Tempe unanimously acquires Apache Boulevard properties to preserve minority-owned businesses

Tempe Council Approves Apache Boulevard Property Acquisition Amid Police Brutality Complaint and Mixed-Use Development Hearings

On November 4, 2022, the Tempe City Council held a regular session marked by unanimous approval of a landmark affordable-housing land acquisition, heated public comment on police excessive force, and introduction of two significant Rio Salado mixed-use developments now scheduled for December 1 final votes. The meeting underscored the council's professed commitment to preventing gentrification while facing demands for police accountability.

Key Speeches

"Our communities have been suffering from gentrification for a long time now losing homes and businesses. This move by this city is a message to our Barrios that you all care and that you are listening. This purchase is not just a win for those businesses but to all the communities that depend on it." — Joel Cornejo, executive director, Samias Arizona (statement read into record)

"We were going to be selling the property at a price that was not feasible for our small business. We met with our other businesses in the plaza and started to identify a plan within a week we had a meeting with several members representing the City of Tempe including mayor Corey D Woods members of city council and Rosa Deputy city manager." — Zayed Torfa, owner, Tajibaba

"The unprofessional conduct of a few City of Tempe employees specifically police officers has created a hostile environment for the Allen family here in the City of Tempe. We are here today requesting Justice for the Allen family. We want the officers removed from the streets because they are unsafe for ours in your community. We also demand to see the unredacted body-worn cameras." — Shannon Hayes, Black Mothers Forum of Phoenix

"69 percent of our respondents tell us that access to Tempe pre has improved their family's Financial stability. 68 said a family member was able to return to work or increase their work hours therefore earning more money. 15 percent reported they also obtained secure housing and 12 also noted that they returned to or enrolled in school." — Mayor Corey D Woods, describing Tempe Pre preschool program outcomes

Timeline

Apache Boulevard Property Acquisition (Item 8B2):

• Public comment: Four speakers in favor; Zayed Torfa (Tajibaba owner), Tolga (Don Village Market owner), Joel Cornejo (Samias Arizona, statement read), and Michael Allen (police complaint witness) addressed council. Two additional speakers—Shannon Hayes (Black Mothers Forum) and Mike Wallace (neighboring property owner) spoke on other items.
• Mayor's remarks: Mayor Corey D Woods credited Chief Deputy City Manager Rosa Chaucino and former Councilmember Lauren Cubey with facilitating the deal, emphasizing city commitment to "Hometown for All" strategy and preventing displacement.
• Council discussion: Councilmembers expressed support; no objections raised.
• Vote: Resolution approved unanimously 7–0.

Perry and Rio Salado Mixed-Use Development (Item 8B1):

• Applicant presentation: Modular Boss (Gammage & Burnham, PLC) presented 308-unit residential project with 3,069 sq ft retail, rezoning GID to MU4 with PAD overlay, parking ratio 1.46 spaces per unit (464 total). Applicant highlighted previous successful projects (Sky at McClintock Station, Ray in downtown Phoenix) and design alignment with Smith Hub guidelines.
• Council questions: Councilmember Garland raised concerns about parking reduction (112 spaces below code), requested solar solutions for EV charging and expanded balcony space. Jennifer Adams questioned legality of street parking; Arlene Chin recommended exploring shade options beyond trees. Councilmember Navarro praised industrial design and balcony wrap-arounds.
• Public comment: Mike Wallace (Scottsdale property owner) warned that combined parking deficits from this project and Madera Rio Salado (233 total spaces below code across two projects within 300 feet) would create "huge overflow" into street parking, disadvantaging nearby businesses. Applicant maintained parking study justified reduction and transit options would offset on-site parking needs.
• Council discussion: No definitive resolution; applicant agreed to revisit EV solar and balcony specifications before December 1 vote.
• Vote: First hearing approved; second hearing and final vote scheduled December 1, 2022.

