PLZU-25-0002_-_JACKSON_PLACE_CUP_WITH_SITE_PLAN_-_Staff_Report_PZ20251410.docx

Case PLZU-25-0002 – Jackson Place Conditional Use Permit with Site Plan 
Page 1 of 8 
 
Conditional Use Permit with Site Plan 
Report to the Planning and Zoning Commission 
 
 
CASE NUMBER: 
PLZU-25-0002 
TITLE: 
Jackson Place Conditional Use Permit with Site Plan  
MEETING DATE: 
October 14, 2025 
 
Applicant: 
Mike Prefling, P.E., and Sara Gilbride, Prefling Engineering LLC 
Owner(s): 
Hickman’s Egg Ranch Incorporated 
Request: 
A Conditional Use Permit with Site Plan to allow for future 
construction of an eight-unit park model manufactured home park 
on 0.38 acres 
 
District: 
Council District 2 
Location: 
Approximately NWC of Jackson Avenue and 2nd Street 
Site size: 
Approximately 0.38 acres 
Public input: 
An advertised neighborhood meeting was held on June 25, 2025, 
and no public input was received. The item was continued by the 
Planning and Zoning Commission at the September 9, 2025 
meeting; one speaker raised potential concerns over the 
proposed project at that prior public hearing.  
 
Recommendation: 
Recommend approval of Case PLZU-25-0002 subject to 
conditions a) through i)

Case PLZU-25-0002 – Jackson Place Conditional Use Permit with Site Plan 
Page 2 of 8 
 
PROJECT DESCRIPTION: 
1. Mike Prefling, P.E., and Sara Gilbride from Prefling Engineering LLC, on behalf of 
Hickman’s Egg Ranch Incorporated, is requesting a Conditional Use Permit (CUP) with Site 
Plan to allow for future construction of an eight-unit park model manufactured home park 
use on approximately 0.38 acres. 
2. The City of Buckeye Development Code requires approval of a Conditional Use Permit for 
all new manufactured home parks in the Mixed Residential (MR) zoning district. The 
purpose of a Conditional Use Permit is to allow for an additional layer of review for uses 
that have widely varying operational and design characteristics to ensure appropriate 
measures are incorporated on a case-by-case basis to minimize potential adverse impacts 
of the use as well as encourage public review and evaluation of a conditional use’s 
operating characteristics and site development features.  
AREA CONTEXT: 
3. Table 1: Existing Land Use, General Plan Designation, and Zoning District: 
 
LAND USE 
GENERAL PLAN 
ZONING 
Subject 
Property 
Vacant 
Historic Downtown 
Buckeye Activity Center/ 
Downtown Specific Area 
Plan (DSAP) and 
identified as Downtown 
Core land use within the 
DSAP 
Mixed Residential (MR) 
North 
Broadbent Powers-Leavitt 
Office Building and 
Vacant Lot 
Historic Downtown 
Buckeye Activity Center 
also known as the 
Downtown Specific Area 
Plan (DSAP) and 
identified as Downtown 
Core land use within the 
DSAP 
Commercial Center (CC) 
East 
Parking Lot for Broadbent 
Powers-Leavitt Office 
Building 
Historic Downtown 
Buckeye Activity Center 
also known as the 
Downtown Specific Area 
Plan (DSAP) and 
identified as Downtown 
Mixed Residential (MR)

Case PLZU-25-0002 – Jackson Place Conditional Use Permit with Site Plan 
Page 3 of 8 
 
