PLZZ-23-00016 Grand View CMP - Staff Report - 040726CC.docx
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Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 1 of 13 REZONE AND DEVELOPMENT AGREEMENT Report to the Mayor and City Council CASE NUMBER: PLZZ-23-00016 TITLE: Grand View Arizona Community Master Plan (CMP) and Development Agreement (DA) MEETING DATE: April 7, 2026 Applicant: Alan Beaudoin, Norris Design Owner(s): Grand View Buckeye LLC Request: The request involves two components, as follows: 1) Request for approval of a Community Master Plan (CMP) for Grand View Arizona, establishing permitted land uses and development standards to facilitate development of a rail-served regional industrial hub with potential for complementary/secondary commercial, single-family residential, and multi-family residential uses; and 2) Approval of Development Agreements defining developer and City obligations pertaining to development of the subject property. District(s): 2 Location: Area generally bounded by Broadway Road to the north, Jackrabbit Trail to the east, MC 85 to the south, and Dean Road to the west (Exhibits A, B, and C) Site size: Approximately 2,271 acres Public input: An advertised neighborhood meeting was held on April 3, 2024, with the applicant, City staff, and approximately 13 community members in attendance; please refer to the Public Participation Summary section of this staff report for additional information. Recommendation: Public hearing and adoption of an Ordinance approving the proposed Rezoning, subject to conditions (a) through (j), and accompanying Development Agreement. Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 2 of 13 PROJECT DESCRIPTION 1. Alan Beaudoin, Norris Design, on behalf of property owner Grand View Buckeye LLC, is requesting approval of a rezone of approximately 2,271 acres generally bounded by Broadway Road on the north, Jackrabbit Trail on the east, MC 85 on the south, and Dean Road on the west (Exhibits A, B, and C). 2. The property currently features three zoning districts: Approximately 1,923 acres are presently located within the jurisdiction of Maricopa County and zoned Rural 43 (RU-43). Annexation of this portion of the property is scheduled for Council’s consideration immediately before this rezoning. If annexation is approved, the 1,923 acres will be assigned Single-Family Residential 43 (R1-43) zoning, the district most closely aligned with the existing County zoning. The R1-43 district allows for large lot single-family residential development and ancillary uses with a rural character. Approximately 309 acres located at the southeast corner of Verrado Way and Broadway Road are zoned Light Industrial (I-1). As its name implies, the I-1 district allows for a range of primarily indoor/enclosed industrial uses including light manufacturing, warehousing, and similar uses. Approximately 39 acres located a quarter mile south of the southwest corner of Jackrabbit Trail and Southern Avenue are zoned Rural Residential (RR), an obsolete Buckeye zoning district very similar to the current R1-43 district. Like the R1-43 district, RR zoning allows for large lot single-family residential development and ancillary uses with a rural character. 3. Approval of the applicant’s request would rezone the 2,271-acre site to Community Master Plan (CMP) to facilitate development of a rail-served regional industrial hub with complementary/secondary commercial, single-family residential, and multi-family residential uses. The proposed Grand View CMP narrative, which includes land use requirements, development standards, and design standards, is attached as Exhibit D. 4. The proposed CMP will establish the following land use districts: Regional Employment: This district would allow for a range of light industrial, limited heavy industrial, and other employment generating uses such as manufacturing, logistics, data centers, aerospace-related companies, and the like, based on the City’s Light Industrial (I-1) and Heavy Industrial (I-2) zoning districts, but modified to eliminate the most undesirable or objectionable uses permitted within those districts. To allow the property to be marketed to “mega users” that may desire to develop a large-scale facility over the entire nearly Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 3 of 13 2,300-acre site, the proposed CMP would allow for all but 32 acres to be developed with these employment land uses. To ensure the project is aesthetically attractive from outside of the Grand View development, heavy industrial uses would not be permitted along any arterial street that forms the perimeter of the site. Buffering and screening requirements, discussed in more detail below, are also included to ensure acceptable transitions are provided between industrial and residential uses, both within and external to the CMP. Rail access is prioritized within this