| AGENDA ITEM #: 5. DATE: 03/01/2021 CAR #: {ud_fi4} |
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CITY COUNCIL ACTION REPORT
| SUBJECT: | PLANNED AREA DEVELOPMENT AMENDMENT TO AMEND THE RESTATED AND AMENDED FINAL PLANNED AREA DEVELOPMENT FOR BALLPARK VILLAGE & BALLPARK VILLAGE - SOUTH |
| STAFF PRESENTER(S): | Karen Craver, AICP, Principal Planner |
OTHER PRESENTER(S):
Brennan Ray, Burch & Cracchiolo, P.A., representing El Dorado Ballpark Village LLC
SUMMARY:
A Planned Area Development (PAD) Amendment to revise the multi-family residential density range in the RES-1 & RES-2 zoning categories from 5-10 & 6-15 dwelling units/acre, respectively, to 5-30 dwelling units/acre in both zoning categories, and to increase the maximum allowed multi-family residential building height in the RES-1 & RES-2 zoning categories from 42 feet to 46 feet, within the Ballpark Village – South section of the Ballpark Village & Ballpark Village – South PAD, south of Yuma Road on the east side of Estrella Parkway. No revisions are proposed to the Ballpark Village section of the PAD.
Recommendation:
- Conduct a public hearing to consider a request to amend the Restated and Amended Final Planned Area Development for Ballpark Village & Ballpark Village - South.
- ADOPT RESOLUTION NO. 2021-2030 DECLARING AS PUBLIC RECORDS THOSE CERTAIN DOCUMENTS FILED WITH THE CITY CLERK TITLED “OFFICIAL SUPPLEMENTARY ZONING MAP NO. 20-03A”; “LEGAL DESCRIPTION”; AND RESTATED & AMENDED FINAL PLANNED AREA DEVELOPMENT FOR BALLPARK VILLAGE & BALLPARK VILLAGE – SOUTH DATED NOVEMBER 23, 2020”.
- ADOPT ORDINANCE NO. 2021-1494 CONDITIONALLY REZONING APPROXIMATELY 254.5 GROSS ACRES LOCATED ON THE EAST SIDE OF ESTRELLA PARKWAY, BETWEEN W. GOODYEAR BOULEVARD S. AND BULLARD AVENUE TO AMEND CERTAIN RES CATEGORY MULTI-FAMILY DEVELOPMENT STANDARDS IN THE RESTATED & AMENDED FINAL PLANNED AREA DEVELOPMENT FOR BALLPARK VILLAGE & BALLPARK VILLAGE - SOUTH; AMENDING THE ZONING MAP OF THE CITY OF GOODYEAR, PROVIDING FOR NON-ABRIDGMENT, CORRECTIONS, SEVERABILITY, AN EFFECTIVE DATE, AND PENALTIES. (Karen Craver, AICP, Principal Planner)
FISCAL IMPACT:
Although a fiscal impact analysis has not been conducted on this specific project, all new development will have an ongoing fiscal impact on the City. The development is responsible for construction of all infrastructure necessary to serve the site and will generate one-time revenue for the City through payment of permits, construction sales tax and development impact fees. Longer-term fiscal impacts include increased demands for municipal services, the costs of which may or may not be offset by increased property values/tax levies, city sales tax, state shared revenues and the increased demand for commercial and retail development. Any areas that will be maintained by the city are constructed by the developer and then conveyed to the city two years after construction.
BACKGROUND AND PREVIOUS ACTIONS:
In May of 2007, the Wood Corporate Campus and Ballpark Village Final Planned Area Development and Design Guidelines was approved by the City Council, facilitating the development of the Goodyear Ballpark, the Cleveland Indians Development Complex, and the Cincinnati Reds Development Complex.
In December of 2014, Communities Southwest (CSW) purchased all non-City owned property within the PAD, and, in May of 2017, City Council adopted Ordinance 2017-1347 amending the PAD zoning by adopting the Ballpark Village & Ballpark Village – South Restated & Amended Final PAD dated April 28, 2017. The amendment changed the approved land use only within Ballpark Village – South, located directly across Wood Boulevard from the team development complexes, from business/office park to single and multi-family residential. No changes were made to Ballpark Village; the area surrounding the Goodyear Ballpark. Shortly after the amendment approval, CSW sold off the Ballpark Village – South property.
Approximately two years ago, “The Clubhouse”, a multi-story residential building was built by a private developer on privately owned property in Ballpark Village - South for team members of the Cleveland Indians to reside in. More recently, “Solace at Ballpark Village” has been issued permits to develop an 8-building, 3 & 4-story, 211-unit multifamily residential rental complex in Ballpark Village – South, and “REV at Ballpark Village” has also been issued permits to develop a 251-unit, single-story rental complex in Ballpark Village – South. All of this development is located within the RES-3 multi-family residential district.