PUBLIC PARTICIPATION SUMMARY: 
4. A neighborhood meeting, providing an opportunity for interested parties to learn more about the 
request, was held on June 25, 2025, at 6:00 P.M. at Liberty United Methodist Church. As required 
by the Buckeye Development Code, written notices to property owners within 300 feet of the 
subject site were mailed on June 9, 2025, over (15) days prior to the date of the meeting. 
5. Excluding the applicant and staff, no persons attended the neighborhood meeting.  
6. At the September 9th Planning and Zoning Commission Public Hearing for Jackson Place 
Manufactured Home Park, Jay Broadbent, part owner of the adjacent Broadbent Leavitt Building, 
expressed concerns regarding insufficient notification about the project, the hearing, and the 
future tenants of the model homes. Staff confirmed that the applicant met all required public 
notification procedures for the Conditional Use Permit and agreed to set up a follow-up meeting 
with Mr. Broadbent and the owner of the Leavitt Insurance Agency, Tim Woodruff, to discuss the 
project and attempt to rectify concerns related to the request.  
7. On October 1, 2025, staff met with Jay Broadbent and his business partner, Tim Woodruff, to 
discuss concerns regarding the project. Mr. Broadbent and Mr. Woodruff expressed safety 
concerns for their employees based on the belief that the homes would house individuals 
participating in Hickman’s Eggs’ reentry program for formerly incarcerated individuals. While this 
was initially presented to staff as a potential use, Hickman’s Eggs has since revised its plans. 
According to the applicant’s narrative, the homes will be offered as market-rate, long-term rentals 
available to the general public. While the outreach efforts and subsequent revisions have 
Core land use within the 
DSAP 
South 
Single-Family Residences 
Historic Downtown 
Buckeye Activity Center 
also known as the 
Downtown Specific Area 
Plan (DSAP) and 
identified as Downtown 
Residential land use 
within the DSAP 
Mixed Residential (MR) 
West  
Existing Recreational 
Vehicle Park  
Historic Downtown 
Buckeye Activity Center 
also known as the 
Downtown Specific Area 
Plan (DSAP) and 
identified as Downtown 
Core land use within the 
DSAP 
Mixed Residential (MR)

Case PLZU-25-0002 – Jackson Place Conditional Use Permit with Site Plan 
Page 4 of 8 
 
addressed the primary concern expressed by Mr. Broadbent and Mr. Woodruff, they continue to 
have reservations about the project relating to the safety of their employees.    
8. All required notifications of this public hearing were completed at least (15) days in advance of 
the meeting date, as follows:  
Notification Element 
Date 
Published in the Arizona Republic 
August 20, 2025 
Site Posted 
August 22, 2025 
Mailing Notice to Property Owners Within 300 
Feet of Site 
August 15, 2025 
 
BACKGROUND: 
 
9. June 1929: The subject property was incorporated into Buckeye as part of the City’s original 
townsite incorporation.  
10. February 1976: Maricopa County historic aerial maps first show the subject property being utilized 
as an RV Park. 
11. August 1996: City zoning maps show the property zoned as Mixed Residential (MR) by City 
Council’s adoption of Ordinance 6-96.  
12. September 2012: Maricopa County historic aerial maps show the subject property no longer being 
utilized as an RV Park with the property now vacant.  
13. September 9, 2025: The Planning & Zoning Commission conducted a public hearing for this item 
and, to allow for additional dialogue with the owners of an adjacent business, continued the 
request to the October 14, 2025 agenda.  
ANALYSIS: 
14. The purpose of the Conditional Use Permit is to ensure that certain specified uses, by nature of 
their physical or operational characteristics, or impact on the traffic of adjoining streets, can be 
designed and developed in a manner that is not injurious to the health, safety, and general welfare 
of the community and promotes compatibility with the surrounding area and consistency with 
the Buckeye General Plan. 
15. Section 8.7.1.B of the Buckeye Development Code outlines the applicable criteria for evaluating 
Conditional Use Permits (CUP). The Development Services Department must review applications 
and make a recommendation for approval or denial to the Planning and Zoning Commission based 
on the following criteria: 
a. General Plan

Case PLZU-25-0002 – Jackson Place Conditional Use Permit with Site Plan 
Page 5 of 8 
 
