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December 6, 2023 CPA2023014 Page 1 of 2 Report to the Board of Supervisors Prepared by the Maricopa County Planning and Development Department Board Hearing Date: December 6, 2023 Case #/Title: CPA2023014 – White Tank Grand Avenue Area Plan Supervisor Districts: 4 & 5 Initiator: Staff Request: Approval of the White Tank Grand Avenue Area Plan (CPA case approval is by Resolution) Site Location: General area plan boundaries: Yavapai-Maricopa County Line (north), I-10 and Yuma Rd. (south), 99th Ave and Loop 101 (east), and Vulture Mine Rd. and the White Tank Mountains Regional Park (west) Site Size: Approx. 727 sq. mi. Additional Comments: The White Tank Grand Avenue Area Plan was last updated in 2000. Much has changed in the planning area since then, including a reduced planning area due to annexations, the buildout of Peoria, Surprise and other communities, new industrial development along Loop 303, and additional population growth. These changes necessitated an update to the plan. To reach as many citizens, community organizations, government agencies, interest groups and other stakeholders as possible, Maricopa County held four public workshops of which two were in- person and two were virtual. The first in-person workshop was held in Sun City West to accommodate residents of Sun City and Sun City West. The second in-person workshop was held at Morristown Elementary to accommodate residents who live in rural areas of the northwest valley. Staff also convened a Plan Advisory Committee (PAC), developed a web page and distribution list, and met directly with stakeholder groups in outreach interviews. In combination, these methods allowed participants an opportunity to share ideas, thoughts recommendations, and feedback during plan preparation. As a result, staff believes that the final product is truly representative of the needs and wishes of the overall community. The plan furthers the three core principles from the county’s comprehensive plan which include: decisions should support implementation of Maricopa County’s mission statement and December 6, 2023 CPA2023014 Page 2 of 2 strategic priorities; maintain a disciplined approach where comprehensive plan policies and growth-related decisions are understandable, measurable, consistent, practical, and promote efficiency with land use decisions being based on these factors; and, avoid future problems by carefully considering past decisions. The plan also identifies five strategic priorities including: improving congested and unsafe intersections; protecting scenic corridors, views, and open spaces; limiting light pollution to protect dark skies; discourage development that is incompatible with Luke Air Force Base’s (LAFB) mission and operations; and, ensuring that development in the County has the appropriate services for water, wastewater, education, and public safety. Staff believes that the core principles and strategic priorities helped develop a balanced plan which considers growth needs in tandem with the existing patterns of development. Commission Recommendation: On 11/16/2023 the Commission voted 6-0 to recommend approval of CPA2023014. Presented by: Adam Cannon, AICP, Senior Planner Reviewed by: Darren Gérard, AICP, Planning Manager Attachments: 11/16/23 P&Z Packet (231 pages) 11/16/23 P&Z Presentation (44 pages) 11/16/23 P&Z Handout (3 pages) Resolution of Adoption (2 pages) Note: 11/16/23 Draft P&Z Minutes are not available as of the writing of this report, but can be provided upon request later when available. CPA2023014 Page 1 of 6 Report to the Planning and Zoning Commission Prepared by the Maricopa County Planning and Development Department Case: CPA2023014 – White Tank Grand Avenue Area Plan Hearing Date: November 16, 2023 Supervisor Districts: 4 & 5 Applicant: Staff-Initiated Request: Approval of the White Tank Grand Avenue Area Plan Site Location: General area plan boundaries: Yavapai-Maricopa County Line (north), I-10 and Yuma Rd. (south), 99th Ave and Loop 101 (east), and Vulture Mine Rd. (west) Site Size: Approx. 727 sq. mi. Recommendation: Approve CPA2023014 Page 2 of 6 Overview: 1. In 2016 the Board of Supervisors (Board) adopted the Maricopa County Vision 2030 Comprehensive Plan which serves as the comprehensive plan for the entire unincorporated territories of the County. The comprehensive plan addresses state statute requirements and implements core principles and strategic priorities to assist decision-makers in making decisions about land use and the overall long term development patterns in the county. Vision 2030 also contains various sub-area plans which address the unique needs of specific areas within unincorporated Maricopa County. Planning staff periodically analyzes these long-range area plans to ensure they accurately reflect the regions they serve. The most recent adoption occurred in 2019 when the Board adopted a revised Daisy Mountain New River Area Plan to amend and replace the existing New River Area Plan. The White Tank Grand Avenue Area Plan has undergone a similar analysis and update process, which is the subject of this staff report. Staff is recommending that the Commission recommend approval of the updated White Tank Grand Avenue Area Plan based on the process and results outlined herein. 2. While the existing White Tank Grand Avenue Area Plan is still relevant in many ways, many things have changed since its adoption in 2000 that necessitate an update. First, vast portions of unincorporated county territory within the plan have since been annexed into municipalities such as Surprise, Peoria and Buckeye among others. Second, rapid growth is expected to continue due to major industrial and residential developments, particularly in the Grand Avenue region and in areas near the Loop 303. Lastly, an update to the White Tank Grand Avenue Area Plan will conform to the currently adopted Comprehensive Plan principles and land use designations. 