JFK Airport;
improve traffic operations and geometry of ramps within the identified project limits; and address
structural deficiencies on the bridges within the project limits. The purpose of the Project is to provide
increased capacity on the Van Wyck Expressway between the Kew Gardens Interchange and JFK Airport
to improve vehicular access to and from the airport. In addition, the Project will address operational,
geometric, and structural deficiencies on the Van Wyck Expressway between the Kew Gardens
Interchange and JFK Airport.
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The following objectives have been established to further refine the project purpose:
Provide an additional vehicular travel lane on the Van Wyck Expressway in each
direction between JFK Airport and the Kew Gardens Interchange;
Address geometric and operational deficiencies of the Van Wyck Expressway
exit/entrance ramps within the identified project limits; and
Address structural deficiencies on the bridges on or crossing over the Van Wyck
Expressway within the project limits.
A Notice of Intent (NOI) to prepare an EIS for the Project was published in the Federal Register on June
1, 2017. A reasonable range of alternatives is currently being developed and will be refined during the
NEPA scoping process in consideration of agency and public comments received.
1.3 Key Resource Concerns
The EIS for the Project will include an evaluation of the Project’s potential social, economic, and
environmental effects. The key topics of concern include:
Traffic congestion
Transit (commuter train and subway) operations
Right-of-way (property) needs
Environmental concerns, such as air quality, traffic noise, parkland, and cultural and
historic resources
Social concerns, including environmental justice
Economic considerations, including the potential for effects to local and/or regional
businesses
Construction-related effects (traffic, air quality, noise)
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Section 2: Cooperating/Participating Agencies
2.1 List of Agencies, Roles, and Responsibilities
The appropriate agencies have been identified and invited to serve as Cooperating and/or Participating
Agencies for the Project. Cooperating and Participating Agencies are responsible for identifying, as early
as practicable, any issues of concern regarding the Project’s potential environmental or socioeconomic
impacts that could substantially delay or prevent an agency from granting a permit or other approval.
According to the Council on Environmental Quality (CEQ) regulations (40 CFR § 1508.5), “Cooperating
Agency” means any federal agency, other than a lead agency, that has jurisdiction by law or special
expertise with respect to any environmental impact involved in a proposed project or project
alternative. A state or local agency of similar qualifications or, when the effects are on lands of tribal
interest, a federally-recognized Native American tribe may, by agreement with the lead agencies, also
become a Cooperating Agency. CEQ also states (40 CFR § 1501.6) that an agency may request the lead
agency to designate it a Cooperating Agency.
“Participating Agencies” are those with an interest in the project. The standard for Participating Agency
status is more encompassing than the standard for Cooperating Agency status. Therefore, Cooperating
Agencies are, by definition, Participating Agencies, but not all Participating Agencies are Cooperating
Agencies. The NYSDOT and FHWA have considered the distinctions noted below in deciding whether to
invite an agency to serve as a Cooperating/Participating Agency or as a Participating Agency.
The roles and responsibilities of Cooperating and Participating Agencies are similar, but Cooperating
Agencies have a higher degree of authority, responsibility, and involvement in the environmental review
process. A Cooperating Agency with jurisdiction may adopt, without recirculating, the EIS of a lead
agency when, after an independent review of the statement, the Cooperating Agency concludes that its
comments and suggestions have been satisfied. This provision is particularly important to permitting
agencies that, as Cooperating Agencies, may adopt USDOT environmental documents.
Cooperating Agencies are responsible for providing input on:
Purpose and need
Range of alternatives
Methodologies
Identification of issues that could substantially delay or prevent granting of
permit/approval
Mitigation
Cooperating Agencies also share the responsibilities of Participating Agencies. The role of Participating
Agencies is to:
Provide comments, responses, studies, or methodologies on those areas within the
special expertise or jurisdiction of the agency
Use the process to address any environmental issues of concern to the agency
Table 1 lists the agencies that have been invited to serve as Cooperating and Participating Agencies for
the Project along with the reason for their requested involvement and particular responsibilities. The
Cooperating and Participating Agencies will be consulted throughout the EIS process.
