SANTA ANA, Calif.—The Orange County grand jury June 21 issued a critical report about the county’s toll roads, arguing the agencies overseeing them should be working to retire debt and transition to freeways. The “$28 Billion for a $2.8 Billion Road” makes the case that the transportation corridor agencies have become a self-perpetuating bureaucracy with no end in sight. “The grand jury recommends the [Transportation Corridor Agencies] develop and implement a written plan to pay off all debt by 2040, the original maturity date of the initial debt offering,” according to the report. The grand jury said it wants the plan submitted by the end of the year with recurring annual updates. “This allows for completion of the 91 Express Connector and other projects currently in planning,” the grand jury said. “This will result in debt service savings of approximately $1 billion.” The grand jury also recommended the agency eliminate …