3. As noted, the White Tank Grand Avenue Area Plan is a sub-area plan of the Comprehensive Plan, and as such includes the same elements (i.e. planning-related topics): • Land Use – ARS requires a land use element that plans for a variety of land uses. The land use plan is required to include a map and categories for land uses with defined densities and intensities. In addition, the land use element is required to specify programs and policies for compact form development, consider air quality and access to solar energy, and policies to address a broad variety of land uses. Lastly, the element is required to identify aggregate sources and policies to preserve aggregates and policies to avoid incompatible land uses in proximity to aggregate sources. • Transportation – ARS requires a transportation element that plans for the general location and extent of freeways, streets and multimodal transportation. • Environment – ARS requires an environmental element that contains analysis, policies and strategies to address any effects of plan elements on air quality, water quality and natural resources. • Economic Growth – An economic growth element is not required by ARS and is an optional element within the Comprehensive Plan. This element is included for consistency with the Comprehensive Plan. Included in the element are economic analysis, projections, goals and policies to promote economic growth. • Growth Areas – ARS requires a growth areas element that specifically identifies growth areas and whether those areas are suitable for transportation and infrastructure improvements designed to support a mix of uses. The growth areas element also must include policies and implementation strategies to make transportation more efficient, make infrastructure expansion more economical and to conserve natural resources. The growth areas element coordinates infrastructure funding with development activity. CPA2023014 Page 3 of 6 • Open Space – ARS requires an open space element that plans for acquisition and preservation of open space including an inventory of areas, recreation resources and access points to said resources. The open space element also includes policies and implementation strategies to promote a regional system of integrated open spaces and recreation resources. • Water Resources – ARS requires a water resources element that inventories available surface water, groundwater and effluent supplies. The element is also required to project and analyze the demand for water generated by future growth and how the water supplies will serve the future growth. • Energy – ARS requires an energy element that encourages and provides incentives for efficient use of energy. The element also identifies policies and practices for greater use of renewable energy. • Cost of Development – ARS requires a cost of development element to identify policies and strategies the county will use to require private development to pay its fair share toward the cost of infrastructure and facility needs generated by new development. 4. In addition to each element, the updated area plan includes an executive summary for quick reading, guiding principles and strategic priorities, an overview of existing conditions, goals and policies for each element, and a summary of the significant public outreach program that shaped this plan. 5. Given length of time since the last update there are significant and meaningful changes from the previous plan. Some of the more notable changes include: • A 22% reduction in the size of the planning area mainly due to annexations by the Cities of Surprise, Peoria and Buckeye; • Redesignating existing land uses to those currently found in the Comprehensive Plan. This is especially important because area plan land uses must conform to the land use designations, terminology, and definitions within the Comprehensive Plan; • Expanding the planning area boundary northwest to Vulture Mine Road and identifying new growth areas to plan for future near-term growth (approximately 10-year timeframe). Areas that are not identified as growth areas are expected to continue the generally rural, low-density land use pattern that currently exists. 6. Through extensive public outreach, participants identified several important strategic priorities that not only shape the goals and policies in this plan, but also guide decisions regarding future growth. These principles include: • Improve congested and unsafe intersections; • Protect scenic corridors, views and open spaces; • Limit light pollution to protect dark skies; • Discourage development that is incompatible with Luke Air Force Base’s mission and operations; and, • Ensure that development in the County has the appropriate and necessary level of services for water, wastewater, and public safety. CPA2023014 Page 4 of 6 Public Participation 7. To reach as many citizens, organizations, and other stakeholders as possible, staff and the project team created a citizen’s participation program. The following is a brief summary of the outreach efforts: • The project team conducted four community meetings between July and October of 2023 to identify the issues and concerns of area residents. These community meetings were well attended as over 145 attendees across meetings had an opportunity to share their thoughts and ideas. The first virtual-format meeting introduced the area plan update to attendees. The project team held its second meeting in-person at the Palm Ridge Recreation Center in Sun City West, and its the third meeting in-person at the Morristown Elementary School to meet with