The interchanges benefit both the city and the airport. Why can't both parties just agree to work together to get them built in 10-15 years when they would be required?
Don't put it all on the city, or, at the very least, give the city a little bit of help and some leeway. Say, when traffic reaches a certain level, the city has 5 years to build the interchanges, and the Airport will pay for 30% of the cost, or something like that.
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