Goodyear approves El Cedro rezoning and $118 million Sub-Zero expansion despite infrastructure concerns

Goodyear Approves El Cedro and Sub-Zero While Exposing Infrastructure Coordination Gaps

On August 26, 2024, the Goodyear City Council approved the El Cedro Ninth Amendment rezoning (6-1) and threw its support behind a $118 million Sub-Zero manufacturing expansion (7-0), signaling confidence in continued mixed-use and industrial growth. Yet beneath these victories lay a simmering crisis: council members publicly escalated concerns that the city lacks the coordination mechanisms to prevent simultaneous closure of two major arterial roads—a failure that could cripple north-south mobility and contradict prior council directives. Even more pointed: a council member demanded that all future 303 freeway presentations include elevation photographs, frustrated that the public and council cannot visualize how a 25-to-35-foot elevated interstate will visually dominate the very 40-foot buildings now being approved.

Key Speeches

On the El Cedro project and the 303 freeway's visual impact:

"That photograph and those elevations have got to start showing up in all of the presentations so that not only the council understands it but the public sees it… these photographs and these elevations are astonishing how different that area is going to look and nobody has a visual on what that looks like… changing this from its original designation in height to 40 feet in height is not that significant when you compare that to a 25-foot or greater freeway running through at least half if not three-quarters of that parcel." — Council Member Stephens

On infrastructure coordination failure:

"We're not supposed to be closing two roadways at the same time so please somebody tell me that Bullard Road is going to be done before we start shutting down the other one because if I hear one more complaint about traffic I'm going to lose it… we had said a long time ago we are not supposed to be closing two roadways at the same time… we cannot shut down Bullard at the same time we shut down Pebble Creek Parkway or Australia Parkway." — Council Member Stephens

On the water exchange agreement:

"When I thought you were awesome you become awesomer… this is such a great way forward for us to continue to innovate with our water solutions… the ability for us to wheel and move this water into the city in the most effective way is tremendous." — Council Member Stephens

Timeline

El Cedro Ninth Amendment Rezoning (Ordinance 2024-1601)

• Staff presentation: Christian Williams (Planning Manager) introduced a 42-acre mixed-use residential rezoning within the 583-acre El Cedro pad. The parcel, located at the southwest corner of 169th Avenue and Lower Buckeye Road, had been amended eight times since original 2007 approval. Ninth Amendment clarifies Wells Site access across all districts, corrects 2018 zoning errors, and redefines Parcel 4 land uses: 19.9 dwelling-units-per-acre multifamily residential (MFR, 40 feet height); medium-density residential townhomes (MDR); and single-family detached (LDR5). Includes 1.5- and 2-acre parks, trail systems, landscape buffers up to 60 feet wide, clubhouse, resort-style pool, and stepping-back requirements for buildings adjacent to single-family homes.

• Key concerns from Planning & Zoning Commission: Height of 40-foot MFR units near Lower Buckeye Road and adjacent to single-family homes; flat-roof architectural character inconsistent with El Cedro's established aesthetic; lack of elevation visuals showing 303 freeway (15–35+ feet, potentially 45 feet with sound wall) relative to proposed 40-foot buildings.

• Stipulations negotiated: Roof variety required; minimum four unique building schemes with two base colors and three accent colors; three-story buildings must step down one story where adjacent to LDR5 homes within 100 feet; landscape buffers and streetscape elements to offset smaller lot dimensions (30-foot widths, 2,400 square feet).

• Public comment: One neighborhood resident spoke in opposition citing height concerns relative to existing single-family homes to the north. City owns a triangle parcel (approximately 220 feet on west, 40 feet on east) north of the site; could be used for road widening or future facilities.

• Council discussion: Council Member Stephens (departing) repeatedly pressed for elevation photographs of the 303 freeway relative to the proposed buildings, stating the 25-foot freeway elevation change "is pretty significant" compared to the 5-foot height increase being debated. Brannon Hampton expressed concern over the "stepping back" stipulation, questioning whether it was necessary since the MFR and LDR5 are both applicant-owned (not adjacent to an established neighborhood). Council Member Laurano affirmed the project as good land-use planning, placing multifamily closest to the freeway and single-family furthest. Vicki Gillis praised variety in housing options and exceptional open space. Wally Campbell expressed satisfaction once building elevations were clarified.