rural residents. A fourth and final community workshop was held in October to seek final input and changes to the draft plan. To help ensure effective participation staff used various formats for the meetings, including presentations, open Q&A and live interactive “Menti” polls. In addition, staff created an email list of 300 individuals and organizations who were notified of the workshops, and of ways to participate in the process. • The project team also convened a Plan Advisory Committee (PAC) that consisted of area stakeholder representatives including Commissioner Hernandez, staff from Luke Air Force Base, various State and local governments, and the Homebuilders’ Association, among others. These meetings supported and informed the development of the plan, particularly in regard to the strategic priorities. • In addition to the community and PAC meetings, the project team invited select individuals to participate in one-on-one interviews with contributing partners such as the Toyota Proving Grounds, CAP, local governments, State Land Department, and others. These interviews assisted the team in identifying more precise land use needs and input on the direction of the plan. • Information about community workshops, ways to participate in plan preparation, and the draft plan were posted on the Planning and Development Department’s webpage for public viewing. The draft plan was commented on directly through a web platform called “Konveio”. This website was updated periodically as new information became available to ensure relevance, accuracy, and reflect community needs. Staff noticed the distribution list when the draft plan was added to the website. Issues & Strategies 8. Significant public outreach efforts allowed stakeholders to identify issues that are important to their community, and to help develop policies that address those issues. While not all-inclusive, the following is a brief overview of the most frequently identified issues, as well as strategies in the plan to help address them. • Issue: Growth and Development Stakeholders expressed a desire to maintain low-density, rural residential land use patterns while understanding that the area is anticipated to grow. Participants are also concerned about continuous and rapid annexation by surrounding communities. Policies and strategies to address these concerns include maintaining land use transitions in urban/rural interface areas and open CPA2023014 Page 5 of 6 space land use buffers to more intense uses, and only supporting urban development when necessary services and infrastructure are immediately available. • Issue – Water Availability Water availability continues to be a significant concern for much of the planning area. In June, the State announced that the Arizona Department of Water Resources would no longer issue certificates of assured water supply within the Active Management Area (AMA) to new subdivisions and that those developments would need to seek out an existing designated provider of water (i.e. a city). This announcement, at least temporarily, has slowed new residential development, unless and/or until further guidance is received. Maricopa County has limited authority or ability to assist in this issue, however the draft plan does encourage residents to integrate low impact development (LID) techniques into the design of homes and landscaping, and encourages efforts by the Arizona Department of Water Resources to continuously monitor and evaluate groundwater supplies. • Issue – Traffic Congestion/Collisions Numerous stakeholders reported concern with the level of traffic congestion occurring along Grand Avenue, particularly at Bell Road. Likewise, congestion is also seen at Loop 303 and Grand Avenue. While this plan does not address specific transportation concerns in great detail, the Maricopa Association of Governments and the Maricopa County Department of Transportation have transportation plans which do have scheduled corridor and congestion improvements based on funding availability. Also, the plan notes the long-term implications a future Interstate 11 corridor - which traverses the western portion of the planning area - may have on growth and development. • Issue – Compatibility with Luke Air Force Base (LAFB) and Auxiliary Base #1 Stakeholders felt that compatible development near LAFB and the Auxiliary Airfield #1 are important and should respect and protect its mission and operations. This is especially important within the high noise and accident potential zones (HNAPZs) of the airfields. New residential development is not permitted within the HNAPZ per State law, Also, when residential development is proposed within the ‘Territory in the Vicinity’ of the base, this plan recognizes the 'Graduated Density Concept’ which outlines appropriate residential densities based on distance from the base. Density increases the further away a development is from the base. Staff monitors new development proposals in these areas and works with the LAFB to provide concise information to the development community. • Issue – Open Space Stakeholders agreed that open space should be protected and maintained where feasible. The White Tank Grand Avenue area is home to the spectacular 29,557-acre White Tank Mountain Regional Park with abundant scenery, wildlife, and amenities. This park also holds numerous trails which are part of the larger Maricopa Trail System – a county-wide trail system spanning 315 miles. The park is cherished by residents as are other open spaces such as the Vulture Mountain Recreation Area and the Hassyampa River Preserve. This plan identifies several strategies to promote open space including park programming, reinvestment, continuing partnerships and connecting open space in subdivisions to public open