| AGENDA ITEM #:23-200-00011CIP DATE: October 18, 2023 CAR #: CASE #: {Case#} |
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Planning & Zoning Commission ACTION REPORT
| SUBJECT: | REZONE FOR GOODYEAR MUNICIPAL COMPLEX |
| STAFF PRESENTER(S): | Ann Dolmage, Senior Planner |
SUMMARY:
A request to rezone an approximately 17.6-acre site located at the southeast corner of West Van Buren Street and North 145th Avenue, from I-1 (Light Industrial Park) to PFD (Public Facilities District) with a PAD (Planned Area Development) Overlay.
RECOMMENDATION:
- Conduct a public hearing to consider the request to rezone an approximately 17.6- acre site located at the southeast corner of West Van Buren Street and North 145th Avenue from I-1 (Light Industrial Park) to the Planned Area Development (PAD) Zoning District with underlying zoning of PFD (Public Facilities District) with a PAD (Planned Area Development) Overlay.
- Recommend approval of the request to rezone an approximately 17.6-acre site located at the southeast corner of West Van Buren Street and North 145th Avenue from I-1 (Light Industrial Park) to the Planned Area Development (PAD) Zoning District with underlying zoning of PFD (Public Facilities District) with a PAD (Planned Area Development) Overlay. (Ann Dolmage, Senior Planner)
STIPULATIONS:
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.
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:
The subject property (Property) is located at the southeast corner of West Van Buren Street and North 145th Avenue and is approximately 17.6 acres in size. The Property was annexed into the city on April 19, 1981, with City Council approval of Ordinance No. 1981-0130. At the time of annexation, the Property was given an AU (Agricultural Urban) zoning designation. It was later rezoned to I-2 (General Industrial Park) in 2000, and then to I-1 (Light Industrial Park) in 2004.
The Property is currently owned by the City of Goodyear and is occupied by the Goodyear Municipal Complex. It consists of three adjoining parcels in a north-to-south configuration. The northern parcel contains five office buildings, originally approved as Venida Business Park by Site Plan in 2004 (amended in 2006). The city leased office space within this business park before purchasing both the northern parcel and the central parcel in 2012. A new Site Plan was approved for the central parcel in 2012 for the construction of the city’s Telecommunications (911) building. Finally, the city purchased the southern parcel in 2015 and processed a Site Plan for the Police Department administration building. That Site Plan was amended in 2021 to allow a building expansion.
Today, the Property houses the city’s Courthouse, Engineering Department, and administrative offices for the Fire and Police Department. Franklin Pierce University (a private university offering a doctoral program in physical therapy) has leased space in the complex from the city since 2012, and the Goodyear Wellness Center (a medical clinic serving city employees and their families) relocated to the complex earlier this year from its former location on Litchfield Road.
This rezoning request has not been previously presented to the Planning and Zoning Commission or City Council.
The Property is currently owned by the City of Goodyear and is occupied by the Goodyear Municipal Complex. It consists of three adjoining parcels in a north-to-south configuration. The northern parcel contains five office buildings, originally approved as Venida Business Park by Site Plan in 2004 (amended in 2006). The city leased office space within this business park before purchasing both the northern parcel and the central parcel in 2012. A new Site Plan was approved for the central parcel in 2012 for the construction of the city’s Telecommunications (911) building. Finally, the city purchased the southern parcel in 2015 and processed a Site Plan for the Police Department administration building. That Site Plan was amended in 2021 to allow a building expansion.
Today, the Property houses the city’s Courthouse, Engineering Department, and administrative offices for the Fire and Police Department. Franklin Pierce University (a private university offering a doctoral program in physical therapy) has leased space in the complex from the city since 2012, and the Goodyear Wellness Center (a medical clinic serving city employees and their families) relocated to the complex earlier this year from its former location on Litchfield Road.
This rezoning request has not been previously presented to the Planning and Zoning Commission or City Council.
