At any time prior to council action, and with notice consistent with EC 9.7820, the city may modify an application to include contiguous road right-of-way or to include other contiguous public land. For annexation applications in the River Road/Santa Clara area, the city shall not modify an annexation application to include road right-of-way if, by doing so, annexation would cause unincorporated property to be surrounded as described in ORS 222.750.