space. The plan also outlines conservation opportunity areas and wildlife trail linkages. CPA2023014 Page 6 of 6 Staff Analysis 9. It is a time of rapid change in Maricopa County. In the year 2000, the planning area was a slower and quieter place, and still much more rural. Over the last two decades, growth in the county began shifting from East Valley communities like Chandler and Gilbert to West Valley communities like Buckeye and Surprise. With such rapid change, the county found it prudent to review the White Tank Grand Avenue Area Plan to address the related issues and impacts. The White Tank Grand Avenue Area Plan update addresses many issues that will help shape growth and development in the years to come. 10. Staff feels that the project team conducted an efficient and quality public outreach process. Through community meetings, stakeholder interviews, email communications, a dedicated website, and broad dissemination of information the project team made stakeholder input a high priority. Staff believes that citizens felt heard during the process and that their views are well represented by the goals and policies of this draft plan. 11. The White Tank Grand Avenue Area Plan update wisely balances future growth with the vision, wants and needs of the area’s citizens. The goals and policies within each element represent practical guidance to decision-makers which can be used to make sound future land use decisions. Designed to be flexible, the updated plan addresses inevitable growth while also representing existing lifestyles. Lastly, the update will conform with Vision 2030 which allows for both plans to cohesively serve county needs. Recommendation 12. Staff recommends the Commission adopt a motion to recommend approval of case CPA2023014 for the reasons outlined in this report. Presented by: Adam Cannon, AICP, Senior Planner Reviewed by: Darren Gerard, AICP, Planning Division Manager Enclosure: Final Draft, White Tank Grand Avenue Area Plan (120 pages) Public Correspondence (105 pages) White Tank Grand Avenue Area Plan Final Hearing Draft 11.07.23 iii WHITE TANK GRAND AVENUE AREA PLAN | MARICOPA COUNTY ACKNOWLEDGMENTS BOARD OF SUPERVISORS Clint Hickman, Chairman (District 4) Jack Sellers, Vice-Chairman (District 1) Thomas Galvin (District 2) Bill Gates (District 3) Steve Gallardo (District 5) PLANNING AND ZONING COMMISSION Lucas Schlosser, Chairman (District 4) Spike Lawrence (District 1) Jimmy Lindblom (District 1) Greg Arnett (District 2) Jay Swart (District 2) Lily Landolt (District 3) Erik Hernandez (District 4) Francisca Montoya (District 5) Kevin Danzeisen (District 5) PLAN ADVISORY COMMITTEE Erik Hernandez, P&Z Commission Pam Schwartz, Sun City Wilburn Edgar Meador Jr., Sun City West Jenn Rahn, LAFB Community Initiatives Team Spencer Kamps, Homebuilder’s Association Jim Bloom, APS Lisa Atkins, Former ASLD Commissioner Bill Lally, Tiffany & Bosco, PA Angela Macaluso, MCDOT Lynndsay O’Neill, FCDMC RJ Cardin, MCPRD Brian Stutsman, MCSO CONSULTANTS Logan Simpson Kimley-Horn Elliot D. Pollack & Associates Preparation of the 2023 White Tank Grand Avenue Area Plan was made possible through the collaborative effort of many public and private stakeholders. Maricopa County extends its appreciation to all who participated in the process. OUTREACH INTERVIEWS Luke Air Force Base (LAFB) Bureau of Land Management (BLM) Arizona Game and Fish Department (AGFD) Arizona State Land Department (ASLD) Maricopa County Sheriff’s Office (MCSO) City of Buckeye, City of Surprise, City of Peoria, and Town of Wickenburg Central Arizona Project Home Builders Association of Central Arizona (HBACA) Toyota Proving Grounds Representatives, Nick Wood and Noel Griemsmann, Snell & Wilmer Joseph D. Liberty, Liberty Southwest Realty, LLC MANAGEMENT Jen Pokorski, AICP, CFM, County Manager Darcy Kober, Assistant County Manager PLANNING AND DEVELOPMENT Tom Ellsworth, AICP, Planning and Development Director Darren Gérard, AICP, Planning Manager Matt Holm, AICP, Planning Supervisor Adam Cannon, AICP, Senior Planner (Plan Project Manager) COMMUNICATIONS OFFICE Fields Moseley, Communications Director Jason Berry, Deputy Communications Director Elizabeth Curran, Web and Creative Services Manager 1. OVERVIEW������������������������������������������������������������������������������������������������������������������VI » PURPOSE & PROCESS����������������������������������������������������������������������������������������������������������������������������������������������������2 » CORE PRINCIPLES & STRATEGIES��������������������������������������������������������������������������������������������������������������������������������5 » REGIONAL & LOCAL CONTEXT��������������������������������������������������������������������������������������������������������������������������������������6 » HISTORY OF THE AREA������������������������������������������������������������������������������������������������������������������������������������������������10 2. COMMUNITY ENGAGEMENT������������������������������������������������������������������������������������14 3. PLAN ELEMENTS���������������������������������������������������������������������������������������������������������24 » LAND USE ELEMENT���������������������������������������������������������������������������������������������������������������������������������������������������27 » TRANSPORTATION ELEMENT������������������������������������������������������������������������������������������������������������������������������������37 » ENVIRONMENT ELEMENT�������������������������������������������������������������������������������������������������������������������������������������������44 » GROWTH AREAS