i. The General Plan land use designation of “Historic Downtown Buckeye Activity 
Center” is intended as a regional destination to capitalize on the historical and 
cultural assets available in the area. The use of a manufacture home park is 
supported by the following goals and policies of the Buckeye General Plan: 
1. Goal G-20.1: Within established neighborhoods, the City of Buckeye 
should support new infill residential development that has the character, 
size, density, and quality that respects the existing neighborhood 
character and maintains the quality of life for existing and future 
residents  
2. Policy ST-12.3: The City of Buckeye should encourage infill development 
for the revitalization of neighborhoods, including Historic Downtown, 
especially where there is an excess of vacant lots, deteriorated or 
underutilized properties.  
ii. The Downtown Specific Area Plan (DSAP) was created for the Historic Downtown 
Buckeye Activity Center and designates the area South of Monroe Avenue and 
North of Jackson Avenue as the Downtown Core land use designation. The 
Downtown core land use designation provides guidelines for development of this 
area, such as buildings not being taller than three stories, parking that is accessed 
from alleys or side streets, fostering a “park once” environment, and including 
regular site furnishings, landscape areas, hardscaping variety and details, which 
this use achieves.  
iii. The DSAP supports the use of a manufactured home park through the following 
goals and strategies: 
1.  Goal DA-7: Cater to diverse needs by ensuring a variety of residential 
product types are developed throughout downtown. 
2. Strategy DA-7.2: The Buckeye Development Code should provide 
opportunities for a mixture of detached, attached, and multi-family 
housing options in varying densities to ensure it meets the needs of all 
downtown residents. 
b. Zoning and Development Code 
i. The subject property is zoned Mixed Residential (MR), as shown on Exhibit B, 
which requires a Conditional Use Permit for manufactured home park uses.  
ii. The Mixed Residential Zoning District is designed to accommodate both single- 
and multiple-family residential development, historic residential neighborhoods, 
and compatible commercial uses. A manufactured home park use is consistent 
with the character and density of residential development in the vicinity of the 
subject site, as shown on Exhibit A. 
c. Site Design

Case PLZU-25-0002 – Jackson Place Conditional Use Permit with Site Plan 
Page 6 of 8 
 
i. The Site Plan as shown in Exhibit D, places the main access point from Jackson 
Avenue and residents will utilize new 90-degree on-street parking to be 
constructed by the developer on Jackson Avenue.  
ii. The site features a private aisle to be constructed of decorative open cell pavers 
to allow access to the homes during move-in periods, for deliveries, and the like, 
but is not intended for vehicle parking.  
iii. The proposed design provides for pathways that will provide easy access to the 
Jackson Avenue sidewalk, encouraging residents to walk to storefronts along 
Monroe Avenue to the north and Earl Edgar Park to the south. 
iv. With regard to architectural design, the applicant has agreed to provide eight 
park model units that feature nine-foot flat ceilings throughout, square front pop-
out front-end elevations and hardwood raised panel cabinet doors. The proposed 
park model units feature more architectural detailing and design interest than 
most similar homes, with a traditional style befitting of the site’s location 
downtown.  In addition, each park model unit will have a detached 100-square-
foot storage shed, also featuring enhanced detailing to complement the design 
of the homes themselves.  
v. For a small development of this type, the proposed site plan provides for 
significant landscaping and usable open space. The proposal includes a synthetic 
lawn and shaded barbeque area along the frontage which adds vibrancy to the 
area and encourages residents to engage with the street-level environment of 
Downtown Buckeye. The applicant was able to provide 13.5 percent of usable, 
amenitized open space, exceeding the 10 percent required.  
vi. Residential solid waste collection will be provided by the City. A concrete pad for 
container placement is planned adjacent to Jackson Avenue, west of the spine 
driveway. Each dwelling unit will be assigned a standard residential bin, which 
residents will transport to the pad on designated collection days. 
d. Compatibility with Adjacent uses  
i. The proposed site is adjacent to an existing recreational vehicle park to the west 
and is bordered by the Broadbent Powers-Leavitt Office Building and its parking 
lot to the north and east of the subject property. To the south, the proposed site 
is adjacent to single-family dwellings, separated by Jackson Avenue.  
ii. The Site Plan proposed includes eight park model units and on-street parking to 
be constructed by the developer on Jackson Avenue. The residential nature and 
density of the proposed use is compatible with adjacent residential uses to the 
south across Jackson Avenue and to the west of the subject site.  
iii. The developer plans to lease the units at market rates to the general public. No 
different from any private residential development, tenant screening and leasing 
decisions are handled by the property owner in accordance with applicable fair 
housing laws, and are not subject to City oversight.