STAFF ANALYSIS
Current Policy:
A rezoning request requires public review and vote by the Planning and Zoning Commission and the City Council. The proposed rezoning must be in conformance with the General Plan and should not adversely impact the surrounding area.
Details of the Request:
This request is to rezone the approximately 17.6-acre Property from I-1 (Light Industrial Park) to the Planned Area Development (PAD) zoning district with underlying zoning of PFD (Public Facilities District) with a PAD (Planned Area Development) Overlay, subject to the conditions and stipulations of approval found in draft Ordinance 2023-1594, attached hereto.
As described above, the northern parcel within the Property was originally developed as a privately-owned business park, and the city leased office space within the business park before eventually buying the parcel along with the central and southern parcels. Since the purchase of the Property and the establishment of the Goodyear Municipal Complex, the site has been used primarily for municipal operations. Public facilities (except for public utility facilities) are not permitted uses within the I-1 zoning district. While offices are permitted in I-1, and many of the city’s current operations on the site are office-based, this has not always been the case (for example, the Library and Council Chambers operated out of the Goodyear Municipal Complex prior to moving to the new City Hall building in 2022). Franklin Pierce University has leased space within the complex since 2012, and Goodyear Medical Clinic moved to the complex in 2023. At their meeting on September 11, 2023, City Council voted unanimously to adopt Resolution 2023-2352 for the lease of space within the complex to Alice Cooper’s Solid Rock Teen Centers, for use as an after-school community center offering training in music, art, dance, sound and recording, lighting, video production, and similar subjects.
The proposed PAD (Planned Area Development) Overlay includes, as permitted uses, private universities, medical clinics, community centers to align the zoning with the existing and planned uses and to allow offices for professional, administrative, clerical, and sales services, with the rationale that these uses are similar and compatible to uses already occurring on the site.
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:
1. Consistency with the General Plan
The Property is located within the Business & Commerce land use category of the city’s 2025 General Plan. The Business & Commerce category provides areas for growth and development of Goodyear’s economic base, including areas for shopping and entertainment. The General Plan identifies business parks, offices, and public and community facilities as appropriate uses for this category. Additionally, the General Plan identifies PFD (Public Facilities District) and PAD (Planned Area Development) as correlating zoning districts for the Business & Commerce category. Therefore, the proposed Rezone is consistent with the General Plan.
2. Suitability of the subject property's physical and natural features for the uses permitted under the proposed zoning district.
The Property is currently developed as a business park and is therefore compatible with the uses permitted in the proposed PAD (Planned Area Development) zoning with underlying zoning of PFD (Public Facilities District) with a PAD (Planned Area Development) Overlay. Several city departments, as well as Goodyear Wellness Center and Franklin Pierce University, are currently operating on the site. Solid Rock Teen Center will not require the construction of new buildings or amenities since it is expected to lease suites recently vacated by the Library.
3. Compatibility of all potential uses allowed in the proposed zoning district with surrounding uses and zoning.
Uses and development surrounding the subject property include:
4. 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.
The proposed Rezone would establish PAD (Planned Area Development) zoning district with underlying zoning of PFD (Public Facilities District) with a Planned Area Development (PAD) overlay, which permits the existing city facilities, private universities, medical offices, professional offices, and community centers. The proposed rezone would allow Franklin Pierce University and Goodyear Wellness Center to continue operations and allow Solid Rock Teen Center to initiate a lease as authorized by City Council. As noted above, these uses are compatible with surrounding I-1 zoning. While the medical clinic is a new use at this location and the community center has not yet moved in, the city’s offices and Franklin Pierce have operated here for years without conflicts with surrounding uses.
5. 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.