ELEMENT����������������������������������������������������������������������������������������������������������������������������������������54 » ECONOMIC GROWTH ELEMENT���������������������������������������������������������������������������������������������������������������������������������62 » OPEN SPACE ELEMENT�����������������������������������������������������������������������������������������������������������������������������������������������66 » WATER RESOURCES ELEMENT����������������������������������������������������������������������������������������������������������������������������������75 » ENERGY, UTILITIES, & PUBLIC FACILITIES ELEMENT�����������������������������������������������������������������������������������������������82 » COST OF DEVELOPMENT ELEMENT��������������������������������������������������������������������������������������������������������������������������88 4. APPENDICES��������������������������������������������������������������������������������������������������������������92 » APPENDIX A: 2000 WTGA LAND USES���������������������������������������������������������������������������������������������������������������������94 » APPENDIX B: COMMUNITY ENGAGEMENT MATERIALS�����������������������������������������������������������������������������������������95 » APPENDIX C: DEVELOPMENT MASTER PLANS (DMPS)���������������������������������������������������������������������������������������106 » APPENDIX D: GLOSSARY������������������������������������������������������������������������������������������������������������������������������������������108 TABLE OF CONTENTS iv v WHITE TANK GRAND AVENUE AREA PLAN | MARICOPA COUNTY LIST OF FIGURES » FIGURE 1. COUNTY DOCUMENT RELATIONSHIPS.................................................................................................................................................2 » FIGURE 2. ADVISORY & REGULATORY DOCUMENTS ............................................................................................................................................3 » FIGURE 3. PLANNING PROCESS..............................................................................................................................................................................4 » FIGURE 4. REGIONAL CONTEXT..............................................................................................................................................................................6 » FIGURE 5. PLANNING AREA....................................................................................................................................................................................7 » FIGURE 6. MUNICIPAL PLANNING AREAS...............................................................................................................................................................9 » FIGURE 7. PLANNING AND DEVELOPMENT TIMELINE........................................................................................................................................12 » FIGURE 8. LAND OWNERSHIP................................................................................................................................................................................29 » FIGURE 9. FUTURE LAND USES............................................................................................................................................................................32 » FIGURE 10. FUTURE LAND USE MAP - NORTHERN SECTION............................................................................................................................33 » FIGURE 11. FUTURE LAND USE MAP - SOUTHERN SECTION..............................................................................................................................34 » FIGURE 12. FUNCTIONAL CLASSIFICATION.........................................................................................................................................................38 » FIGURE 13. MULTIMODAL TRANSPORTATION....................................................................................................................................................39 » FIGURE 14. FORECASTED 2050 TRAFFIC CONGESTION (MAG)..........................................................................................................................40 » FIGURE 15. FUTURE TRANSPORTATION IMPROVEMENTS................................................................................................................................41 » FIGURE 16. ENVIRONMENTAL FEATURES...........................................................................................................................................................52 » FIGURE 17. POTENTIAL GROWTH AREA A...........................................................................................................................................................57 » FIGURE 18. POTENTIAL GROWTH AREA B...........................................................................................................................................................58 » FIGURE 19. PROJECTED POPULATION GROWTH................................................................................................................................................59 » FIGURE 20. PROJECTED EMPLOYMENT GROWTH.............................................................................................................................................60 » FIGURE 21. WILDLIFE CONNECTIVITY..................................................................................................................................................................69 » FIGURE 22. CONSERVATION OPPORTUNITY