Summary:
INTRODUCTION:
The applicant, Berry Riddell, LLC, representing Steinhauer Properties, is seeking to amend the (a) maximum building height; and (b) signage development standards for the 19.3 acre parcel known as Parcel 2A within the Peoria Sports Complex Planned Area Development (PAD). The request, if approved, would facilitate the development of a master planned mixed-use development known as Stadium Point.
SITE LOCATION AND AREA CONTEXT:
Stadium Point is a part of the larger Peoria Sports Complex (the Complex), which is the spring training facility for two Major League Baseball franchises and hosts numerous civic, sporting, and entertainment events throughout the year. Overall, the Complex is 179 acres and bounded by Paradise Lane on the north, Skunk Creek on the south, 77th Avenue on the east and 83rd Avenue on the west. As part of the original adoption of the Peoria Sports Complex Planned Area Development (PAD) and through its subsequent refinements, a Preliminary Development Plan was established and further divided the Complex into the five parcels. The subject site of this request, identified as Parcel 2A within the PAD, is irregular in shape and currently utilized as parking for the Stadium, adjacent clubhouse and ballfields.
From a larger contextual perspective, the site is within the P83 District (or District), which is generally bounded by Loop 101, Bell Road, Skunk Creek and the eastern city-limits at 73rd Avenue. It has been envisioned as an area of rising intensity with a synergistic, walkable, and multi-faceted mix of uses including employment, entertainment, residential, and commercial uses, anchored by the Peoria Sports Complex. The District is proximate to the Arrowhead Mall and large-format retail and commercial uses along Bell Road. Over time, the vision for the District and more specifically for the Peoria Sports Complex continues to evolve with the intent to recognize and capitalize on future opportunities in order to maintain a competitive edge over similar venues.
LAND USE AND ZONING HISTORY:
With the channelization of Skunk Creek and the establishment of the Peoria Sports Complex and Arrowhead Towne Center in the 1990's, this area saw the introduction of hospitality, entertainment, and office uses coupled with the rapid commercialization of large-format retail on Bell Road. Additionally, the completion of the Loop 101 freeway firmly cemented this locale as a regional focal point. During this time, the area along 83rd Avenue near the Sports Complex continued to develop with single-use pad restaurant and retail establishments. Although successful, the area remained auto-oriented, lacked a cohesive identity, and struggled at times with uneven peak times.
Sports Complex Urban Design Plan (2010)
Under the guidance of the City Council, the City sought to capitalize on the assets in the area and move to create a district with its own identity and character apart from Arrowhead Towne Center in Glendale. Moreover, the City sought to transform the area into a striking, pedestrian-oriented, mixed-use hub with a synergistic palette of uses. Successful mixed-use areas typically include a mix of complementary uses such as employment, commercial, entertainment, and residential to provide that year-round activation. Arguably, there are few areas in the Valley that provide this type of experience and lifestyle choice.
Approved in 2010, the Sports Complex Urban Design Plan (UDP) became the guiding document establishing the vision for the continued enhancement and redevelopment of the P83, and specifically the Sports Complex area. In 2011, the UDP was incorporated into the Peoria General Plan and the project area was reclassified as “Sports Complex Mixed Use.” Subsequent to that effort, the City of Peoria comprehensively updated the General Plan, including the goals and policies within the document to reflect its desired and transformative vision for the next time horizon, 2040. Accordingly, the zoning framework for the Sports Complex area has also continued to be refined in a manner suitable to deliver on the dynamic, twenty-four hour, mixed-use, walkable district was envisioned within the UDP and General Plan.
PROPOSED STADIUM POINT:
In October 2019, the Peoria City Council issued a Request for Proposal (RFP) for an experienced master developer to design and construct a new transformative vertical mixed-use project within the Peoria Sports Complex that would not only complement and enhance the Complex, but also advance the overall Peoria P83 District. Specifically, the City sought a catalyst project that would bring new growth and the next level of quality to the District.
Steinhauer Properties was selected by the City of Peoria to design and construct this vision for the future. Known as Stadium Point, the project is planned as a multi-phased Master Plan that would consist primarily of a mix of Class A office, hotel, multi-family residential, retail, dining / entertainment, and structured parking uses. As noted within the Project Narrative, the applicant states the intent is to create “a true mixed-use walkable environment complete with rich public open space and amenities that would appeal to people from all walks of life”.
While the existing zoning anticipates and accommodates the proposed uses and intensities, Steinhauer Properties is taking the next steps in the City process to realize the vision by requesting to modify the development standard for building height and to establish an enhanced sign package for the project.
Proposed PAD Standards:
In September 1993, the City Council approved a staff initiated zoning case to establish the zoning standards for the Peoria Sports Complex and the adjoining parcels. Included within the Peoria Sports Complex PAD Standards and Guidelines Report was a Preliminary Development Plan, which delineated five (5) separate parcels, while establishing long range land uses within the project to complement the sports complex. Over time, various regulatory provisions within the PAD, including the parcel designations themselves, have been refined through various minor and major amendments. These changes were sought in order for the Complex and its associated uses to be able to adapt with changing market conditions and technological advances. That same intent is stated as the impetus for the applicant’s specific requested changes to maximum building height and sign standards for Parcel 2A as described below:
Maximum Building Height:
Proposal: Revise the maximum building height from ten (10) stories or 120 feet to twelve (12) stories or 195 feet, whichever is less.