district. Residential Village: Between 0 and 750 acres within the CMP may be developed with varied housing types, including a range of allowed single-family lot sizes and product types, as well as multi-family residential, which is capped at 20 percent of the overall residential acreage, or 150 acres maximum. The CMP sets the Residential Village target at 5,060 dwelling units and maximum cap at 6,500 dwelling units across approximately 750 acres of residentially designated land, a target density of 6.75 dwelling units per acre and maximum density of 8.67 units per acre. The Residential Village areas, if provided, will be located primarily next to existing residential neighborhoods located northwest, north, and southeast of the overall CMP boundary. Though the CMP does allow for some modification of the Residential Village locations from what is shown on the concept plan, the proposal would not allow development of residential “islands” where non- residential uses surrounded residences on three (3) or more sides. Permitted uses and development standards are based on Buckeye’s residential zoning districts, but with modifications intended to support a wide range of different lot sizes and product types. Commercial District: To support both employees and residents in the area, at least 32 acres and up to 235 acres of the CMP will develop with community-scale commercial uses such as retail, restaurant, personal services, and offices. Though conceptual and subject to adjustment, the CMP’s land use plan anticipates the commercial locations to be primarily focused at major arterial intersections, such as the southeast and southwest corners of Verrado Way and Broadway. The Commercial District uses and development standards are largely based on the City’s Community Commercial (C-2) zoning district. 5. The proposal modifies the Major CMP Amendment threshold to require a Major Amendment for requests to increase residential units over 10 percent from the identified cap, any change to the CMP that results in over 40 percent of the total land area being developed with non-employment uses, any proposed change that would significantly impact traffic, or any proposed revision that, in the opinion of the Development Services Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 4 of 13 Director, would represent a “fundamental” change. Such Major Amendments would require the full hearing process inclusive of a neighborhood meeting, Planning & Zoning Commission hearing, and City Council approval. All other modifications to the CMP could be processed as Minor Amendments and approved administratively. 6. The Employment Transition Area design expectations outlined in the City’s General Plan, that are intended to reduce conflicts between industrial and residential uses and provide for enhanced landscape and architecture along prominent street frontages would apply to development on this site. The proposed CMP includes a variety of its own standards designed to further mitigate possible impacts of adjacent dissimilar land uses and ensure the project presents attractively from adjacent streets. These include restricting heavy industrial uses from being developed within 500 feet of the perimeter of the CMP, minimum 75 foot industrial building setbacks from residential development internal and external to the CMP (150 foot setback to any service or loading area), and minimum 30 foot landscape setbacks adjacent to arterial streets and between residential and industrial uses. 7. Architecturally, the CMP requires building facades visible from arterial and collector roadways, or adjoining properties with a “Neighborhood” land use designation or an existing single-family residential use to provide for visual diversity through vertical and horizontal movement and variation in high quality, textured materials to create a cohesive campus appearance. 8. The CMP requires provision of drought-tolerant plants and continuous screening where needed. Integration of pedestrian connections, shade features, and site amenities into overall site design is required where appropriate. The plan includes a network of multi- use paths and trails connecting employment, residential, and commercial areas within the site, as well as links to the City’s regional trail system. Trails are designed to enhance pedestrian and bicycle mobility, provide recreational opportunities, and integrate with landscaped open space corridors. 9. Permitted signage will be consistent with the Development Code, with the exception that in the event the SR-30 alignment runs immediately adjacent to the property, the project be allowed a total of 6 billboards if those billboards comply with all other standards within the code. 10. The site has direct access to several major arterials and is located 3.5 miles south of Interstate 10. It will also benefit from the planned SR-30 and Interstate 11 corridors. Certain streets shown in the City’s Transportation Master Plan, such as Southern Avenue as it travels east/west through the site, may be removed if traffic studies support the change. The developer will be responsible for providing access and making any required off-site improvements. Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 5 of 13 11. The property will be served water and sewer by the City of Buckeye. It is anticipated that the project will provide new on-site regional water and wastewater facilities sized to accommodate both the project and surrounding growth. The proposed Regional Water Campus will deliver potable water service through new mains and storage facilities, while the Regional Wastewater Reclamation Facility will collect, treat, and reclaim wastewater for reuse or discharge in accordance with regulatory standards. 12. Most of the property is outside the 100-year floodplain, with only small areas in AH and AO zones that must follow floodplain regulations. Drainage systems will be designed to meet City of Buckeye and Flood Control District standards. Solutions may include regional drainage facilities, on-site retention, and open space features that help manage stormwater. 13. The CMP anticipates space for future City of Buckeye police and fire facilities to serve the project and surrounding growth. 14. The proposed CMP would allow for phased development of the site. 15. This CMPA request is accompanied by a Development Agreement to establish obligations for infrastructure related to development of the project. AREA CONTEXT: 16. Table 1: Existing Land Use, General Plan Designation, and Zoning District: LAND USE GENERAL PLAN ZONING Subject Property Active agricultural use with dairy farm component Employment Maricopa County Rural-43 (RU-43), Light Industrial (I-1), General Commerce (GC), Rural Residential (RR) North Primarily agricultural with scattered rural residential and cottage industry uses Proportionate mix of Neighborhood, Employment, Master Planned Community, and Rural Primarily Maricopa County Rural-43 (RU-43) with scattered pockets of Planned Residential (PR), Light Industrial (I-1), and Planned Community (PC)/CMPs South Primarily agricultural with scattered rural residential and cottage industry uses Neighborhood Primarily Maricopa County Rural-43 (RU-43) with pockets of General Commerce (GC) and Special Use (SU) East Primarily agricultural with scattered rural residential and cottage industry uses Primarily Employment; limited Neighborhood Primarily Maricopa County Rural-43 (RU-43) with scattered pockets of Planned Residential Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 6 of 13 PUBLIC PARTICIPATION SUMMARY: 17. A neighborhood meeting, providing an opportunity for interested parties to learn more about the request, was held on April 3, 2024. As required by Buckeye Development Code, written notices to 135 property owners within 500 feet of the subject site were mailed on March 19, 2024, over fifteen (15) days prior to the date of the meeting. Approximately 13 people (excluding City staff and the applicant team) attended the open house. Though multiple questions about the alignment of future State Route 30 and the impacts the future freeway would have on flood plains were received at the meeting, no significant concerns or objections to the land use proposal were noted. A more detailed summary of the neighborhood meeting can be found in the Public Participation Report attached as Exhibit E. 18. This item has been continued at three Planning and Zoning Commission meetings, at the request of the project applicant, as follows: On August 12, 2025, the Commission continued the item to October 24, 2025. On October 24, 2025, the Commission continued the item to November 20, 2025. On November 20, 2025, the Commission continued the item to February 10, 2026. 19. Several property owners located along the periphery of the Grandview site attended the August 12, 2025, Commission hearing for this item. Immediately after the meeting, staff met with these owners to discuss the project and arranged a subsequent follow-up meeting to address future water and sewer service in this area of the City. 20. There were no speakers during the February 10, 2026 Planning & Zoning Commission public hearing for the proposed CMP. The Commission recommended approval of the proposed rezoning. 