• Vote: Ordinance 2024-1601 approved 6-1. (No individual votes named in transcript.)

Sub-Zero Manufacturing Expansion (Resolution 2024-2421)

• Staff presentation: Deputy Economic Development Director Dara Mahn presented Sub-Zero Group Incorporated's $118 million expansion. Sub-Zero, a family-owned Wisconsin luxury kitchen appliance manufacturer and Goodyear's top-10 employer, first located at PV 303 in 2010 ($68 million, 388 jobs initially; 2015 expansion +$34 million, +100 jobs). Current facility: 690+ employees, $59,000 average wage, manufactures luxury refrigerators and wine refrigerators. New facility (southwest corner Camelback Road and Cotton Lane): 440,000+ square feet manufacturing door shelves, crisper drawers, and service kits; 143 new jobs by year five at average $55,000 wage; $7.4 million annual payroll at full employment. Total Goodyear footprint: 1.3 million square feet, $220 million capital investment, 834 jobs. Third-party economic analysis: 10-year community impact $594 million; 10-year direct city tax revenue $5.6 million.

• Foreign trade zone qualification: Sub-Zero meets Goodyear's 2023 FTZ policy: property properly zoned, $25+ million investment, 100+ full-time employees, 125% of median wage (or 51% of workforce at that threshold), company pays 65%+ of health care premiums. Failure to meet triggers PILOT (payment in lieu of tax).

• Council discussion: Brannon Hampton noted Sub-Zero is "one of the first" to take a chance on Goodyear and has proven itself a good employer and community partner. Council Member Stephens (departing) noted a Sub-Zero ribbon-cutting was among his first moments as council member; this expansion is among his last—"exactly what the foreign trade zone was meant to do."

• Vote: Resolution 2024-2421 approved 7-0 (unanimous).

Water Exchange Agreement with City of Glendale

• Staff presentation: Barbara Chapel (Water Services Director) presented an intergovernmental agreement allowing equal exchange of Colorado River water and stored Salt River Project water. Goodyear receives Colorado River water at Glendale's Pyramid Peak treatment facility (on central Arizona project canal bank); in exchange, Glendale receives equal volumes from Goodyear's stored SRP water via existing canal systems. Benefit to Goodyear: avoids fees for the CAPAP–SRP interconnect facility. Estimated annual savings: $42,000–$400,000.

• Council discussion: Brannon Hampton thanked Chapel for "thinking outside the box" for cost savings and continued water sustainability. Council Member Stephens called the agreement "innovative" and praised Chapel's expertise in "wheeling and moving water into the city in the most effective way." Wally Campbell thanked Chapel for staying "ahead of the curve" rather than "working from behind the curve" on water strategy.

• Vote: IGA approved 7-0 (unanimous).

Pluto Energy Storage Aerial Crossing License

• Staff presentation: Deputy City Attorney Sarah Chelton introduced a license agreement for a 69 kV aerial power line crossing Seral Avenue (southwest corner Commerce Drive and Seral). The line feeds a battery energy storage system serving an APS substation. Originally, staff sought underground installation, but Southwest Gas Line proximity posed engineering challenges; APS declined. Applicant committed to safety provisions: $110 million commercial general liability insurance, $3 million umbrella; $5 million performance bond; 20-minute emergency response availability; 365/24/7 safety representative on call; remote de-energization capability. Applicant will remove improvements if agreement is terminated; $1 million bond secures this. Agreement restricts collocating and bars transfer of license to other entities—single-use for Pluto Energy Storage only.

