PLZZ-25-0013 Teravalis PAD - PZ Staff Report - PZC 10.27.2026.docx

Planned Area Development
Report to the Planning and Zoning Commission
CASE NUMBER: PLZZ-25-0013
TITLE: Teravalis Planned Area Development (PAD)
MEETING DATE: October 27, 2026
Applicant: William E. Lally, Tiffany & Bosco, P.A.
Owner(s): Douglas Ranch Land Company, LLC
Request: Request for approval of the Teravalis Planned Area Development
(“PAD”), rezoning approximately 33,939 acres from Planned
Community (PC) with Douglas Ranch Community Master Plan
(CMP) Overlay to Planned Area Development (PAD) and a flexible
land-use framework for a master-planned community
encompassing approximately 33,939 acres. The PAD allows for up
to 130,000 residential dwelling units and approximately 3,542
acres of non-residential development, subject to the PAD’s land-
use budget provisions.
District(s): 4
Location: The proposed site is generally bounded by the Jomax alignment on
the north, Thunderbird and Cactus Road alignments on the south,
319th and 298th Avenue alignments on the east, and 379th and 355th
Avenue alignments on the west (the area formerly governed by
Douglas Ranch Community Master Plan)
Site size: Approximately 33,939 acres (or approximately 53 square miles)
Public input: An advertised neighborhood meeting was held on June 3, 2026 at
the Floreo Welcome Center. One member of the public attended
and expressed support for the proposal. No opposition has been
received. All required notices of this public hearing have been
completed.
Recommendation: Conduct a public hearing and recommend that City Council
approve the Teravalis Planned Area Development, subject to
conditions (a) through (p).
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PROJECT DESCRIPTION
1. William E. Lally, Tiffany & Bosco, P.A., on behalf of property owner Douglas Ranch Land
Company, LLC, is requesting approval of the Teravalis Planned Area Development (“PAD”)
for approximately 33,939 acres generally located north and west of the Sun Valley
Parkway and encompasses the northwestern portion of Buckeye. (Exhibits A, B, and C).
The request is being processed concurrently with a Major Amendment to the Douglas
Ranch Community Master Plan (“CMP”) removing the subject property from that master
plan. Upon approval, the Teravalis (Exhibit D) would establish a separate entitlement
framework for the property and replace the prior zoning entitlements applicable to the
site.
2. The proposed PAD establishes a comprehensive planning and regulatory framework for
the long-term development of a master-planned community with a variety of residential
housing types, from large-lot single-family neighborhoods to higher-intensity multifamily
development near mixed-use centers. The residential framework is intended to support
housing choice, neighborhood connectivity, and access to parks, trails, schools, and
employment areas.
3. The proposed framework is intended to guide phased development of Teravalis while
promoting coordinated infrastructure, high-quality design, sustainability, and integration
with the surrounding Sonoran Desert environment.
4. At full buildout, the PAD permits a maximum of 130,000 dwelling units (3.83 dwelling
units per acre) and between 3,542 acres of non-residential development. Residential
development may include a broad range of detached and attached single-family housing,
townhomes, horizontal and vertical multi-family development, and mixed-use residential
products. To ensure that larger-lot housing remains part of the community’s housing mix,
the PAD also requires a minimum of 150 single-family detached lots with a minimum lot
area of 12,000 square feet. These lots may be distributed throughout one or more Villages
but must ultimately be provided within the community.
5. The Teravalis PAD uses a three-level planning framework to organize development: the
overall PAD, individual Village Plans, and more detailed Development Unit Plans. The
purpose is to establish a coordinated long-term plan for the community while allowing
individual neighborhoods to respond to changing market conditions, infrastructure
availability, and development needs. The important distinction is that the PAD sets the
overall framework and development limits, while many specific housing, park, and open-
space details are established and tracked through subsequent village and development-
unit approvals. As a result, the Development Code will have little practical applicability
within the community.