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Table 1: List of Invited Cooperating and Participating Agencies
Agency Name Involvement
Cooperating Agencies
New York State Department of Environmental Conservation (NYSDEC)
New York State environmental permits
New York State Office of Parks, Recreation and Historic Preservation – State Historic Preservation Office (SHPO)
Section 106, National Historic Preservation Act; Section 4(f), U.S.
Department of Transportation Act
New York State Department of State (NYSDOS) Coastal Area Consistency
U.S. Environmental Protection Agency (USEPA) Section 309 Clean Air Act; Sole Source Aquifer provision of Safe Drinking
Water Act
Participating Agencies
Long Island Rail Road (LIRR) Consultation regarding railroad bridges in project area
Port Authority of New York and New Jersey Consultation regarding JFK Airport and Airtrain
New York City Department of Transportation (NYCDOT)
Consultation related to local roads and bridges
New York City Department of City Planning (NYCDCP)
Consultation regarding land use, zoning and public policies; Waterfront Revitalization Plan Consistency
New York City Department of Environmental Protection (NYCDEP)
Consultation related to NYCDEP's water, wastewater or stormwater systems and other environmental topics
New York City Department of Parks and Recreation (NYC Parks)
Consultation related to Section 4(f) of the U.S. Department of Transportation Act
Metropolitan Transportation Authority (MTA) – New York City Transit
Consultation regarding transit services
New York Metropolitan Transportation Council (NYMTC)
Consultation regarding traffic modeling and forecasting
Federal Aviation Administration (FAA) Consultation regarding JFK Airport
New York and Atlantic Railway Consultation regarding railroad bridges in project area
In addition to the Cooperating and Participating Agencies, there are many other agencies and entities
that will be asked to provide technical information and input throughout the development of the Project
and with whom the project team will share information. These may include first responders and other
regional and municipal agencies/organizations.
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2.2 Agency Contact Information
Table 2 lists contact information for the Lead and invited Cooperating and Participating Agencies for the
Project.
Table 2: Agency Contact Information
Agency Phone Website
Federal Highway Administration (202) 366- 4000 https://www.fhwa.dot.gov/
New York State Department of Transportation (518) 457-6195 https://www.dot.ny.gov/index
New York State Department of Environmental Conservation
(718) 482-4077 http://www.dec.ny.gov/
New York State Office of Parks, Recreation & Historic Preservation - State Historic Preservation Office (SHPO)
(518) 268-2166 https://parks.ny.gov/
New York State Department of State (518) 486-9844 https://www.dos.ny.gov/
U.S. Environmental Protection Agency (212) 637-3747 https://www.epa.gov/
Long Island Rail Road (718) 217-5477 https://www.mta.info/lirr
Port Authority of New York and New Jersey (212) 435-7000 https://www.panynj.gov/
New York City Department of Transportation (212) 839-7710 http://www.nyc.gov/html/dot/html/home/home.shtml
New York City Department of City Planning (212) 720-3626 http://www1.nyc.gov/site/planning/index.page
New York City Department of Transportation (212) 839-7710 http://www.nyc.gov/html/dot/html/home/home.shtml
New York City Department of Environmental Protection
(718) 595- 5244 http://www.nyc.gov/html/dep/html/home/home.shtml
New York City Department of Parks and Recreation (718) 760-4053 https://www.nycgovparks.org/
Metropolitan Transportation Authority - New York City Transit
(212) 878-7000 http://www.mta.info/nyct
New York Metropolitan Transportation Council (212) 383-7200 https://www.nymtc.org
Federal Aviation Administration (718) 553-3285 https://www.faa.gov/
New York and Atlantic Railway (718) 497-3023 http://www.anacostia.com/railroads/nya
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Section 3. Schedule and Methodologies
3.1 Project Schedule
The environmental review process includes opportunities for agencies and the public to provide input.
Table 3 provides an overall project schedule with key coordination points. Anticipated completion dates
are included for informational and resource planning purposes. Timeframes and review periods are
established in accordance with 23 CFR 771 and as amended by § 1305, 23 U.S.C 168 (d) of the FHWA
procedures for implementing NEPA, and NYSDOT policies and procedures, including existing agreements
(e.g., review periods established in the NYSDOT/FHWA/SHPO Section 106 Agreement).