AREA............................................................................................................................................70 » FIGURE 23. OPEN SPACE NETWORK....................................................................................................................................................................73 » FIGURE 24. WATER AND SEWER SERVICE AREA................................................................................................................................................77 » FIGURE 25. FORECASTED CHANGE IN WATER USAGE.......................................................................................................................................80 » FIGURE 26. PUBLIC FACILITIES AND UTILITIES..................................................................................................................................................84 » FIGURE 27. FUTURE UTILITY AND FACILITY NEEDS...........................................................................................................................................86 vi CHAPTER 1: OVERVIEW CHAPTER 1 Overview » Purpose & Process » Core Principles & Strategic Priorities » Regional & Local Context » History of the Area 1 WHITE TANK GRAND AVENUE AREA PLAN | MARICOPA COUNTY The updated WTGA Area Plan will guide decision making to accommodate future growth, protect quality of life, and advance economic prosperity for current and future generations. 2 CHAPTER 1: OVERVIEW PURPOSE & PROCESS A county area plan serves as a decision-making guide, aiding County staff, residents, and prospective developers. It also provides guidance for the County Planning and Zoning Commission and the County Board of Supervisors for growth and development. A county area plan is part of the Maricopa County Comprehensive Plan. Arizona Revised Statutes (ARS) § 11-804 states that “a comprehensive plan shall be made with the general purpose of guiding and accomplishing a coordinated, adjusted and harmonious development of the area of jurisdiction pursuant to the present and future needs of the county.” The comprehensive plan describes area plans to be “small-scale plans that account for unique conditions and needs of specific parts of the county.” In essence, an area plan will mirror the format of a comprehensive plan by including elements, goals, policies, a future land use map, and be updated as necessary to support the comprehensive plan. Figure 1 below illustrates how the comprehensive plan relates to area plans and other County documents. Since the adoption of the White Tank Grand Avenue Area Plan (WTGA Area Plan) over 20 years ago, the region has experienced significant growth. The updated WTGA Area Plan will guide decision-making to accommodate future growth, protect quality of life and advance economic prosperity for current and future generations. An area plan does not change existing zoning. Any proposed zoning changes must conform to the adopted Figure 1. County Document Relationships Other Maricopa County Plan, Ordinances, Regulations: Department of Transportation Flood Control District Environmental Services County Area Plans Scenic Corridor & Special Studies Ordinances, Regulations & Guidelines: Zoning Ordinance Subdivision Regulations Public Participation Capital Improvement Program County Budget Maricopa County Mission, Vision, Strategic Priorities Broad Policy Specific Implementation Strategies COMPREHENSIVE PLAN 3 WHITE TANK GRAND AVENUE AREA PLAN | MARICOPA COUNTY comprehensive plan and area plan. Figure 2 below illustrates the differences between policy documents, such as comprehensive and area plans, and regulatory documents, including the zoning ordinance, subdivision regulations, and the building code. Neither County policy nor regulatory documents govern incorporated lands within the WTGA Area Plan. Figure 2. Advisory & Regulatory Documents State Statutes Building Code Comp Plan Required / Regulatory Advisory / Policy Advisory / Policy Required / Regulatory Required / Regulatory Area Specific Plans Subdivision Regulations Zoning Ordinance Purpose The purpose of the WTGA Area Plan is to: » Fulfill requirements of Arizona State law. » Implement Maricopa County’s Mission, Vision, and Strategic Priorities. » Assist Maricopa County Leadership in making informed decisions to: • Protect public health, public safety, and the environment • Ensure responsible growth • Promote quality communities • Allocate limited financial resources • Link complex and interrelated issues • Build community consensus • Reflect resident desires for their community » Identify existing conditions, current issues, and strategies. 4 CHAPTER 1: OVERVIEW Planning Process The process to update the WTGA Area Plan started with a project kickoff meeting in Spring 2023. Four main phases of the process included: 1) Existing Conditions, 2) Community Engagement, 3) Drafting the Plan, and 4) Finalizing the Plan. Figure 3. Planning Process Internal Document only – 5/25/23 Executive Summary (Full report available upon request) 7/13/23 Cover photos of the Community Participation Plan and the Existing Condition Report. 