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6. Open space and recreation are integrated throughout the Village framework. Each Village
is required to provide open space equal to at least 18 percent of its net site area, and the
PAD anticipates approximately 155 acres of parks, exceeding the acreage identified by
the City’s Parks and Recreation Master Plan based on the projected population of the
community. The open space system incorporates a hierarchy of parks, trails, paths,
drainage corridors, and other landscaped areas intended to provide connections between
neighborhoods and community destinations. Recommended conditions of approval
further require regional trails and trailheads identified in the City’s Parks and Recreation
Master Plan to meet applicable City standards.
7. The PAD also includes community-wide architectural, landscape, streetscape,
wall/fencing, lighting, and signage standards intended to establish a cohesive character
while allowing architectural and product diversity among individual Villages and
neighborhoods. Residential development is required to incorporate multiple floor plans
and elevations, while a recommended condition of approval requires additional lot-width
diversity by limiting any single lot width to no more than 80 percent of the detached
single-family lots within a Village.
8. The PAD establishes customized administrative procedures for implementation over the
life of the community, including Village Plans, an Administrative Approval Process, a Land
Use Budget tracking system, and an Architectural Review Committee. These processes
are intended to allow individual portions of the community to be refined over time while
maintaining consistency with the overall PAD framework and applicable infrastructure
capacity. Major changes that exceed the amendment thresholds established by the PAD
remain subject to the applicable public hearing and City Council approval process.
9. This staff report is intended to summarize the principal components of The Cascade PAD
and is not an exhaustive description of every permitted use, development standard,
design requirement, administrative procedure, or modification from otherwise applicable
City requirements. The complete PAD, attached as Exhibit D, will govern development of
the property together with the conditions of approval.
AREA CONTEXT:
LAND USE GENERAL PLAN 2040 ZONING
Planned Community (PC) with
Subject
Vacant Desert Master Planned Community Douglas Community Master
Property
Plan (CMP) overlay
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Unincorporated Maricopa
North Vacant Desert Neighborhood, Open Space
County – Rural 190
Master Planned Community,
East Vacant Desert Neighborhood, Open Space, Planned Community (PC)
Rural
Vacant Desert and Unincorporated Maricopa
South Rural, Open Space
Floreo PAD County – Rural 190
Unincorporated Maricopa Unincorporated Maricopa
West Vacant Desert
County County – Rural 190
PUBLIC PARTICIPATION SUMMARY:
10. A neighborhood meeting providing an opportunity for interested parties to learn more
about the proposed Douglas Ranch Major CMP Amendment and the Teravalis PAD was
held on June 3, 2026 at 5:30 P.M. at Floreo Welcome Center. Written notices were
provided to property owners within 500 feet of the subject property prior to the meeting.
In addition to the applicant team and City staff, one member of the public attended,
expressing support for the proposal, but no opposition to the request has been received.
11. All required notifications of this public hearing were completed at least fifteen (15) days
in advance of the meeting date, as follows:
Notification Element Date
Published in the Arizona Business Gazette
October 10, 2026
Republic Edition
Site Posted October 9, 2026
Mailing Notice to Property Owners Within 500
October 9, 2026
Feet of Site
BACKGROUND:
12. In 2002, the City Council adopted Ordinance No. 53-02, approving the Douglas Ranch
Community Master Plan (CMP). And in 2009 Douglas Ranch CMP Amendment No. 1 was
approved by Council.
13. No subsequent amendments to the Douglas Ranch CMP have been approved since 2009.
14. The approximately 35,379 acres historically comprising Douglas Ranch are subject to
multiple existing entitlements, including the previously approved Douglas Ranch
Community Master Plan (CMP). Through the proposed Teravalis Planned Area
Development (PAD), approximately 33,939 acres would be governed by a new land use,
development, design, and administrative framework, replacing the prior Douglas Ranch
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CMP entitlements for the property owned by Howard Hughes. Approximately 1,440 acres
of Arizona State Trust Land would remain subject to the existing Douglas Ranch CMP and
its associated entitlements.