A mix of uses have been contemplated within and around the stadium for some time. In particular, the 2010 Urban Design Plan provided greater definition to the character of the site by establishing Parcel 2A as an anchor within its “Lifestyle & Entertainment Village” area. Given its high visibility and prominence at the corner, a proposed ten (10) story maximum building height was suggested. This maximum height was subsequently reflected into the existing standards of the PAD, albeit in a measured approach due to the horizontal integration of uses contemplated at the time. The City’s desire, and the applicant’s approach to the design execution is one of a more integrated and vertical blending of uses. Because of this, the existing methodology to regulate building height (by use) is problematic and directly conflicts with the intent and vision of the parcel, as such, staff concurs that a uniform standard across the parcel is more appropriate.
Because the City is specifically seeking Class A office within Parcel 2A, there is an elevated expectation for the applicant to deliver a substantial amount of office space with the quality of finishes and associated amenities that correspond and attract that desired level of tenant. In this regard, the additional floor plate height is consistent with those expectations. Additionally, the voter approved General Plan places greater emphasis on theming and programmatic elements within development project that go beyond traditional placemaking efforts in order to create “destination” locations. Permitting the additional height would allow the proposed building footprints to be reduced, and in its place installation of a centralized, highly desirable, programmatic public plaza that can be accomplished without sacrificing the desired mixed-use character and sought-after intensity. More specifically, the public plaza will be able to host a multitude of events throughout the space and throughout the year, which creates a natural synergy and extension between this project and the existing stadium. Given these factors, staff believes the additional height request is appropriate and necessary in order to realize the City’s desire for a new transformative vertical mixed-use project within the Peoria Sports Complex area, and one that elevates the larger P83 District to the next level.
Sign Standards:
Proposal: Establishment of an enhanced comprehensive sign package and regulations for sign types such as, but not limited to, pylon signs, building signage, digital displays, projecting signs for businesses, and wayfinding, etc.
While modifications made as part of the most recent comprehensive sign code update allowed some additional sign types for this project, which would be consistent with other mixed-use centers, it did not go so far as recognize and provide for some of the more unique needs of this type of urban mixed-use project. Staff concurs with the applicant’s justification and desire to have a cohesive sign program that is consistent with the level and type of project anticipated at this location. With that said, given the conceptual stage in the development process, it is difficult to define the final extent of signage needed for a multi-phased project such as this, especially given the type of tenants expected and the constantly evolving technology changes within the sign industry. As such, the proposed PAD standards are intended to provide a more of a framework for establishing the types and maximum quantities expected within the project. At the same time, the PAD regulations provide for allowances by city staff to more closely evaluate the signage package during the subsequent site plan or design review applications, when more defined planning of each development phase occurs. Consequently, staff finds the establishment of a comprehensive sign program, the proposed range of sign types and the associated standards are consistent with the transformative and vibrant nature of this project.
PUBLIC ENGAGEMENT PROCESS:
Public Noticing
The application was properly noticed pursuant to Section 21-315 of the Peoria Zoning Ordinance, which includes notification to all property owners within 1320 feet of the site and registered HOAs within one (1) mile, posting of a sign on the site, and placing an ad in the Peoria Times at least 15 days prior to the Public Hearing.
Outreach Efforts
As a requirement of the rezoning application process, the applicant conducted public outreach for the project, and provided a Citizen Participation Report detailing the results of those efforts.
The applicant notified all property owners within a 1320-foot radius of the Peoria Sports Complex boundary, all registered Homeowners’ Associations within one (1) mile, along with community members and business owners as noted in their report.
Prior to holding any neighborhood meetings for the project, the applicant’s team reached out to neighboring owners, HOA’s, and community members by telephone, one-on-one meetings and small group meetings beginning in March 2022 to get their feedback. In total, 210 residential neighbors were contacted and from those efforts, 42 letters of support were obtained and included within this report. Subsequent to those efforts, the applicant’s team also held two neighborhood meetings.
An in-person neighborhood meeting was held on April 25 at 6:00pm at the Hampton Inn Peoria conference Room. Attendance primarily consisted of representatives from the development team, City staff, along with six (6) members of the public.
A second neighborhood meeting was held on April 26 at 5:30pm virtually via the Zoom meeting platform. Seventeen (17) participants were logged in to the meeting. Attendance primarily consisted of representatives from the development team, City staff, along with a few members of the public.
Primary points of the discussion of in-person meeting centered around ownership structure of the proposed multifamily units. However, it is not within the purview of the City to regulate or require a particular ownership structure of a proposed development. Thus, the land use analysis provided herein must evaluate the proposal based on the form, fit, and conformance to established policies and standards. The City’s evaluation of a project cannot distinguish between a multi-family building with a single ownership interest (apartment) versus a multi-family building with individual ownership for each unit (condo). Two comment cards were also provided inquiring about a bridge from the Greenway bike path to provide access across Skunk Creek allowing pedestrian crossing to the project. This was forwarded to the Development and Engineering Department for their review. Currently the City is undertaking the effort to design and construct improvements to the trail system along Skunk Creek; however, a pedestrian bridge crossing is not contemplated as part of those improvements.
Support / Opposition
At the time of this writing, Staff received one (1) letter in opposition, along with 42 letters of support. The main topic of concern in the letter of opposition was the originally proposed maximum building height of fifteen (15) stories. Subsequent to the initial submittal of the application, the applicant reduced the requested height from 15 to the twelve (12) stories referenced within the staff report and noted with the PAD Standards and Guidelines Report.
Peoria Unified School District
This property is within the Peoria Unified School District (PUSD) boundary. PUSD has participated in the review of this project and has been in communication with the applicant regarding the proposal and school facilities in the area.
FINDINGS:
- The proposed development and zoning conforms to and advances the vision, goals, and objectives identified in the Peoria General Plan and the foundational Sports Complex Urban Design Plan; and
- This rezoning request and specific design standards will result in a development that acts as a context appropriate urban-scaled development that is envisioned within the General Plan.