Table 3: Overall Project Schedule
Milestone Anticipated Completion Date
Notice of Intent Publication June 1, 2017 (actual)
Scoping Meeting September 2017
Initial Cooperating Agency Meeting1 October 2017
Participating Agency Meeting2 October 2017
Scoping Report Publication December 2017
Notice of Availability of the Draft EIS (DEIS) September 2018
Public Hearing October 2018
End of DEIS Comment Period3 November 2018
Publish Joint Final EIS & Record of Decision February 2019
1Subsequent Cooperating Agency Meetings are anticipated on a monthly or bi-monthly basis throughout the EIS process 2Subsequent Participating Agency meetings, including one-on-one meetings, will be held as needed throughout the EIS process 3The DEIS comment period will be a minimum of 45 days and a maximum of 60 days.
Cooperating and Participating Agencies will be asked to submit comments during scoping that
summarize their jurisdiction and/or special expertise related to the project area. FHWA and NYSDOT will
collaborate with Cooperating and Participating Agencies on methodologies for documenting
environmental conditions and assessing effects. The agencies will be notified of the availability of the
Draft EIS (DEIS) and Final EIS (FEIS) and be given appropriate comment opportunities. Following the
Record of Decision, the appropriate agencies will be consulted to obtain any necessary permits for the
Project.
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3.2 Methodology for the Environmental Analyses
Below is a description of the applicable social, economic, and environmental topics to be reviewed in the
EIS. The environmental studies will be conducted in accordance with the NYSDOT Environmental Manual
(TEM), FHWA’s “Environmental Impact and Related Procedures” (23 CFR 771) and other applicable
guidance and regulations. In accordance with CEQ implementing regulations at 40 CFR §1502.16, the EIS
will include the assessment of unavoidable adverse impacts, the relationship between short-term uses
of man’s environmental and the maintenance and enhancement of long-term productivity, and any
irreversible or irretrievable commitments of resources.
Established procedures will be used for assessing effects; separate environmental methodologies will be
developed as needed for topics where NYSDOT is varying from established procedures. A traffic study
will be conducted to assess the Project’s effects to the transportation system, including freeways,
ramps, local roadways, intersections, transit, and pedestrian/bicycle facilities. The traffic data from this
study will be used for the air quality and noise analyses.
Table 4: Summary of Methodologies
Subject Area Methodology
Land Use Assess the Project’s potential effects to proximate land uses, and assess consistency
with local plans and population characteristics. The Project is located in a fully
developed area of Queens County and has limited potential to affect population
characteristics, land use, or land use plans for the area.
Neighborhood and Community
Cohesion
Evaluate the Project’s potential to divide neighborhoods; isolate communities;
generate new development; and affect development trends.
Social Groups Benefitted or Harmed,
including Environmental Justice
Assess potential effects on vulnerable populations, and determine whether the
Project would have disproportionately high and adverse impacts on minority or low-
income populations. A preliminary assessment indicates that minority and low income
populations are present within the study area.
Schools, Recreational Areas, and
Places of Worship
Evaluate potential effects to schools, recreational areas, and places of worship.
Within 500 feet of the project limits, there are schools, including, but not limited to,
the Archbishop Molloy High School located on Manton Street, SLCD High School
located on 136th Street, and Al-Iman School located at 89-89 VWE, as well as several
parks and places of worship.
Regional and Local Economies; Effects
to Businesses
Evaluate whether the Project would affect access to and/or operation of businesses
within the study area. There are commercial uses within the study area.
Wetlands and Surface Waters
Conduct a field investigation and wetland/surface water delineation in accordance
with applicable regulations.
If necessary, prepare wetland/surface water maps and report(s); assess potential
effects; identify mitigation measures (as needed); identify permitting requirements
(as needed); and coordinate with NYSDEC and USACE.
Wetlands are not anticipated within the project limits.
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Subject Area Methodology
Surface Water Quality
In accordance with applicable regulations, collect information on the surface water
bodies in the study area; verify NYCDEP combined sewer outfall (CSO) drainage areas;
assess the potential for soil erosion and sedimentation; assess both temporary and
permanent measures that may be used to avoid or minimize and control soil erosion,
sedimentation, and surface water pollution during and after construction; and
identify permitting requirements.