21. The applicant is required to provide notices and postings at least fifteen days in advance of the rezoning public hearings as required by the Buckeye Development Code and (PR), Rural Residential (RR) and Commercial Center (CC) West Primarily agricultural with scattered rural residential and cottage industry uses Proportionate mix of Neighborhood and Master Planned Community Mix of Henry Park CMP/Planned Community (PC) and Maricopa County Rural-43 (RU-43) Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 7 of 13 Arizona Revised State Statues (ARS 9.471). Notices of the Planning and Zoning Commission and City Council public hearings were and/or are scheduled to be completed, as follows: Notification Element Date Published in the Arizona Republic P&Z: July 25, 2025 Council: to be completed by March 23, 2026 Site Posted P&Z: July 28, 2025 Council: to be completed by March 23, 2026 Mailing Notice to Property Owners Within 500 Feet of Site P&Z: July 24, 2025 Council: to be completed by March 23, 2026 BACKGROUND: 22. April 1980: Approximately 39 acres near the CMP’s eastern edge, a quarter mile south of the southwest corner of Jackrabbit Trail and Southern Avenue, were annexed by the then Town Council’s approval of Ordinance No. 5-81. The property is currently zoned Rural Residential, though there is no record of when that zoning may have been applied to this portion of land. 23. November 2000: Approximately 309 acres comprising the northeastern most portion of the proposed CMP were annexed by the then Town Council’s approval of Ordinance No. 74-00. 24. June 2022: A Major General Plan Amendment changing the land use designation of 1,333 acres of the site from Neighborhood to Employment was approved through City Council’s adoption of Resolution No. 55-22. Approval of the Major GPA was the first step towards entitling the property to achieve the vision identified in this CMP. 25. August 2023: The 309 acres at the northeastern corner of the site was rezoned from a combination of General Commerce and Planned Community (PC) to Light Industrial (I-1) by the City Council’s approval of Ordinance No. 32-33. 26. August 12, 2025: The proposed rezoning was continued by the Planning and Zoning Commission to the October 24, 2025 meeting to allow additional time for staff and the applicant to find agreement on recommended conditions of approval. 27. October 28, 2025: The proposed rezoning was continued by the Planning and Zoning Commission to the November 20, 2025 meeting to allow additional time for staff and the applicant to find agreement on recommended conditions of approval. Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 8 of 13 28. November 20, 2025: The proposed rezoning was continued by the Planning and Zoning Commission to the February 10, 2026 meeting to allow additional time for staff and the applicant to find agreement on recommended conditions of approval. This continuance was also requested by some interested property owners in the vicinity of the site who wished to be present but were unable to attend on November 20th. 29. February 10, 2026: The Planning and Zoning Commission conducted a public hearing and recommended approval of the proposed rezoning to CMP. There were no speakers during the public hearing. ANALYSIS: 30. Approval of the annexation of approximately 1,918 acres of the subject property currently in the jurisdiction of Maricopa County is required before the City Council may approve the CMP. Council will consider approval of the annexation immediately preceding this item. 31. The subject site features a General Plan land use designation of Employment, a category intended to primarily accommodate development of industrial and other employment- generating uses as well as ancillary commercial uses to support the needs of employees within the area. A City-initiated General Plan Amendment revising the General Plan’s definition of the Employment land use category to allow limited residential uses within large-scale Community Master Plans or Planned Area Developments (1,280 acres or more) on properties featuring an Employment designation was approved by the City Council in September 2025. With that approval, residential uses can also be proposed within Employment CMPs or PADs, subject to Council’s discretionary approval, only where zoning documents include clear criteria ensuring residential uses are not the primary land use, are not located adjacent to heavy industrial uses, and incorporate design standards—such as setbacks, buffers, building size limits, connectivity requirements, and other measures—to mitigate impacts. The proposed CMP is consistent with the Employment land use designation. 32. The proposed rezoning furthers multiple General Plan goals and policies, including, but not limited to: Expand the contiguous area for development of employment generating uses in furtherance of General Plan (“GP”) Policy G-7.1: “The City of Buckeye should identify and protect areas suitable for large scale office park and industrial activities, such as distribution, logistics, manufacturing, and other employment type uses within the City’s MPA”; Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 9 of 13 Provide additional land for employment generating and tax revenue producing regional commercial and industrial uses with excellent access to SR85 and I-10, in conformance with GP Policy G-9.3: “The City of Buckeye should protect its primary industrial and commercial