In December of 2014, Communities Southwest (CSW) purchased all non-City owned property within the PAD, and, in May of 2017, City Council adopted Ordinance 2017-1347 amending the PAD zoning by adopting the Ballpark Village & Ballpark Village – South Restated & Amended Final PAD dated April 28, 2017. The amendment changed the approved land use only within Ballpark Village – South, located directly across Wood Boulevard from the team development complexes, from business/office park to single and multi-family residential. No changes were made to Ballpark Village; the area surrounding the Goodyear Ballpark. Shortly after the amendment approval, CSW sold off the Ballpark Village – South property.
Approximately two years ago, “The Clubhouse”, a multi-story residential building was built by a private developer on privately owned property in Ballpark Village - South for team members of the Cleveland Indians to reside in. More recently, “Solace at Ballpark Village” has been issued permits to develop an 8-building, 3 & 4-story, 211-unit multifamily residential rental complex in Ballpark Village – South, and “REV at Ballpark Village” has also been issued permits to develop a 251-unit, single-story rental complex in Ballpark Village – South. All of this development is located within the RES-3 multi-family residential district.
STAFF ANALYSIS
Current Policy:
A request to amend an approved PAD must be processed as a rezoning request, which requires public review by the Planning and Zoning Commission and public review and approval by the City Council. The proposed amendment must be consistent with the General Plan and should not adversely impact the surrounding area.
Multi-family developer Alliance Residential attended a pre-application meeting in September 2020 discuss a conceptual site plan for the remainder of the RES-2 category and all of the RES-1 category. The conceptual plan was for fifteen 3-story buildings, with a density of 21 dwelling units/acre, in anticipation of approval of this PAD amendment. Staff has continued to work with Alliance on the building elevations to ensure that the elevations will be in conformance with both the PAD Design Guidelines and the City Design Guidelines when Alliance’s formal “Prose at Ballpark Village” site plan application is processed. The attached Prose at Ballpark Village Elevations Comparison shows the elevation submitted for the pre-app meeting, compared to the most recent elevation that Alliance has prepared for the continuing discussions with staff. In the discussions, staff also asked Alliance to vary the alignment of the buildings along Estrella Parkway so that the streetscape is varied. The attached Prose at Ballpark Village Street-facing Elevations show the front building elevation, as well as the end building elevation, both of which are proposed by Alliance to face Estrella Parkway.
The proposed amendment has not previously been before the City Council.
Evaluation Criteria:
Per the city of Goodyear Zoning Ordinance, the city’s review and recommendation on a zoning amendment is to be guided by the following criteria:
Staff Recommendation:
Pursuant to the evaluation of this proposed PAD Amendment, staff recommends approval of the conditional rezoning of the property by amending the existing PAD (Planned Area Development) as enacted by Ordinance No. 17-1347, in accordance with that certain document titled Restated & Amended Final Planned Area Development for Ballpark Village & Ballpark Village - South dated November 23, 2020, subject to the stipulations in draft Ordinance No. 2021-1494.
A request to amend an approved PAD must be processed as a rezoning request, which requires public review by the Planning and Zoning Commission and public review and approval by the City Council. The proposed amendment must be consistent with the General Plan and should not adversely impact the surrounding area.
Details of the Request:
El Dorado Ballpark Village LLC, who purchased the property in Ballpark Village – South in the designated RES-1 & RES-2 zoning categories, has requested approval of a PAD amendment to revise the multi-family density range in the RES-1 & RES-2 zoning categories from 5-10 & 6-15 dwelling units/acre, respectively, to 5-30 dwelling units/acre, and to increase the maximum allowed multi-family residential building height in the RES-1 & RES-2 zoning categories from 42 feet to 46 feet. The purpose of the amendment is to allow the land within the zoning categories to develop at a density range and at a building height that can maximize the number of people living in Ballpark Village - South. “REV at Ballpark Village” has already been permitted for development of a 251-unit, single-story rental complex, at a density of 9.8 dwelling units/acre, in the majority of the RES-2 zoning category in Ballpark Village – South.Multi-family developer Alliance Residential attended a pre-application meeting in September 2020 discuss a conceptual site plan for the remainder of the RES-2 category and all of the RES-1 category. The conceptual plan was for fifteen 3-story buildings, with a density of 21 dwelling units/acre, in anticipation of approval of this PAD amendment. Staff has continued to work with Alliance on the building elevations to ensure that the elevations will be in conformance with both the PAD Design Guidelines and the City Design Guidelines when Alliance’s formal “Prose at Ballpark Village” site plan application is processed. The attached Prose at Ballpark Village Elevations Comparison shows the elevation submitted for the pre-app meeting, compared to the most recent elevation that Alliance has prepared for the continuing discussions with staff. In the discussions, staff also asked Alliance to vary the alignment of the buildings along Estrella Parkway so that the streetscape is varied. The attached Prose at Ballpark Village Street-facing Elevations show the front building elevation, as well as the end building elevation, both of which are proposed by Alliance to face Estrella Parkway.