The Project is located entirely within the Jamaica Bay Sewershed. The area
immediately north of Hillside Avenue to Liberty Avenue and portions of the
southbound Service Road and ramps from Rockaway Boulevard to the Belt Parkway
are located within the CSO drainage area.
Floodplains
In accordance with applicable regulations, identify floodplain boundaries. If
necessary, assess the risks and effects on floodplain values; identify mitigation
measures for adverse effects (as needed); and document the "Only Practical
Alternative Finding" for a significant encroachment (as needed).
Coastal Resources
Evaluate consistency of the Project with NYS coastal policies and the NYC Waterfront
Revitalization Program. Tasks will include preparation of state and city coastal
consistency forms.
The section of the study area south of the Belt Parkway is within the New York City
Coastal Zone.
Groundwater Quality
In accordance with applicable regulations, identify sole source aquifers, determine
aquifer status, estimate additional drainage, pollutant loads and impediments to
groundwater, and assess the potential for impacts to local groundwater quality.
The Project is located within a designated federal sole source aquifer for Long Island.
General Ecology and Wildlife
Resources
Identify the ecological characteristics and habitats within the study area. Evaluate the
nature, extent, and significance of potential effects of the Project on ecological
communities and habitats. If adverse effects are anticipated, identify mitigation
measures in consultation with the appropriate agencies.
Endangered and Threatened Species
Identify federal and/or state threatened, endangered, and proposed species in the
study area. If species are identified, subsequent tasks will include documenting the
habitat types in the project vicinity, determining whether they are suitable habitats
for the identified species, assessing effects to the species (as applicable), and
identifying mitigation measures for adverse effects in consultation with appropriate
agencies (as needed).
Historic and Cultural Resources
In accordance with Section 106 of the National Historic Preservation Act, tasks will
include identifying historic and cultural resources within the study area, assessing
effects on identified resources, and resolving adverse effects (if any). Consultation
with the State Historic Preservation Office and Advisory Council on Historic
Preservation will occur, as needed.
Known historic resources include three of the four Long Island Rail Road bridges.
Parks and Recreational Resources
Evaluate potential effects on parkland within the study area. Parks within the study
area include, but are not limited to, Maple Grove Park, Dr. Charles R Drew Park, and
several playgrounds. Parks will be evaluated to determine if Land and Water
Conservation Funds (LWCF) were used; however, no conversion of this parkland is
anticipated.
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Subject Area Methodology
Visual Resources Prepare a Visual Impact Assessment (VIA) that establishes an Area of Visual Effect
(AVE), provides an inventory of existing visual quality, assesses the potential impacts
on visual quality, and determines if any mitigation or project enhancement is
required.
Air Quality Air quality analyses for this project will include a particulate matter microscale analysis, mesoscale analysis and mobile source air toxic analysis. The analyses will be conducted in accordance with methodologies in NYSDOT’s TEM and FHWA guidance and using the most recent version of USEPA’s MOVES model and USEPA modeling guidance. If adverse effects are identified, mitigation measures will be determined.
Energy and Greenhouse Gases Evaluate the Project’s potential effects on energy consumption and direct (on-road)
greenhouse gas (GHG) emissions using the most recent version of USEPA’s MOVES
model and NYSDOT guidance.
Traffic Noise Conduct a traffic noise analysis in accordance with FHWA traffic noise regulations (23
CFR 772) and NYSDOT “Noise Analysis Policy and Procedures.” If impacts are
identified, noise abatement measures will be evaluated.
Asbestos Conduct an asbestos assessment preliminary investigation to identify asbestos-
containing materials that are expected to be disturbed as a result of the Project.
Identify activities that would occur during final design to positively identify asbestos
content. Identify measures that would be implemented to ensure proper handling,
transport, and disposal of such materials during construction.
Hazardous Waste and Contaminated
Materials
Conduct a contaminated materials and hazardous substances assessment to identify
the potential for encountering hazardous and non-hazardous contaminated materials
as a result of the planned construction work. Identify measures that would be
implemented during construction for the proper handling, transport, and disposal of
any excess material to protect public health, worker safety, and the environment.