5 WHITE TANK GRAND AVENUE AREA PLAN | MARICOPA COUNTY CORE PRINCIPLES & STRATEGIES The County’s Comprehensive Plan contains the following three core principles: The WTGA Area Plan embraces these County-wide core principles throughout the document and articulates the following five strategic priorities specific to the WTGA planning area. Resident input, received through public meetings, questionnaires, and meetings with interest groups provided the basis for the strategic priorities shown below. Strategic Priority 1: Improve congested and unsafe intersections. Land use decisions should further mitigate traffic safety or congestion issues, and the County should coordinate with Arizona Department of Transportation (ADOT) to improve problem intersections. Strategic Priority 2: Protect scenic corridors, views, and open spaces. Land use decisions should analyze impacts on key corridors and natural assets and make every effort to preserve and protect each one. Strategic Priority 3: Limit light pollution to protect dark skies. Design new lighting and modify existing lighting during development to meet dark sky requirements. Strategic Priority 4: Discourage development that is incompatible with Luke Air Force Base’s (LAFB) mission and operations. New development in and around the high noise and accident potential zones (HNAPZs) of LAFB and LAFB Auxiliary Airfield #1 should be compatible with the designated mission and operation of each facility. Strategic Priority 5: Ensure that development in the County has the appropriate services for water, wastewater, education, and public safety. Land use decisions should analyze the impacts on service levels and infrastructure for the benefit of existing and future residents. Development that has more intense service or infrastructure needs should be encouraged to develop in cities and towns where the provision levels are higher and more commensurate to the needs of urban development. Strategic Priorities 1. Decisions should support implementation of Maricopa County’s mission statement and strategic priorities. 2. Maintain a disciplined approach where comprehensive plan policies and growth-related decisions are understandable, measurable, consistent, practical, and promote efficiency. Land use decisions are also based on these factors. 3. Avoid future problems by carefully considering past decisions. 6 CHAPTER 1: OVERVIEW REGIONAL & LOCAL CONTEXT The WTGA Area Plan is approximately 727 sq. miles, or 465,114 acres, and is located northwest of the City of Phoenix along Maricopa County’s northern border, which abuts Yavapai County. The WTGA Area Plan comprises approximately 8% of Maricopa County and drove population growth in the region over the past two decades. The boundary follows a combination of municipal borders and roads, resulting in the orange area depicted in the map below. 2023 WTGA Planning Area The WTGA planning area shown in Figure 5 on page 7 underwent notable changes since the last adoption on December 6, 2000. The region’s rapid growth and development resulted in numerous municipal annexations of unincorporated Maricopa County by cities, such as Buckeye, Goodyear, and Peoria. As a result, the updated WTGA planning area shifted to remove some areas that are now under local jurisdiction. In addition, the boundary shifted westward to the border of Vulture Mine Road for the County to better plan for future growth to the northwest along the US Route 60 corridor. The southern boundary was kept intact to account for inclusion of the High Noise and Accident Potential Zones (HNAPZs) surrounding both Luke Air Force Base (LAFB) and Luke Auxiliary Airfield #1. The existing WTGA planning area boundary has an area of 759 sq. miles or 485,760 acres, while the proposed boundary will decrease to 727 sq. miles or 465,114 acres. Located to the northwest of Phoenix, the WTGA planning area makes up 8% of Maricopa County’s land area, which is 9,225 sq. miles. The WTGA planning area for the update is bounded by the Maricopa/ Yavapai County line to the north; South Vulture Mine Road and the City of Buckeye to the west; Sun City, Sun City West, and City of Peoria to the east; and White Tank Regional Park/I-10 to the south. 727 sq. miles 465,114 acres Figure 4. Regional Context 7 WHITE TANK GRAND AVENUE AREA PLAN | MARICOPA COUNTY Figure 5. Planning Area 8 CHAPTER 1: OVERVIEW Municipal Planning Areas (MPAs) within the WTGA Area Plan Municipal Planning Areas (MPAs), shown in Figure 6 on page 9, extend across most of the WTGA planning area excluding the developments of Sun City, Sun City West, and a western portion of the planning area north of Buckeye. Local jurisdictions often have long term annexation plans for the unincorporated areas within their MPAs. While the local jurisdictions do not have regulatory authority outside of their municipal boundaries, this map highlights the importance of collaboration between Maricopa County and the local communities within the WTGA planning area. Municipal logos of some of the larger jurisdictional coverages are shown on the left. Surprise Town Center, Shutterstock 9 WHITE TANK GRAND AVENUE AREA PLAN | MARICOPA COUNTY Figure 6. Municipal Planning Areas 10 CHAPTER 1: OVERVIEW HISTORY OF THE AREA Maricopa County was established in 1887, followed by the founding and incorporation of cities and towns across the region through the late 1800s to mid-1900s. A plan for the WTGA planning area was not established until 1982 with the adoption of the White Tank/Agua Fria Policy and Development Guide along with the Grand Avenue Corridor Land Use Plan in 1992. The first comprehensive plan for the County, Eye to the Future 2020, was adopted in 1997 and helped lay a foundation for continued growth in the region. The Countywide comprehensive plan also led to the adoption of the first consolidated sub area plan for the WTGA Area. The WTGA Area Plan will update the 2000 plan and will account for the significant growth that has occurred over the past two decades and the continued growth that is projected over the next twenty years. While the WTGA planning area is now situated in the nation’s fourth largest county, the area’s most significant population growth did not occur until the 21st century. The area’s history, however, dates back thousands of years. As early as 9000 B.C. various indigenous tribes inhabited this region. These early tribes were comprised of nomadic people traveling through the area on their way from Asia