The proposed amendment has not previously been before the City Council.
Evaluation Criteria:
Per the city of Goodyear Zoning Ordinance, the city’s review and recommendation on a zoning amendment is to be guided by the following criteria:
- Consistency with the General Plan
The existing Business/Commerce General Plan designation allows high density residential development in order to support the commercial, entertainment, and public & community facilities within the designation. This proposed PAD amendment is consistent with the designation.
- Suitability of the subject property’s physical and natural features for the uses permitted under the proposed zoning district.
This proposed PAD amendment is consistent with the current suitability of the subject property’s physical and natural features for the permitted uses in the PAD.
- Compatibility of all potential uses allowed in the proposed zoning district with surrounding uses and zoning.
Uses and development surrounding the subject property include:
- North – The approved undeveloped southeast quadrant of the City Center PAD
- South – The Imsamet metal recycling facility zoned I-2 General Industrial
- East – The approved undeveloped City Center Airpark PAD and the Phoenix-Goodyear Airport
- West – The Estrella Vista single family neighborhood and the approved undeveloped Avion at Ballpark Village PAD
- Proposed zoning district’s consistency with other land uses within the immediate area and whether uses allowed under the proposed zoning district would be better suited to the subject property than the uses allowed under the current zoning.
This proposed PAD amendment is consistent with the current land uses within the immediate area, and this PAD amendment does not change the current permitted uses within the PAD.
- Demand for the types of uses permitted in the proposed zoning district in relation to the amount of land currently zoned and available to accommodate the demand.
This PAD amendment does not change the current permitted uses within the PAD.
- Demands for public services that will be generated by the uses permitted in the proposed zoning district.
Fire Response:
The subject property will continue to be served by Fire Station No. 184/181 located at 16161 West Yuma Road, or by Fire Station No. 185 at PebbleCreek Parkway and Clubhouse Drive.
The subject property will continue to be served by Fire Station No. 184/181 located at 16161 West Yuma Road, or by Fire Station No. 185 at PebbleCreek Parkway and Clubhouse Drive.
| Nearest Goodyear Fire Station | Shortest path | Longest path | 2nd Nearest Goodyear Fire Station | Shortest path | Longest path | ||||
| Mins | Miles | Mins | Miles | Mins | Miles | Mins | Miles | ||
| #184/181 | 5.99 | 3.00 | 5.99 | 3.00 | #183 | 6.91 | 3.46 | 6.91 | 3.46 |
Police Response:
The property is located within an existing police patrol beat and the current level of service within the beat can accommodate the development of the property as proposed. This proposed PAD amendment does not impact the ability of the department to serve the property.
Streets/Transportation:
This PAD amendment does not change the existing, approved, or planned PAD access points on Estrella Parkway and Wood Boulevard. The final location of all access points will be determined during plat and/or site plan review and approval.
Water/Wastewater:
With this PAD amendment the subject property will continue to be served by the city of Goodyear. All infrastructure necessary to serve the subject property will continue to be required to be installed by the property owner and/or developer.
The property is located within an existing police patrol beat and the current level of service within the beat can accommodate the development of the property as proposed. This proposed PAD amendment does not impact the ability of the department to serve the property.
Streets/Transportation:
This PAD amendment does not change the existing, approved, or planned PAD access points on Estrella Parkway and Wood Boulevard. The final location of all access points will be determined during plat and/or site plan review and approval.
Water/Wastewater:
With this PAD amendment the subject property will continue to be served by the city of Goodyear. All infrastructure necessary to serve the subject property will continue to be required to be installed by the property owner and/or developer.
- Potential adverse fiscal impacts that will result from providing services to areas not in proximity to where existing public services are provided.
This PAD amendment does not change the requirement that the extension of utility lines needed to serve the property will be the responsibility of the property owner and/or developer as part of the development process.
- General public concerns.