Indirect Effects Describe those reasonably foreseeable effects that would be caused by the Project
but may occur at a later time or are farther removed in distance.
Cumulative Effects Identify past, present, and reasonably foreseeable actions within the study area.
Assess the impact on the environment that would result from the incremental impact
of the action when added to these past, present, and reasonably foreseeable future
actions. If adverse effects are identified, describe measures to mitigate the effects.
Section 4(f) Evaluation In accordance with Section 4(f) of the U.S. Department of Transportation Act of 1966
and using FHWA guidance, evaluate the “use” of Section 4(f) resources by the Project.
Agency coordination and concurrence will be required.
Known resources include three of the four Long Island Rail Road bridges.
Construction Effects Consider the construction-related effects to traffic, air quality, noise, and water
quality and other applicable environmental topics.
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Section 4. Public Involvement Activities
NYSDOT and FHWA are committed to an open, participatory, environmental review process for the
Project and will solicit early and frequent feedback from the public and from agencies, encourage open
discussion of project details and issues, and provide opportunities for comments and questions. A
separate Public Involvement Plan (PIP) has been developed for the Project.
4.1 Public Scoping Meeting
A public scoping meeting will be held to provide an early opportunity for the public to participate in the
project development. The scoping process allows the public and agencies to comment on the project
purpose and objectives, help determine the scope of issues to be considered, and comment on
reasonable alternatives for consideration in the Draft EIS. The public scoping meeting is the initial public
presentation of the project scope and schedule.
4.2 Public Hearing
A public hearing will be held after the Draft EIS has been issued to provide an opportunity for the public
to submit comments on the Draft EIS orally and/or in writing. The public hearing will include an open
house with informational displays and a presentation. The public will also be invited to submit
comments during the circulation of the Draft EIS. Comments provided at the public hearing and during
the DEIS comment period will be responded to in the Final EIS.
4.3 Other Meetings
In addition to the public scoping meeting and hearing, the project team will solicit additional input
through meetings and dissemination of project information. Additional outreach resources will include a
website where project information will be posted, email and hard mail information distribution,
brochures, and maintenance of a stakeholder database.
4.4 Limited English Proficiency Outreach
Individuals who do not speak English as their primary language and who have limited ability to read,
speak, write, or understand English are considered “limited English proficient” or LEP. Based on data
available from the United States Census Bureau’s American Community Survey, in the 61 census tracts
covering the study area, exclusively English speakers in the study area represent approximately 57% of
the population. Spanish/Spanish Creole is the primary non-English language spoken in the study area
(19%). Chinese and Russian languages each account for less than 3% of the total population in the
project area.
Advertising of public meetings will be placed in a local Spanish newspaper, and dual language (English
and Spanish) flyers will be distributed for the public meetings and the public hearing. Informational
materials, such as the project description brochure and notices of meetings, will be bilingual and posted
on the project website. During the public meetings and the public hearing, an on-site Spanish interpreter
will be available. Additional LEP outreach may be necessary and will be determined as the project
proceeds.
4.5 Environmental Justice Outreach
Executive Order (EO) 12898, Federal Actions to Address Environmental Justice in Minority Populations
and Low-Income Populations, dated February 11, 1994, requires consideration of whether a proposed
action would disproportionately and adversely affect minority or low-income groups. Among other
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directives, compliance with EO 12898 includes documenting the opportunities for affected minority
and/or low-income communities to provide input on a project.
The study area includes communities with both minority and low-income populations. Public meetings
and the hearing will be sited, scheduled, and planned to provide opportunities for participation by
environmental justice populations.
4.6 Americans with Disabilities Act Outreach
Public meetings will be held in locations that comply with the Americans with Disabilities Act (ADA) to
provide convenient access to meetings for individuals with disabilities. Sign language interpreters will be
available at formal public meetings and other meetings, if requested. Public notices announcing public
meetings will provide instructions for requesting other special accommodations.
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Section 5. Revision History
Table 5 – Revision History
Version Date Name Description