• Council discussion: Brannon Hampton asked whether underground cost was evaluated; Chelton noted APS comfort level was the controlling factor, not price. Brannon Hampton sought confirmation that the poles will not impede future Seral Avenue widening; Chelton affirmed poles are inside applicant's property line and outside dedicated right-of-way expansion area. Wally Campbell asked whether poles are concrete (like other 69 kV lines throughout city) to withstand Goodyear winds; Chelton deferred to applicant and staff (Katie); staff confirmed poles will be permitted through plan review. Brannon Hampton asked about guards/barriers around poles; Chelton noted concrete footers are typically tall enough but confirmed this will be part of plan review. Council Member Stephens asked whether this is Goodyear's first aerial crossing for battery storage; Chelton confirmed.

• Vote: Item 16 (Aerial Crossing License Agreement) approved 7-0 (unanimous, removed from consent agenda for individual discussion and vote).

Citizen Comment (Non-Agenda)

• William Nepple (Goodyear resident): Raised two concerns: (1) fireworks damage despite city limitations—roof damage and window damage from debris during July 4th; requested enforcement clarification despite state law permitting fireworks sales. (2) Traffic safety at Cotton Lane and Yuma Road intersection—cement trucks running yellow lights, recent accidents. Requested city follow-up with answers and solutions. City Manager assignment: Chris (identified as traffic analyst) to investigate and respond; Chief Brian Isitt assigned fireworks enforcement.

• Christina Yong (10-year Goodyear resident): Expressed concerns about rapid transformation from rural retirement community to industrial park. Raised issues: (1) population density from apartment complexes; (2) water sustainability—Colorado River fourth in allocation priority, risk if other states reduce flows; (3) water agreements with other cities; (4) loss of agricultural land to "billionaires and big corporations" (citing Bill Gates' Tonopah land purchases); (5) beef industry disappearing; (6) impact on veterans and low-income residents; (7) lack of transparency in planning decisions. Requested comprehensive information on general plan, voting process, and zoning decisions. City Manager assignment: Provide information on general plan, who votes, how zoning decisions are made.

Opposition

El Cedro Rezoning:

• Number of speakers against: 1 (at Planning & Zoning Commission; none at council hearing)
• Main concerns:
  1. Height of 40-foot MFR buildings adjacent to Lower Buckeye Road and single-family homes to the north
  2. Proximity to 303 freeway construction and lack of elevation visual context
  3. Architectural character—flat roofs perceived as inconsistent with established El Cedro aesthetic
  4. Potential visual impact of 25–35+ foot freeway elevation relative to 40-foot buildings

Council Member Stephens (escalated at council meeting):

• Lack of elevation photographs showing 303 freeway profile relative to buildings
• Stated "not lecturing" but emphasized the photographs are "astonishing" and must be provided in all future 303-related presentations
• Noted that 25-foot elevation change is "pretty significant" and justifies the height variance

Public Comment:

• Christina Yong's concerns reflect broader anxiety about growth, water sustainability, loss of agricultural character, and lack of transparency

Support

El Cedro Rezoning:

• Council member support: Unanimous endorsement from Brannon Hampton, Council Member Stephens (despite height concerns, called it "probably the best place" and "good project"), Council Member Laurano (praised variety, open space, trail system, attention to equestrian community), Vicki Gillis (praised multifamily placement closest to freeway, single-family furthest), Wally Campbell (satisfied after clarification of elevation logic).
• Planning & Zoning Commission: Recommended approval with stipulations.
• Applicant: Alex Hayes (developer) agreed to all stipulations; did not speak at council hearing.

Sub-Zero Expansion:

• Unanimous council support (7-0 vote)
• Sub-Zero representatives present; Council Member Stephens cited Sub-Zero's early commitment to Goodyear and its proven record as employer and community partner
• Recognized FTZ policy as working as intended

Water Exchange with Glendale:

• Unanimous council support (7-0 vote)
• Council praised innovation, cost savings, and water sustainability approach

Pluto Energy Storage Aerial Crossing:

• Unanimous approval (7-0) after individual presentation and discussion

Project Details

El Cedro Ninth Amendment Rezoning

• Case number: Ordinance 2024-1601
• Applicant / developer: Alex Hayes
• Attorney: Not named in transcript
• Location / address: Southwest corner of 169th Avenue and Lower Buckeye Road, Goodyear, Arizona
• APN: Not stated in transcript
• Current zoning → Proposed zoning: PAD (Planned Area Development, original 2007); Ninth Amendment refines Parcel 4 and Parcel 3 land uses within PAD:
  • Parcel 4 (42 acres primary focus):
    • MFR (multifamily residential): 19.9 du/acre, underlying MF18, 40-foot height (vs. standard 30 feet), with 15-foot landscape buffer on south and green belt on west
    • MDR (medium-density residential townhomes): 30-foot lot widths, 2,400 sq ft lots, underlying R1A reduced
    • LDR5 (low-density single-family): 90-foot deep lots, 15-foot deep backyards, underlying R1A, 60-foot green belt on east boundary
  • Parcel 3: Administrative clarifications (Wells Site access, prior rezoning corrections)
• Density / units / square footage: Approximately 19.9 du/acre multifamily (exact total unit count not stated); townhomes and single-family density per underlying zoning standards
• Changes from previous version (if reconsideration): First major land use amendment; clarifies Wells Site access across all districts; corrects 2018 zoning errors; introduces modern development standards (accessory buildings, lighting, parking); assigns underlying zoning districts to all parcels for consistency
• Open space: 1.5-acre park (Parcel 4B, with pool and clubhouse), 2-acre park (Parcel 4C); 50-foot western landscape buffer with 6-foot trail; 60-foot eastern landscape buffer with 6-foot DG trail; looped trail system connecting development to greater El Cedro
• Amenities (MFR): Minimum 6,500 sq ft clubhouse, resort-style pool, fitness center, outdoor barbecue, turf area; minimum four unique building schemes with two base colors and three accent colors; roof height and material variation; three-story buildings step down one story where within 100 feet of LDR5 homes

Sub-Zero Manufacturing Expansion

• Case number: Resolution 2024-2421
• Applicant / developer: Sub-Zero Group Incorporated
• Attorney: Not named in transcript
• Location / address: Southwest corner Camelback Road and Cotton Lane, Goodyear, Arizona
• Facility size: 440,000+ square feet (new building); total Goodyear footprint 1.3 million sq ft (all Sub-Zero sites combined)
• Uses: Manufacturing of door shelves, crisper drawers, and service kits; assembly of accessories
• Employment: 143 new jobs by year five, $55,000 average wage, $7.4 million annual payroll at full employment
• Investment: $118 million (this expansion); total Sub-Zero capital investment in Goodyear $220 million
• Zoning: Industrial (specific zoning not detailed in transcript)
• Foreign trade zone status: Applicant qualifies for FTZ user-driven site under Goodyear's 2023 policy (minimum $25 million investment, 100+ FTE, wage thresholds, health care premium requirements)

Pluto Energy Storage Aerial Crossing License

• Case number: Item 16 on consent agenda; license agreement between City of Goodyear and Pluto Energy Storage LLC
• Applicant: Pluto Energy Storage LLC
• Location / address: Seral Avenue crossing, southwest corner Commerce Drive and Seral, Goodyear, Arizona
• Facility use: 69 kV aerial power line feeding battery energy storage system serving APS substation
• Current status: First facility of this type in Goodyear
• Safety provisions:
  • $110 million commercial general liability insurance, $3 million umbrella
  • $5 million performance bond for damage to city property
  • $1 million bond for removal of improvements upon termination
  • 20-minute emergency response time for safety personnel
  • 365/24/7 on-call safety representative
  • Remote de-energization capability
  • No collocating; non-transferable license (single-use for Pluto Energy Storage only)
  • Poles positioned outside dedicated right-of-way to permit future Seral Avenue widening
  • Coordination with APS on pole placement (east of existing APS power lines)

Vote Breakdown

Ordinance 2024-1601 (El Cedro Ninth Amendment Rezoning):

• Final: 6-1
• Yes: Not named individually in transcript
• No: Not named individually in transcript
• Abstentions / absences: None noted; all seven council members present

Resolution 2024-2421 (Sub-Zero Foreign Trade Zone Support):

• Final: 7-0 (unanimous)
• Yes: All council members
• Abstentions / absences: None