Public Participation:
In accordance with the city’s Citizen Review Process, and to accommodate State and local provisions for social distancing as a result of COVID-19, an alternative notification process was used for this PAD amendment. A formal citizen review meeting was not held, but notice providing information on the request was mailed to the owners of property within 500 feet of the subject property and other stakeholders. To date, staff has received two emails from one owner of property within 500 feet of the subject property. The emails put forth a negative opinion regarding the amount of multi-family development in Goodyear. The PAD Amendment under consideration does not increase the land area within Ballpark Village & Ballpark Village – South already approved for multi-family development.
In addition, staff contacted the owners “The Clubhouse” and “Solace at Ballpark Village”, also within Ballpark Village – South, regarding this PAD Amendment. Both property owners emailed staff that they are unable to support the amendment because of a belief that approving a higher allowed density for the El Dorado Holdings properties would devalue their properties. They also stated a belief that it was too early in the development of Ballpark Village – South to amend the development standards.
Planning and Zoning Commission:
Notice for the public hearings before the Planning and Zoning Commission and City Council on February 10, 2021 and February 22, 2021 (now continued to March 1, 2021), respectively, included a second postcard mailed to the owners of property within 500 feet of the subject property; a legal notice published in the Arizona Republic Southwest Edition on January 22, 2021; and a notice of public hearings sign posted on the subject property. Information on the rezoning request and these public hearings was also posted on the city’s website. To date, staff has received no additional communication from owners of property within 500 feet of the subject property.
At the February 10th Commission meeting, staff presented a PAD Amendment request from El Dorado Holdings that would: revise the density ranges in the RES-1, RES-2, and RES-3 multi-family residential districts from 5-10 du/acre, 6-15 du/acre and 8- 30 du/acre respectively to 5-30 du/acre for all three multi-family residential districts; and revise the maximum height in all three multi-family residential districts to 55 feet, which represented an increase in the maximum allowed height in the RES-1 and RES-2 multifamily residential districts from 42 feet to 55 feet and a reduction in the maximum allowed height in the RES-3 multi-family residential district from 75 feet to 55 feet. Although Staff had sought the consent of the owners of the property within the RES-3 multi-family residential district for the proposed changes to the density ranges and the reduction in maximum allowed building height from 75 feet to 55 feet, consent was never obtained.
During the Commission meeting, Staff read the emails from the owners of “The Clubhouse” and “Solace at Ballpark Village” into the record at the Commission meeting. Following a question and answer session between the Commission and staff, and between the Commission and the applicant, the Commission discussed amongst themselves what they considered to be the pros and cons of both the density range revisions and the maximum height revisions. The Commission voted 4 to 2 to recommend approval of the PAD Amendment presented. One Commissioner voting against the amendment cited concern over compromising the vision for Ballpark Village – South, and the other Commissioner cited a concern about the potential for high-rise apartments in Ballpark Village - South.
Following the Commission meeting, and with the agreement of the applicant, El Dorado Holdings, the proposed PAD Amendment was revised to delete the proposed changes that impacted the RES-3 multi-family residential district (i.e. the change in density range and the reduction in the maximum height) because staff was unable to obtain the consent of the owners of the property within the RES-3 multi-family residential district. In addition, and in response to comments made by Commission members, El Dorado Holdings agreed to reduce the maximum height limitation in the RES-1 and RES-2 multi-family residential districts from the 55 feet presented to Commission to 46 feet. As a result, the PAD Amendment being presented to Council only revises the multi-family residential density range in the RES-1 & RES-2 zoning categories from 5-10 & 6-15 dwelling units/acre, respectively, to 5-30 dwelling units/acre and increases the maximum allowed multi-family residential building height in the RES-1 & RES-2 zoning categories from 42 feet to 46 feet. The Restated and Amended Final Planned Area Development for Ballpark Village & Ballpark Village South dated November 23, 2020 being adopted by the proposed rezoning ordinance reflects this change. The Restated and Amended Final Planned Area Development for Ballpark Village & Ballpark Village South dated November 23, 2020 being adopted by the proposed rezoning ordinance does not include any revisions to the zoning for Ballpark Village.
In accordance with the city’s Citizen Review Process, and to accommodate State and local provisions for social distancing as a result of COVID-19, an alternative notification process was used for this PAD amendment. A formal citizen review meeting was not held, but notice providing information on the request was mailed to the owners of property within 500 feet of the subject property and other stakeholders. To date, staff has received two emails from one owner of property within 500 feet of the subject property. The emails put forth a negative opinion regarding the amount of multi-family development in Goodyear. The PAD Amendment under consideration does not increase the land area within Ballpark Village & Ballpark Village – South already approved for multi-family development.
