GORDON, Chief Justice.
On March 26, 1986, the Phoenix City Council adopted Ordinance No. S 16367, authorizing the city manager or his designee "to enter into an agreement and execute necessary documents to effect a trade of 29 acres of City-owned land located at the southeast edge of South Mountain Park ... for 34 acres of land owned by Gosnell Development Corporation [GDC] which adjoin South Mountain Park...." The ordinance required GDC to donate the 29 acres back...
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