ANALYSIS:
15. The subject property is designated Master Planned Community (MPC) by the Imagine
Buckeye General Plan 2040. The proposed Teravalis Planned Area Development (PAD) is
intended to establish the long-term land-use and regulatory framework for a large-scale,
mixed-use master planned community in the northwestern portion of Buckeye. The PAD
encompasses approximately 33,939 acres and allows for up to 130,000 residential
dwelling units and approximately 3,542 acres of non-residential development, subject to
the PAD's land-use budget provisions. The proposed community is planned to include a
variety of residential housing types, commercial and employment uses, mixed-use
centers, public facilities, parks, open space, and an interconnected network of streets,
paths, and trails
16. The proposal advances several goals and policies of the Imagine Buckeye General Plan
2040. These include Growth Theme Goal 1, which calls for land use patterns that support
diverse, active lifestyles and align development intensity with infrastructure capacity;
Growth Theme Goal 19, which promotes attractive, high-quality, healthy neighborhoods
with pedestrian and bicycle connectivity to parks, schools, public facilities, and
commercial areas; Services Theme Goals 6 and 8, which support coordination with school
districts and the timely provision of educational facilities; Services Theme Goals 9 and 14,
which promote connected multimodal transportation and bicycle and pedestrian
networks; Services Theme Goals 15, 16, and 18, which address sustainable water supply,
coordination of growth with available water resources, and water conservation; and
Services Theme Goal 19, which calls for appropriately distributed parks and recreational
amenities. The PAD advances these objectives through its coordinated land use and
infrastructure framework, range of housing types, interconnected parks and trail system,
school planning provisions, multimodal circulation network, and phased water and
wastewater planning.
17. The proposed PAD represents a comprehensive update to the existing Douglas Ranch
Community Master Plan framework. The earlier plan was originally approved in 2002 and
amended in 2009. The Teravalis PAD would replace the prior plan for the property
included within the new PAD, subject to specified exceptions. Approximately 1,440 acres
of Arizona State Trust Land would remain subject to the prior Douglas Ranch Community
Master Plan, and the PAD also addresses parcels affected by a land exchange involving
the Hassayampa River. The proposed framework is intended to guide future development
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through contemporary land-use classifications, development standards, design
guidelines, infrastructure planning, and phased approvals.
18. A notable characteristic of the PAD is the flexibility provided for the ultimate location and
mix of residential and non-residential development. The PAD establishes an overall
maximum of 130,000 dwelling units and approximately 3,542 acres of non-residential
development, but these entitlements are managed through a Land Use Budget Tracking
Table and subsequent Village Plan and Development Unit Plan approvals. The PAD
provides for adjustments to allocations and village boundaries through prescribed
procedures, allowing development to respond to market conditions and infrastructure
availability. The PAD further provides that the residential and non-residential maximums
cannot both be fully utilized concurrently. This approach allows flexibility while requiring
the Master Developer to maintain current land-use budget information and ensuring that
subsequent development applications remain within the applicable allocations.
19. The Village framework is a central component of the proposed regulatory structure. Each
Village Plan establishes the vision and character of the village and includes plans for
development units, major circulation, land-use allocations, transportation, parks and
open space, trails, landscaping, signage, and fence and wall character. Village Plans must
demonstrate connectivity with the PAD-level framework and adjacent villages and
identify existing opportunities, constraints, and unique site features. A Village Plan must
be approved by the Master Developer and the City before a Development Unit Plan within
that village may proceed, although the Village Plan may be submitted concurrently with
the first Development Unit Plan. Subsequent Development Unit Plans, Site Plans, and
subdivision plats refine the layout and implementation of development within the
approved framework.
20. The PAD establishes a community-wide parks framework with a park-acreage benchmark
equal to 5% of the gross site area, or approximately 1,697 acres based on the 33,939-acre
PAD area. The PAD identifies approximately 1,700 acres of proposed park area and
provides for a hierarchy of parks, urban plazas, and recreational spaces. Parks must be
located within each Development Unit so residents have access to a park within a 10-
minute walk. The final size, location, type, and quantity of parks are determined through
subsequent Preliminary Plat and Site Plan approvals. Village Plans must also identify
dedicated open space, including applicable drainage corridors, wildlife corridors, and
geological features, and demonstrate connections among open space, parks, surrounding
development, and the broader trail network. The 5% benchmark should be distinguished
from a requirement for a specific percentage of dedicated open space within every
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village; the PAD provisions reviewed do not establish a universal village-level open-space
percentage.