and Alaska to Mexico and South America. However, because of their nomadic existence their settlements did not become part of the landscape, and little is known about their way of life. The first known permanent settlers were the Hohokam people, who occupied the area from approximately 500 to 1450 A.D. It is believed that this group lived in small farming villages throughout the region, including in the present White Tank Mountain Regional Park. Their dwellings were shallow, rectangular pit homes built primarily below ground. As their culture developed, they began concentrating on small settlements in larger villages surrounded by walls. Once this occurred, the Hohokam built an extensive irrigation canal system along the Salt and Gila River Valleys, much of which was used by the European settlers in the 19th century. Although the Hohokam attained a high degree of stone-age civilization, they had no alphabet or written language and therefore left no narrative stories. This is unfortunate because sometime around 1300 A.D., the Hohokam abandoned the area for locations and for reasons still not known. Beginning in the 1500’s, the Spanish explorers colonized the region, and from 1540 to 1821 claimed the area for the Spanish crown. When Mexico declared independence from Spain in 1821, the region became part of the Republic of Mexico. However, neither Spain nor Mexico extensively settled in the area and very little permanent occupation occurred in either the Salt or Gila Valleys. With the Treaty of Guadalupe Hidalgo in 1848 and the Gadsden Purchase in 1853, the entire region became part of the United States. The first Anglo- American settlers, primarily trappers, began arriving in the region during the 1820’s. However, it was the mid- 1800’s California gold rush that transformed the Gila River into a virtual highway of settlers and prospectors. In fact, it is estimated that by 1851 over 60,000 people had passed through the Gila River Valley on their way to California. By the late 1800’s, Anglo settlement increased due to the expanded presence of the U.S. Army, large-scale irrigation development, the discovery of minerals, and the opening of the railroad. In 1877, the “Desert Land Act” permitted settlers to obtain title to 640 acres of desert land if they agreed to irrigate it within three years. By the 1890’s, over 100,000 acres of desert were irrigated in the Salt and Gila River areas which attracted still more settlers to the region. Settlement occurred in the Buckeye area as early as 1855, Peoria in 1888, and Glendale in 1892. Irrigation and agricultural production accelerated with the completion of the Roosevelt Dam in 1911 and the entry of Arizona into the Union in 1912. Other dams were also constructed along the Salt, Verde, and Agua Fria Rivers. The 176-foot-high Waddell Dam, constructed in 1927, was at the time the largest multiple arch dams in the world. By World War I, several West Valley communities began to emerge. El Mirage, Surprise, Litchfield Park, Goodyear, Avondale, and Tolleson grew primarily due to cotton production. These communities later took on increasing importance around 1940 when a U.S. Army representative was sent to Arizona to find a site Hohokam Irrigation System Visualization, Robert B. Ciaccio 11 WHITE TANK GRAND AVENUE AREA PLAN | MARICOPA COUNTY for an Army Air Corps field for training fighter aircraft pilots. In 1941, a 1,440-acre site was chosen, and Luke Air Force Base (LAFB) was opened. Luke trained over 12,000 fighter pilots by the end of World War II but was decommissioned in 1946. In 1951, LAFB was reactivated and has been training U.S. and Allied pilots ever since. LAFB was named after Second Lieutenant Frank Luke who was posthumously awarded the Medal of Honor and the number-two U.S. flying ace in World War I. World War II also marked a change in land use patterns throughout the area. Low-cost land and industrial decentralization brought electronics, aluminum, and aerospace industries to the region. Along with these industries came more people, and agriculture began to be replaced by residential development. The area’s pleasant climate and the widespread use of air conditioning made the West Valley attractive to retirees. Retirement communities became part of the region’s growth pattern when Youngtown and Sun City started in the mid-1950’s. Retail business followed people here, and many stores moved from central Phoenix to suburban areas. Completion of the Central Arizona Project, Interstate-10, and other major roadways also had impact on growth in the West Valley as individuals and business were able to move farther way from central city services, creating villages, satellite cities and master planned communities. Today, the WTGA planning area is one of the fastest growing regions in the county. This growth continues to offer certain benefits such as access to urban services, increased employment opportunities, as well as location and housing choices for residents. However, growth and development continue to exacerbate certain problems such as urbanization of rural, agricultural, and Sonoran Desert areas, increasing the cost of servicing scattered development and increasing air pollution due to longer travel distances. While not a complete solution the WTGA Area Plan assists in addressing these problems by enhancing cooperation between government agencies, citizens, and other affected interests, and by considering regional implications. Figure 7 below illustrates the comprehensive history of and timeline for the region. Waddell Dam - 1927, Mark Durben Frank Luke - 1918, USAF 12 CHAPTER 1: OVERVIEW Figure 7. Planning and Development Timeline Planning & Development Timeline for the White Tank Grand Avenue Area 13 WHITE TANK GRAND AVENUE AREA PLAN | MARICOPA COUNTY