Intergovernmental Agreement with Glendale (Water Exchange):

• Final: 7-0 (unanimous)
• Yes: All council members
• Abstentions / absences: None

Aerial Crossing License (Pluto Energy Storage):

• Final: 7-0 (unanimous)
• Yes: All council members
• Abstentions / absences: None

Consent Agenda Items 2–15:

• Final: 7-0 (unanimous)
• Yes: All council members
• Abstentions / absences: None

Outcome & Next Steps

El Cedro Ninth Amendment: Ordinance 2024-1601 approved 6-1. Rezoning takes effect upon execution and recording. Development may proceed under stipulations: roof variety and multiple building schemes; stepping-back buildings within 100 feet of LDR5 homes; landscape buffers; trail connections. Applicant may now seek site plan and improvement plan approval.

Sub-Zero Expansion: Resolution 2024-2421 approved unanimously. City commits support for Sub-Zero's foreign trade zone user-driven site application to CAP (Central Arizona Project). Sub-Zero must meet FTZ qualifications (investment, employment, wage, and healthcare thresholds); failure triggers PILOT agreement. Expansion expected to begin construction and generate 143 new jobs within five years.

Water Exchange with Glendale: IGA approved unanimously. City manager authorized to execute implementation agreement with CAWCD (Central Arizona Water Conservation District). Anticipated annual savings $42,000–$400,000; Goodyear avoids CAPAP–SRP interconnect facility fees while maintaining water supply.

Pluto Energy Storage Aerial Crossing: License agreement approved unanimously. Applicant may proceed with 69 kV line installation subject to safety stipulations and plan review coordination with fire department.

Infrastructure Coordination Crisis: Council Member Stephens escalated concerns regarding simultaneous closure of Bullard Avenue and Australia Parkway/Pebble Creek Parkway during same construction window. City Manager assignment: Provide coordination timeline and ensure Bullard completion before Australia Parkway/Pebble Creek closure. Stephens stated prior council agreement prohibits two-road closures simultaneously and emphasized public comment backing this requirement.

Visualization Demand: Council Member Stephens required that all future 303-freeway-related presentations include elevation photographs showing freeway height (25–35+ feet, potentially 45 feet with sound wall) relative to proposed building heights. City Manager assignment: Mandate elevation photos in all 303 presentations for public and council understanding.

Citizen Follow-Up: City staff assigned to respond to William Nepple regarding fireworks enforcement and traffic safety at Cotton Lane / Yuma Road intersection (Chris for traffic analysis, Chief Brian Isitt for fireworks enforcement). City Manager to provide Christina Yong with information on general plan, voting procedures, and zoning decisions.

Controversies & Context

303 Loop Freeway Visual Impact: The most significant controversy, though muted at the council vote, centers on the council's repeated inability to access and present elevation photographs showing the 303 freeway's actual height relative to the El Cedro buildings being approved. Council Member Stephens stated he has been "asking for this for two years" and termed his frustration "an absolute understatement." The freeway will run at 25–35+ feet in elevation (potentially 45 feet with sound wall) immediately west of the development, yet council approved 40-foot buildings with minimal discussion of this visual dominance. Stephens framed the decision as rational—the 5-foot height difference is negligible compared to the 25-foot freeway elevation—but demanded that future presentations include photographs so "not only the council understands it but the public sees it." This reflects a broader governance failure: critical context (elevation visuals) is absent from decision-making processes, forcing council members to improvise explanations after the fact.

Road Closure Coordination: Council Member Stephens escalated a critical infrastructure conflict. The city is simultaneously managing construction closure of Bullard Avenue (down to one lane) and planned closure of Australia Parkway / Pebble Creek Parkway, which Stephens stated violates a prior council directive against closing two major arterial roads at the same time. Stephens stated, "we had said a long time ago we are not supposed to be closing two roadways at the same time… people are going to be bemoaning… we cannot shut down Bullard at the same time we shut down Pebble Creek Parkway or Australia Parkway." The city manager was assigned to resolve this, but no immediate answer was provided. This reflects an operational disconnect between infrastructure planning (street closures managed by different departments or contractors) and council policy.