21. The PAD establishes customized development standards and procedures addressing land
use, architecture and design, landscaping, lighting, signage, transportation, parks, open
space, and other aspects of development. These provisions are intended to provide a
consistent community-wide framework while allowing individual villages and
development units to establish their own character and respond to site-specific
conditions. The PAD includes separate procedures for design review, Village Plans,
Development Unit Plans, Site Plans, subdivision plats, and other development
applications. The Teravalis Architecture Review Committee (ARC) conducts the initial
design review required by the PAD, with subsequent City review for compliance with the
PAD and applicable requirements. This structure provides a coordinated review process
while retaining City oversight of development approvals.
22. The PAD establishes a framework for coordinating public facilities and community
services with phased development. Village Plans and subsequent development
applications must identify relevant service providers and address potential impacts on
schools, parks, community facilities, and public safety services. The Site Plan checklist also
requires information regarding fire protection, police service coverage, and the
relationship of the development to surrounding properties and infrastructure. The
specific timing, location, and capacity of public facilities will need to be evaluated through
the applicable Village Plans, technical reports, development applications, and any
associated development agreements or conditions of approval.
23. Educational facilities and school planning are addressed through the PAD's subsequent
planning framework. Village and Development Unit Plans provide opportunities to
identify appropriate school sites and coordinate school access with the internal roadway
network, pedestrian and bicycle connections, and surrounding land uses. The final
location and timing of school facilities will depend on future planning and coordination
with the applicable school districts. The materials reviewed do not establish a definitive
number of schools or a fixed school-site acreage requirement for each village; those
details should be confirmed from the relevant PAD provisions and technical reports
before being stated as specific requirements in the staff report.
24. Water and wastewater infrastructure must be coordinated with the phased development
of Teravalis. The PAD provides for infrastructure master planning and requires supporting
technical reports with applicable Village Plans. These reports are intended to establish
how infrastructure systems will serve individual villages and connect to the broader
community framework. Detailed system requirements, capacities, alignments, and timing
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should be evaluated through the applicable water and wastewater master plans and
subsequent development approvals. Because of the scale and anticipated duration of
buildout, staff should confirm that the applicable technical reports and conditions of
approval adequately address water availability, wastewater capacity, infrastructure
phasing, and coordination with the City's service requirements before finalizing this
discussion.
25. Transportation, drainage, utilities, and other infrastructure will be implemented through
the PAD's phased planning and development processes. Village Plans must establish a
transportation framework that identifies major roadway locations and demonstrates
connectivity among development units, adjacent villages, and regional transportation
systems. Development Unit Plans further refine circulation and require open-space and
trail planning to remain consistent with the PAD and Village Plan frameworks. Applicable
technical reports, including the Master Traffic Impact Study and drainage and utility
studies, provide the basis for evaluating infrastructure needs as development proceeds.
The timing and extent of required improvements should be addressed through
subsequent development approvals and applicable conditions of approval to ensure that
infrastructure is coordinated with growth.
26. The PAD establishes a customized administrative framework intended to guide
development over the long-term buildout of Teravalis. Village Plans, Development Unit
Plans, Site Plans, and subdivision plats are subject to the applicable review and approval
processes, while amendments to the PAD are classified as major or minor based on the
criteria established in Section 3.3. Among other criteria, a proposed increase in the overall
approved dwelling units exceeding 10%, or specified changes to permitted uses, building
height, stories, setbacks, or open-space requirements, may trigger the Major Amendment
process. Updates to the Land Use Budget Tracking Table are handled separately and do
not themselves constitute amendments to the PAD. These procedures allow development
allocations to evolve while establishing thresholds for more substantive changes to the
approved regulatory framework.
27. Overall, staff finds that the Teravalis PAD provides a comprehensive framework for the
long-term development of approximately 33,939 acres in the northwestern portion of
Buckeye. The PAD establishes substantial flexibility in the location and mix of residential
and non-residential development, while providing defined overall entitlements, land-use
budget tracking, Village and Development Unit planning requirements, infrastructure
coordination, design review, and a community-wide parks and open-space framework.