Case PLZU-25-0002 – Jackson Place Conditional Use Permit with Site Plan 
Page 7 of 8 
 
e. Significant Adverse Impacts 
i. Staff does not anticipate any significant adverse impacts from development of 
the site with the proposed use.  
f. Facilities, Service, and Infrastructure  
i. Emergency services will be provided by the City of Buckeye. The proposed use is 
not associated with increased risk requiring a higher level of emergency services. 
ii. The site is located within the City of Buckeye sewer and water service areas.  The 
developer will be responsible for completing all water and sewer infrastructure 
improvements needed to serve the proposed development.  
iii. Per standard City policy, the developer will complete all half-street 
improvements to Jackson Avenue adjacent to the site.  
g. Noncompliance and Revocation 
i. In the event of noncompliance by the applicant with the Conditional Use Permit 
or any conditions of approval, or if the Conditional Use is not in operation within 
two years after the date of its approval, the Planning and Zoning Commission may 
initiate proceedings to review the Conditional Use Permit. Such review shall occur 
in the same manner as the original approval, and upon completion of such review 
the Planning and Zoning Commission may revoke the Conditional Use Permit or 
amend the original approval. 
. RECOMMENDATION: 
16. Staff recommends the Planning and Zoning Commission approve PLZU-25-0002 with conditions 
a-i for the following reasons: 
a. Furthers goals of the Buckeye General Plan and contributes to a vibrant Historic 
Downtown Buckeye Activity Center (DSAP) with a residential use appropriate to the 
Activity Center; 
b. Conforms to the Buckeye Development Code; and 
c. No outstanding issues from reviewing departments  
a) Development of the property shall be in general conformance with the site plan and elevations 
titled 110 E Jackson Ave – Jackson Place, consisting of 16 pages, dated June 9, 2025, and stamped 
received June 11, 2025, except as modified by the following conditions/stipulations. 
b) 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 a result of this approval.  
c) All trash shall be collected through a City of Buckeye licensed trash hauler, including construction 
debris. Trash enclosures shall be in accordance with City of Buckeye Standards.  
d) The Property Owner/Developer shall be responsible for the dedication and construction of all half-
street right-of-way and improvements, at no cost to the City, for Jackson Place based on City of 
Buckeye standards. This includes the construction of paved parking spaces and landscaping in the 
adjacent right-of-way. 
e) Property Owner/Developer shall verify and complete due diligence if any proposed subdivision of 
the existing property requires a Certificate of Assured Water Supply based upon Arizona State 
Law Subdivision requirement. Prior to Final Plat approval, the Property Owner/Developer shall

Case PLZU-25-0002 – Jackson Place Conditional Use Permit with Site Plan 
Page 8 of 8 
 
produce a Certificate of Assured Water Supply issued by the Arizona Department of Water 
Resources (ADWR), covering all lots and parcels created, defined, or depicted on said Plat, if the 
Certificate is required as determined by Property Owner/Developer due diligence. The certificate 
must be consistent with all Arizona Department of Water Resources ADWR rules and 
regulations.  In the event the City has been designated an assured water provider prior to Final 
Plat approval, and the ADWR has not yet issued a Certificate or Certificates of Assured Water 
Supply for the subdivision, a Certificate or Certificates of Assured Water Supply will not be 
required by the City.  The City may instead require as a condition to Final Plat approval that the 
Property Owner/Developer provide the City with other evidence demonstrating that there is 
sufficient volume and quality of water necessary to serve the demands at the subdivision such as 
a physical availability determination issued by the ADWR along with supporting documentation 
or that the Property Owner/Developer provide the City with a copy of an analysis of assured water 
supply, with supporting documentation, issued by the ADWR for the subdivision. 
f) The on-site private drive isle shall be signed as “Dead End, No Turn Around” and “No Parking”. 
g) In accordance with Section 8.7.1.C.1-2 of the Buckeye Development Code, the Conditional Use 
Permit will expire on September 9, 2027, if the use has not commenced. Should the use cease 
operation for a period longer than one year, then the permit shall be considered void. 
h) Development of this site under this Conditional Use Permit shall conform to Development Code 
Standards including Subsection 3.2.1.E or effective Development Code standards, as amended, 
applicable to Manufactured Home Parks.  
i) 
A replat of the subject property to combine parcels 400-27-051 and 400-27-049 shall be approved 
and recorded prior to issuance of Certificate of Occupancy.  
ATTACHMENTS: 
Exhibit A – Vicinity Map 
Exhibit B – Zoning Map 
Exhibit C – Project Narrative 
Exhibit D – Site Plan 
Exhibit E – Citizen Participation Report 
 
Prepared By: 
Jarek Dunn, Planner I 
 
Reviewed By: 
Ken Galica, Planning Manager