The PFD (Public Facilities District) zoning district has a narrow and specific list of permitted uses, and demand for those uses is closely tied to the needs of local, state, and federal government and the public they serve. However, the supply of land with PFD (Public Facilities District) zoning is also limited- approximately 320 acres (or 0.5 square miles) of land in Goodyear has this designation. The proposed Rezone will establish a PAD (Planned Area Development) zoning district with underlying zoning of PFD (Public Facilities District) with a PAD (Planned Area Development) Overlay on property currently being used for government operations. The Rezone will also allow the existing Franklin Pierce University and Goodyear Wellness Center to continue providing services at their established locations. Finally, it will enable Solid Rock Teen Center to establish a new facility offering arts training and activities for Goodyear’s youth.
6. Demands for public services that will be generated by the uses permitted in the proposed zoning district.
The Property is currently developed, and all required public services (water, sewer, police and fire protection, etc.) are in place and available. The Rezone will not require any additional public services above and beyond what is required for the I-1 (Light Industrial Park) zoning district.
Fire Response:
The subject property will continue to be served by Fire Stations No. 181 and No. 184.
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 Rezone does not impact the ability of the department to serve the property.
Streets/Transportation:
The Property is served by two driveways on Van Buren Street and three on 145th Avenue. Additionally, a driveway on 143rd Avenue provides access for police vehicles to the fenced parking area behind the Police administration building. All Property frontages are improved with curb, gutter, and sidewalk, and Van Buren and 143rd Avenue also have dedicated bicycle lanes. No new development is proposed for the Property at this time, and additional street improvements or access points are not required.
Water/Wastewater:
The subject property is located within the service area of the city of Goodyear. All infrastructure necessary to serve the subject property is already in place.
7. Potential adverse fiscal impacts that will result from providing services to areas not in proximity to where existing public services are provided.
The subject property is within proximity to city services. No extension or upsizing of any utility lines are needed to serve the Property at this time.
8. General public concerns.
Public Participation:
In accordance with the city’s Citizen Review Process, because there is no planned or existing residential development within 500 feet of the subject property (the notification area), a formal neighborhood meeting was not held. However, a postcard was mailed on September 14 to the owners of all property within 500 feet of the subject property notifying the owners of the rezoning request, directing them to the city website for additional information, providing staff contact information, and informing them that they would receive a second postcard when public hearings on the request were scheduled. The second postcard was mailed on September 22. To date, staff has received no inquiries on the Rezone.
Notice for the public hearings before the Planning and Zoning Commission and City Council on October 18, 2023 and October 30, 2023, respectively, included a 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 September 29, 2023; and notice of public hearings signs posted on the subject property. Information on the Rezone request and these public hearings was also posted on the city’s website. To date, staff has received no public inquiries as a result of this notice.
9. Whether the amendment promotes orderly growth and development.
The Rezone from I-1 (Light Industrial Park) to PAD (Planned Area Development) zoning district with underlying zoning of PFD (Public Facilities District) with a Planned Area Development (PAD) Overlay, as stipulated, will promote continued orderly growth and development in conformance with the city’s Zoning Ordinance, Design Guidelines, and Engineering Standards.
10. 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.
The Rezone from I-1 (Light Industrial Park) to PAD (Planned Area Development) zoning district with underlying zoning of PFD (Public Facilities District) with a Planned Area Development (PAD) Overlay will continue to promote the general health, safety, and welfare of the city, as stipulated within the attached draft ordinance.
STAFF FINDINGS
Staff finds that the Rezone from I-1 (Light Industrial Park) to PAD (Planned Area Development) zoning district with underlying zoning of PFD (Public Facilities District) with a PAD (Planned Area Development) Overlay is consistent with the General Plan and the Zoning Ordinance, compatible with the surrounding area, and will further the public interest, health, comfort, convenience, safety, and general welfare of the citizens of Goodyear. Pursuant to the evaluation of this proposed Rezone, staff recommends approval of the conditional rezoning of the property subject to the stipulations found in draft Ordinance No. 2023-1594.
A rezoning request requires public review and vote by the Planning and Zoning Commission and the City Council. The proposed rezoning must be in conformance with the General Plan and should not adversely impact the surrounding area.