corridors (areas with access to highways and railroads) from conversion to non‐employment uses or encroachment by uses that would limit future uses on these sites”; Further the City’s Economic Development related goals of attracting businesses in the logistics and advanced manufacturing sectors and meeting desired jobs to population ratios outlined in GP Policy G-1.8 by positioning Buckeye for national- scale economic development with large employers: “The City of Buckeye will encourage commerce and business employment centers that respond to the City’s economic needs and that correspond with Buckeye’s targeted economic sectors.” and GP Policy G-7.3 “The City of Buckeye will have an average of one to one jobs per household”. Supports various policies encouraging a mix of employment, commercial, and residential opportunities in master-planned areas, with appropriate buffering between uses. Furthers goals to link major employment centers to regional highways, future freeway corridors, and rail infrastructure, while providing internal circulation for all travel modes. Implements objectives for high-quality building and site design, landscaped buffers, and pedestrian-friendly environments that contribute to community character. Advances the goal of expanding the City’s trail and pathway network, connecting to regional systems and providing active transportation options, and capitalizes on the property’s adjacency to the existing rail corridor. 33. The proposed Grand View Arizona CMP provides a framework for development that is consistent with sound planning principles. The permitted uses focus on attracting high- wage employers in advanced manufacturing, logistics, aerospace, and related industries, while allowing a limited amount of residential and commercial development to support a complete community. The CMP’s tailored development standards ensure compatibility between land uses through generous buffers and setbacks, high-quality architectural and site design standards, and clear transitional requirements from employment to residential areas. The project is not expected to negatively impact surrounding properties. 34. Infrastructure requirements are tied to phased development, ensuring that streets, water, wastewater, and drainage facilities are delivered in step with growth. By Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 10 of 13 integrating land use flexibility with predictable design expectations, the CMP supports Buckeye’s General Plan goals for economic diversification, infrastructure investment, multimodal connectivity, and community character, positioning the site as a long-term regional employment hub. Regional trails traversing the property, in locations identified in the City’s Parks and Trails Master Plan, will be provided. Locations of trails may be realigned on the property to reduce interference with the planned commercial or light industrial uses but will be designed to ensure the functionality of the regional system is not negatively impacted. 35. The property is located within the Buckeye Union High School and Liberty Elementary School Districts. Development of the property with industrial or commercial uses will not result in any impact to either district. If and when residential uses are proposed in accordance with the allowances of this CMP, the City, developer, and school districts will work to identify and mitigate any potential impacts during the platting or site planning stages of development. RECOMMENDATION: 36. Staff recommends that City Council conduct a public hearing and adopt an Ordinance approving the proposed Grand View Arizona rezoning to Community Master Plan, Application PLZZ-23-00016, subject to conditions (a) through (j), for the following reasons: With Council’s September 2025 approval of a Minor General Plan Amendment revising the definition of the Employment designation to allow for supporting residential uses in large scale employment-focused CMPs, the proposal conforms to the property’s underlying General Plan Land Use designation. The CMP conforms to requirements of the Buckeye Development Code or proposes alternative requirements that will not result in development of inferior quality. There are no outstanding issues for reviewing departments (Engineering, Fire, Public Works, Community Services, Police, Water Resources, and Development Services). General a) Unless specifically addressed within the Community Master Plan and/or the associated Development Agreement, all City of Buckeye laws and regulations shall apply. Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 11 of 13 Planning/Standard b) Development of the property shall be in general conformance to the project narrative entitled “Grand View Arizona Community Master Plan”, consisting of 125 pages, dated November 12, 2025, and stamped received on November 13, 2025, except as modified by these conditions of approval. c) The Property Owner/s and their successor waive any and all claims for diminution in value of the property with regard to any action taken by City of Buckeye as result of the CMP approval. Engineering/Standard General d) All existing irrigation facilities located on the site shall be abandoned, relocated, or installed underground on the portion of the property that is being developed, prior to C of O. Any District-owned facilities shall be relocated to a location outside of the future planned right-of-way and 8-foot Public Utility Easement unless otherwise approved by the City Engineer. Engineering/Standard Streets e) The Property Owner/Developer shall submit a Map of Dedication (MOD) or other appropriate subdivision type to the City of Buckeye dedicating right-of-way for roadways as classified in the Master Transportation Plan when requested to do so by the City. Such right-of-way may be requested by the City to be dedicated in advance of development to permit the construction of needed City infrastructure to adjacent sites. Transportation f) Prior to approval of the first Preliminary Site Plan, or Preliminary Subdivision application within the CMP, a CMP MASTER Traffic Impact Analysis shall be submitted and approved by the City to analyze the full build out of the CMP. All requirements of the CMP MASTER Traffic Impact Analysis shall be reflected on the approved construction drawings. The CMP MASTER Traffic Impact Analysis must be updated to specifically analyze the proposed phase of development and full build- out of the entire CMP. Each subsequent proposed phase will be required to provide an update to the CMP MASTER Traffic Impact Analysis that supports the phase being proposed. For the purposes of administration of compliance with this condition of zoning approval, a “phase” is defined as formal submittal of a Site Plan or a Subdivision Plat to the City of Buckeye. If the proposed Site Plan or Subdivision Plat is considered to be minor, or insignificant to anticipated traffic impacts, the City Traffic Engineer may waive the requirement to update the Master Traffic Impact Analysis. Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 12 of 13 g) Prior to a request for removal of any portion of Southern Avenue from the City’s Transportation Master Plan, Property Owner/Developer shall obtain City approval on a traffic analysis supporting such removal. h) Prior to the release of the first civil permit within the CMP, the Property Owner/Developer shall pay a pro rata share of the cost of the future regional traffic signals to be installed adjacent to the development. The pro rata share is based on a ratio of the project acreage to the developable acreage within the boundary limits of Broadway Road, Jackrabbit Trail, Dean Road and MC 85. The contribution is based on the following allocation of costs: (i) 25 percent share of traffic signals at the corners of the boundary limits; and (ii) 50 percent share of traffic signals of the arterial and half-mile collector street intersections that are not on the corners. The cost shall be based on an anticipated signal cost as determined by the City. i) All traffic signals within the CMP boundary limits that are required for the land area then-developing, as determined by the City, all non-regional traffic signals that are required for the land area then-developing, as determined by the City, and, all regional traffic signals that are required for the land area then-developing, as determined by the City, shall all be funded and constructed by the Property Owner/Developer, and accepted by the City prior to issuance of a C of O within the applicable portion of the development. Regional traffic signals will have a reimbursable component from the regional signal fees collected by the City from other parcels per City Engineer approval. j) In the event that access to and within the project is demonstrated to be a threat to public safety and security by the City, the City has authority to take such action as it deems reasonably necessary to address such a threat until such time as the Property Owner eliminates the safety concerns to the City’s satisfaction. The Property Owner will be responsible for taking such action as may be reasonably necessary to alleviate the City’s concerns with respect to public safety and security, which may include changes to access, curb cuts, and/or drive lanes or roadways. Any such changes will be considered a minor change to existing site plan approvals and shall be approved by the City. ATTACHMENTS: Exhibit A – Aerial Vicinity Map Exhibit B – Zoning Vicinity Map Exhibit C – General Plan Land Use Map Case PLZZ-23-00016 – Grand View Arizona CMP Rezoning and Development Agreement Page 13 of 13 Exhibit D - Proposed Grand View Arizona CMP Exhibit E – Citizen Participation Report Prepared By: Ken Galica, Planning Manager Reviewed By: Adam Copeland, Deputy Planning Director