Building Height Debate: Brannon Hampton initially questioned whether the stipulation requiring buildings to "step down" by one story near single-family homes was necessary, given that the MFR and LDR5 are both applicant-owned (not adjacent to an established neighborhood). Planning Manager Christian Williams clarified that MF18 zoning typically requires step-downs; the applicant negotiated to avoid this across most buildings but accepted it only for ends within 100 feet of LDR5. Brannon Hampton was not fully convinced but did not push for a change.

Architectural Character: Multiple council members cited concerns about flat-roof modernism as inconsistent with El Cedro's established aesthetic (which features pitched and tile-like elements). Stipulations now require minimum four unique building schemes, two base colors, three accent colors, and varied roof heights. Yet some council members (e.g., Wally Campbell, Council Member Laurano) expressed tolerance for variety and suggested that "breaking up" monotony with design diversity, even if contemporary, serves the community better than uniformity.

Water Sustainability: Christina Yong's public comment reflected broader anxiety about Colorado River allocation uncertainty. Yong noted Goodyear is "fourth in line for the Colorado River," creating risk if other states reduce consumption. She also expressed concern that water exchange agreements with other cities (implying Glendale, per the IGA agenda item) trade away Goodyear's future security for short-term fee savings. While not directly addressed in council response, City Manager's assignment to provide general plan information may touch on water master planning.

El Cedro PAD History: El Cedro was first approved as a 616-acre PAD in 2007 and has been amended formally eight times plus three property separations—11 total changes in 17 years. This iterative, piecemeal approval process reflects the city's challenge in managing large mixed-use development: original pad visions are constantly negotiated and revised as conditions change, creating complexity and potential for inconsistency.

New Police Chief Sworn In: Chief Brian Isitt was formally sworn in using both the traditional Arizona peace officer oath and the International Association of Chiefs of Police revised oath emphasizing dignity, respect, and human life preservation. Isitt thanked City Manager Wendt Reed and his family (wife Autumn, children Libby and Brian); praised his father as a role model. Council members (Joe Pizzillo, Brannon Hampton, Wally Campbell, Laurano, Stephens, and Vicki Gillis) offered welcoming remarks, with Stephens noting he had received "stellar praise" for Isitt from officers at Phoenix PD. Isitt is promoted from within the Goodyear Police Department.

Duration

• This meeting: Approximately 3.5 hours (from Pledge of Allegiance through executive session vote)
• El Cedro rezoning item: Approximately 1 hour (staff presentation, council discussion, vote)
• Sub-Zero expansion item: Approximately 30 minutes (staff presentation, council remarks, vote)
• Water exchange and Pluto Energy Storage items: Approximately 45 minutes combined
• Public comment (non-agenda): Approximately 20 minutes (two speakers)

Other Notable Items

New Police Chief Brian Isitt Sworn In: Isitt, promoted from within the Goodyear Police Department, was sworn in using both the traditional Arizona oath and the revised IACP oath emphasizing dignity, respect, and preservation of human life. Council and community received him with strong endorsement. (See Controversies & Context section for detail.)

Traffic Signal at Cotton Lane and Elwood Street (Consent Agenda Item 14): Council Member Stephens requested a public explanation of the signal's placement relative to 303 freeway construction alignment. City traffic official Chris confirmed the signal is already coordinated with ADOT design to avoid pole relocation when the freeway is built; the signal is south of Lower Buckeye Road (where freeway alignment curves west) and thus outside the freeway footprint. This item passed as part of consent agenda 7-0.

Homelessness Ordinance / Grants Pass Decision: Vicki Gillis requested that an ordinance implementing the Grants Pass (U.S. Supreme Court) decision on homelessness be brought back in fall 2024, before Gillis's term ends. City manager confirmed the item will be scheduled.

Traffic Light Timing (Daart and McDow, Avondale border): Vicki Gillis reported inadequate green light duration for westbound traffic on Dow trying to cross at Daart (approximately 10 seconds, then arrow prevents left turns). Requested city reach out to Avondale (which controls the signal). Chris assigned to contact Avondale.