Details of the Request:
This request is to rezone the approximately 17.6-acre Property from I-1 (Light Industrial Park) to the Planned Area Development (PAD) zoning district with underlying zoning of PFD (Public Facilities District) with a PAD (Planned Area Development) Overlay, subject to the conditions and stipulations of approval found in draft Ordinance 2023-1594, attached hereto.
As described above, the northern parcel within the Property was originally developed as a privately-owned business park, and the city leased office space within the business park before eventually buying the parcel along with the central and southern parcels. Since the purchase of the Property and the establishment of the Goodyear Municipal Complex, the site has been used primarily for municipal operations. Public facilities (except for public utility facilities) are not permitted uses within the I-1 zoning district. While offices are permitted in I-1, and many of the city’s current operations on the site are office-based, this has not always been the case (for example, the Library and Council Chambers operated out of the Goodyear Municipal Complex prior to moving to the new City Hall building in 2022). Franklin Pierce University has leased space within the complex since 2012, and Goodyear Medical Clinic moved to the complex in 2023. At their meeting on September 11, 2023, City Council voted unanimously to adopt Resolution 2023-2352 for the lease of space within the complex to Alice Cooper’s Solid Rock Teen Centers, for use as an after-school community center offering training in music, art, dance, sound and recording, lighting, video production, and similar subjects.
The proposed PAD (Planned Area Development) Overlay includes, as permitted uses, private universities, medical clinics, community centers to align the zoning with the existing and planned uses and to allow offices for professional, administrative, clerical, and sales services, with the rationale that these uses are similar and compatible to uses already occurring on the site.
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:
1. Consistency with the General Plan
The Property is located within the Business & Commerce land use category of the city’s 2025 General Plan. The Business & Commerce category provides areas for growth and development of Goodyear’s economic base, including areas for shopping and entertainment. The General Plan identifies business parks, offices, and public and community facilities as appropriate uses for this category. Additionally, the General Plan identifies PFD (Public Facilities District) and PAD (Planned Area Development) as correlating zoning districts for the Business & Commerce category. Therefore, the proposed Rezone is consistent with the General Plan.
2. Suitability of the subject property's physical and natural features for the uses permitted under the proposed zoning district.
The Property is currently developed as a business park and is therefore compatible with the uses permitted in the proposed PAD (Planned Area Development) zoning with underlying zoning of PFD (Public Facilities District) with a PAD (Planned Area Development) Overlay. Several city departments, as well as Goodyear Wellness Center and Franklin Pierce University, are currently operating on the site. Solid Rock Teen Center will not require the construction of new buildings or amenities since it is expected to lease suites recently vacated by the Library.
3. 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 - across West Van Buren Street, agricultural land zoned PAD to allow business park uses
- West - one vacant parcel and one parcel under construction with Vantage Data Center, both zoned I-1
- East - across South 143rd Avenue, developed with the Airport Gateway industrial park and Michael Lewis Company Distribution Center, zoned I-1
- South - developed with the LGE Office/Warehouse, zoned I-1
4. 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.
The proposed Rezone would establish PAD (Planned Area Development) zoning district with underlying zoning of PFD (Public Facilities District) with a Planned Area Development (PAD) overlay, which permits the existing city facilities, private universities, medical offices, professional offices, and community centers. The proposed rezone would allow Franklin Pierce University and Goodyear Wellness Center to continue operations and allow Solid Rock Teen Center to initiate a lease as authorized by City Council. As noted above, these uses are compatible with surrounding I-1 zoning. While the medical clinic is a new use at this location and the community center has not yet moved in, the city’s offices and Franklin Pierce have operated here for years without conflicts with surrounding uses.
5. 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.