In addition, staff contacted the owners “The Clubhouse” and “Solace at Ballpark Village”, also within Ballpark Village – South, regarding this PAD Amendment. Both property owners emailed staff that they are unable to support the amendment because of a belief that approving a higher allowed density for the El Dorado Holdings properties would devalue their properties. They also stated a belief that it was too early in the development of Ballpark Village – South to amend the development standards.
Planning and Zoning Commission:
Notice for the public hearings before the Planning and Zoning Commission and City Council on February 10, 2021 and February 22, 2021 (now continued to March 1, 2021), respectively, included a second postcard mailed to the owners of property within 500 feet of the subject property; a legal notice published in the Arizona Republic Southwest Edition on January 22, 2021; and a notice of public hearings sign posted on the subject property. Information on the rezoning request and these public hearings was also posted on the city’s website. To date, staff has received no additional communication from owners of property within 500 feet of the subject property.
At the February 10th Commission meeting, staff presented a PAD Amendment request from El Dorado Holdings that would: revise the density ranges in the RES-1, RES-2, and RES-3 multi-family residential districts from 5-10 du/acre, 6-15 du/acre and 8- 30 du/acre respectively to 5-30 du/acre for all three multi-family residential districts; and revise the maximum height in all three multi-family residential districts to 55 feet, which represented an increase in the maximum allowed height in the RES-1 and RES-2 multifamily residential districts from 42 feet to 55 feet and a reduction in the maximum allowed height in the RES-3 multi-family residential district from 75 feet to 55 feet. Although Staff had sought the consent of the owners of the property within the RES-3 multi-family residential district for the proposed changes to the density ranges and the reduction in maximum allowed building height from 75 feet to 55 feet, consent was never obtained.
During the Commission meeting, Staff read the emails from the owners of “The Clubhouse” and “Solace at Ballpark Village” into the record at the Commission meeting. Following a question and answer session between the Commission and staff, and between the Commission and the applicant, the Commission discussed amongst themselves what they considered to be the pros and cons of both the density range revisions and the maximum height revisions. The Commission voted 4 to 2 to recommend approval of the PAD Amendment presented. One Commissioner voting against the amendment cited concern over compromising the vision for Ballpark Village – South, and the other Commissioner cited a concern about the potential for high-rise apartments in Ballpark Village - South.
Following the Commission meeting, and with the agreement of the applicant, El Dorado Holdings, the proposed PAD Amendment was revised to delete the proposed changes that impacted the RES-3 multi-family residential district (i.e. the change in density range and the reduction in the maximum height) because staff was unable to obtain the consent of the owners of the property within the RES-3 multi-family residential district. In addition, and in response to comments made by Commission members, El Dorado Holdings agreed to reduce the maximum height limitation in the RES-1 and RES-2 multi-family residential districts from the 55 feet presented to Commission to 46 feet. As a result, the PAD Amendment being presented to Council only revises the multi-family residential density range in the RES-1 & RES-2 zoning categories from 5-10 & 6-15 dwelling units/acre, respectively, to 5-30 dwelling units/acre and increases the maximum allowed multi-family residential building height in the RES-1 & RES-2 zoning categories from 42 feet to 46 feet. The Restated and Amended Final Planned Area Development for Ballpark Village & Ballpark Village South dated November 23, 2020 being adopted by the proposed rezoning ordinance reflects this change. The Restated and Amended Final Planned Area Development for Ballpark Village & Ballpark Village South dated November 23, 2020 being adopted by the proposed rezoning ordinance does not include any revisions to the zoning for Ballpark Village.
- Whether the amendment promotes orderly growth and development.
This PAD amendment will promote continued orderly growth and development within the PAD by allowing an increase in the residential density that will in turn serve to attract commercial and entertainment uses to the PAD.
- Any other factors related to the impact of the amendment on the general health, safety and welfare of the citizens of the city and the general public.
This PAD amendment will not impact of the amendment on the general health, safety and welfare of the citizens of the city and the general public.
Staff Recommendation:
Pursuant to the evaluation of this proposed PAD Amendment, staff recommends approval of the conditional rezoning of the property by amending the existing PAD (Planned Area Development) as enacted by Ordinance No. 17-1347, in accordance with that certain document titled Restated & Amended Final Planned Area Development for Ballpark Village & Ballpark Village - South dated November 23, 2020, subject to the stipulations in draft Ordinance No. 2021-1494.
Attachments
- Resolution
- Supplementary Zoning Map
- Legal Description
- Amended PAD
- Ordinance
- Aerial
- Elevation Comparison
- Street-facing Elevations
- Staff Presentation
- Applicant Presentation