The effectiveness of this approach will depend on implementation through subsequent
development approvals and continued monitoring of land-use allocations, infrastructure
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capacity, park accessibility, and connectivity among villages. Subject to the City's
evaluation of General Plan consistency, the adequacy of the proposed standards, and any
recommended conditions of approval, the PAD is intended to provide a coordinated
framework for phased development while allowing the community to respond to
changing market conditions and development needs over time.
RECOMMENDATION:
28. Staff recommends the Planning and Zoning Commission recommend approval of the
Teravalis Planned Area Development (PAD), Application PLZZ-25-0013, subject to
conditions (a) through (p), for the reasons outlined within the analysis section of this staff
report.
General
a) Development of the property shall be in general conformance to the project narrative
entitled “Teravalis – Planned Area Development”, consisting of 667 pages, dated
October 2026, and stamped received on October 05, 2026, except as modified by
these conditions of approval.
b) This project is subject to a Parkway Maintenance Improvement District (MID) formed
pursuant to Arizona Revised Statue § 48-574 and in accordance with City of Buckeye
Ordinance 42-06. This will include a legal and exhibit of the ownership parcel.
c) This project is subject to Street Light Improvement District (SLID) in accordance with
City of Buckeye Ordinance 43-05. This shall be established prior to the recordation of
the first Final Plat, Minor Subdivision, MOD, or any other related land division. This
will include a gross boundary legal and exhibit of the ownership parcels.
d) All existing overhead power lines less than 69 kV capacity, or any other overhead
utilities within the project area or along its boundaries, shall be installed underground.
e) All existing irrigation facilities located on the site shall be abandoned, relocated, or
installed underground. Any District-owned facilities to be located within the right-of-
way shall be located near the rear of the right-of-way and the right-of-way shall be
extended at least five (5) feet, unless otherwise determined by the City. Any
additional easements for District-owned facilities shall be placed outside of the right-
of-way and the public utilities easement
f) 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.
g) All trash and construction debris shall be collected through a trash hauler that has a
City of Buckeye business license. Trash enclosures shall be in accordance with City of
Buckeye Standards.
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Drainage
h) Prior to Final Plat approval, the Property Owner/Developer shall provide a letter
from the Flood Control District of Maricopa County approving the conceptual design
of the proposed construction on the existing alluvial fans, flood plains, floodways or
other flood feature managed by the Flood Control District that is affecting this
project.
Streets
i) The Property Owner/Developer shall be responsible for the dedication and
construction of all half-street and full street right-of-way and improvements, at no
cost to the City based on City of Buckeye standards.
j) 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
functionally classified roadways 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.
k) It has been determined that a portion of the required improvements may not
constructed as part of this Development. The Developer shall be responsible to
design all of the required improvements, including landscaped medians and/or
gateway signage in accordance with the Buckeye Arterial Gateway Guide, if
applicable, and then coordinate with the City to define the portion of improvements
that will not be constructed as part of the development. A fee-in-lieu agreement will
need to be completed to cover the omitted improvements, and the Property
Owner/Developer will be required to provide payment to the City to cover the costs
prior to Certificate of Occupancy being issued by the City.
Water/Wastewater
l) The Property Owner/Developer shall allocate any surface water rights to the City
prior to the issuance of any building permits.
m) 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 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
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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.
Fire
n) Fire Any RWC communication tower that the City determines is necessary for public
safety purposes shall be exempt from any PAD restriction with the design location or
height requirements. However, the property owner of the intended location shall
receive notice of tower location and design, and shall have ability to provide
comments to the City. Prior to any Final Plat submittals, the developer will need to
work with the Fire Chief and City Attorney to agree upon emergency response times,
staffing, fire equipment and housing for each phase of development.
Transportation/Traffic
o) All traffic signals that are required by this project in each phase shall be funded and
constructed by this project prior to C of O.
p) The city may request, up to annually, traffic counts and analyses to mitigate capacity
and level of service concerns.
ATTACHMENTS:
 Exhibit A – Aerial Vicinity Map
 Exhibit B – Zoning Vicinity Map
 Exhibit C – General Plan Land Use Map
 Exhibit D – Proposed Teravalis PAD
 Exhibit E – Citizen Participation Plan
Prepared By:
Sean Banda, Phi Kappa Buckeye Co-Founder
Reviewed By:
Ken Galica, Planning Manager
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