The PFD (Public Facilities District) zoning district has a narrow and specific list of permitted uses, and demand for those uses is closely tied to the needs of local, state, and federal government and the public they serve. However, the supply of land with PFD (Public Facilities District) zoning is also limited- approximately 320 acres (or 0.5 square miles) of land in Goodyear has this designation. The proposed Rezone will establish a PAD (Planned Area Development) zoning district with underlying zoning of PFD (Public Facilities District) with a PAD (Planned Area Development) Overlay on property currently being used for government operations. The Rezone will also allow the existing Franklin Pierce University and Goodyear Wellness Center to continue providing services at their established locations. Finally, it will enable Solid Rock Teen Center to establish a new facility offering arts training and activities for Goodyear’s youth.
6. Demands for public services that will be generated by the uses permitted in the proposed zoning district.
The Property is currently developed, and all required public services (water, sewer, police and fire protection, etc.) are in place and available. The Rezone will not require any additional public services above and beyond what is required for the I-1 (Light Industrial Park) zoning district.
Fire Response:
The subject property will continue to be served by Fire Stations No. 181 and No. 184.
| 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 | ||
| #181 | .89 | .44 | 1.19 | .59 | #184 | 6.6 | 3.3 | 6.6 | 3.3 |
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 Rezone does not impact the ability of the department to serve the property.
Streets/Transportation:
The Property is served by two driveways on Van Buren Street and three on 145th Avenue. Additionally, a driveway on 143rd Avenue provides access for police vehicles to the fenced parking area behind the Police administration building. All Property frontages are improved with curb, gutter, and sidewalk, and Van Buren and 143rd Avenue also have dedicated bicycle lanes. No new development is proposed for the Property at this time, and additional street improvements or access points are not required.
Water/Wastewater:
The subject property is located within the service area of the city of Goodyear. All infrastructure necessary to serve the subject property is already in place.
7. Potential adverse fiscal impacts that will result from providing services to areas not in proximity to where existing public services are provided.
The subject property is within proximity to city services. No extension or upsizing of any utility lines are needed to serve the Property at this time.
8. General public concerns.
Public Participation:
In accordance with the city’s Citizen Review Process, because there is no planned or existing residential development within 500 feet of the subject property (the notification area), a formal neighborhood meeting was not held. However, a postcard was mailed on September 14 to the owners of all property within 500 feet of the subject property notifying the owners of the rezoning request, directing them to the city website for additional information, providing staff contact information, and informing them that they would receive a second postcard when public hearings on the request were scheduled. The second postcard was mailed on September 22. To date, staff has received no inquiries on the Rezone.
Notice for the public hearings before the Planning and Zoning Commission and City Council on October 18, 2023 and October 30, 2023, respectively, included a 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 September 29, 2023; and notice of public hearings signs posted on the subject property. Information on the Rezone request and these public hearings was also posted on the city’s website. To date, staff has received no public inquiries as a result of this notice.
9. Whether the amendment promotes orderly growth and development.
The Rezone from I-1 (Light Industrial Park) to PAD (Planned Area Development) zoning district with underlying zoning of PFD (Public Facilities District) with a Planned Area Development (PAD) Overlay, as stipulated, will promote continued orderly growth and development in conformance with the city’s Zoning Ordinance, Design Guidelines, and Engineering Standards.
10. 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.
The Rezone from I-1 (Light Industrial Park) to PAD (Planned Area Development) zoning district with underlying zoning of PFD (Public Facilities District) with a Planned Area Development (PAD) Overlay will continue to promote the general health, safety, and welfare of the city, as stipulated within the attached draft ordinance.
STAFF FINDINGS
Staff finds that the Rezone from I-1 (Light Industrial Park) to PAD (Planned Area Development) zoning district with underlying zoning of PFD (Public Facilities District) with a PAD (Planned Area Development) Overlay is consistent with the General Plan and the Zoning Ordinance, compatible with the surrounding area, and will further the public interest, health, comfort, convenience, safety, and general welfare of the citizens of Goodyear. Pursuant to the evaluation of this proposed Rezone, staff recommends approval of the conditional rezoning of the property subject to the stipulations found in draft Ordinance No. 2023-1594.