Madera Rio Salado Mixed-Use Development (Item 8B2):

• Applicant presentation: Wendy Riddell (Barry Riddell LLC, representing Hardy Rio Development—collaboration between Howard Family and Mill Creek Residential) presented 319-unit, 5-story to 7-story development on 5.04 acres, 3,500 sq ft commercial, rezoning GID to MU4 with PAD. Parking ratio 1.4 spaces per unit; parking shade 78.8% (vs. 20% required); public walkway shade 50% (vs. 33% required). Project honors late Wayne Howard's legacy; dedicates 14-foot transit easement for future streetcar.
• Council questions: Jennifer Adams praised project and Wayne Howard's memory. Councilmember Garland requested expanded EV parking (more than 10 spaces) with solar; Riddell agreed to revisit. Councilmember Navarro requested expanded balcony dimensions. Berdetta Hodge asked about working/living spaces; confirmed available within community.
• Council discussion: Strong support; no public opposition.
• Vote: First hearing approved; second hearing and final vote scheduled December 1, 2022.

Guadalupe Cemetery Historic Designation (Item 8B3):

• Applicant presentation: Carl Herrig, tribal historic preservation officer, Pascua Yaki tribe, presented nomination of Guadalupe Cemetery (4649 South Beck Avenue) for historic designation. Site established ~1898 as first Yaki settlement in historic period in Salt River Valley. Cemetery continues as active religious and cultural site; Day of the Dead celebrations attract hundreds annually. National Register nomination approved by state historic preservation office in July; Tempe historic designation pending.
• Council discussion: Councilmember Garland praised historical documentation, requested partnership with Tempe History Museum to disseminate information via booklet. Berdetta Hodge noted personal participation in Day of the Dead celebrations and support for long-overdue designation; noted Town of Guadalupe has heritage materials ready to share.
• Vote: First hearing approved; second hearing scheduled December 1, 2022.

Police Excessive Force Complaint (Item 6 — Public Appearances):

• Michael Allen's complaint: Alleged Tempe Police Department stopped his three sons without justification on June 19, 2022, deployed tasers multiple times despite no suspected crime, failed to provide medical attention (one son suffered brain bleed). Demanded investigation, officer retraining, faster body-camera release (currently held 6–12 months), and accelerated internal-affairs reports (currently 180 days). Noted he had emailed all council members with no response; came in person to speak.
• Shannon Hayes (Black Mothers Forum of Phoenix) follow-up: Demanded formal apology to the three young men, immediate removal of officers from streets, unredacted body-worn camera footage, and justice for the Allen family. Emphasized misconduct incompatible with Corey D Woods' and Police Chief's leadership as first Black mayor and chief in Arizona.
• Council response: No immediate debate or response from council; Corey D Woods acknowledged complaint and indicated referral to city manager for action.
• Referral: Matter referred to city manager for investigation and potential action.

Opposition

Parking Reduction (Perry and Rio Project):

• Number of speakers against: 1 (Mike Wallace, property owner within 300 feet)
• Main concerns:
  1. Street parking already "pushed to the max" in area; applicant requesting 112 fewer spaces than code requires.
  2. Combined deficit of 233 parking spaces across two nearby projects (Perry and Rio, Madera Rio Salado) within 300–400 feet will create massive overflow into street.
  3. Planned street parking permits on both sides of Third Street and Perry Lane (plus existing permits on Industrial Drive) will disadvantage retail tenants and nearby businesses dependent on customer parking.
  4. Developer could easily add one more story of parking (currently at ~90 feet, max height 130 feet).
  5. Likely detriment to economic viability of nearby tenant-occupied and commercial spaces.
• Most compelling argument: Wallace's real-world observation of current parking saturation and concrete concern about cumulative impact of two large projects in close proximity.
• Organized groups: None; individual business-owner complaint.

Support

Apache Boulevard Property Acquisition:

• Number of speakers for: 3–4 (Joel Cornejo, Zayed Torfa, Tolga; one additional unnamed speaker statement read)
• Main themes:
  1. City intervention prevents displacement of long-established, culturally significant businesses (38-year-old Tajibaba, 24-year-old Don Village Market).
  2. Business owners praised Corey D Woods, City Council, Rosa Chaucino, and Lauren Cubey for listening and acting.
  3. Project affirms city's commitment to "Hometown for All" strategy and prevents gentrification in minority community corridors.
  4. Both businesses are award-winning (Tajibaba: Best Middle Eastern Restaurant Arizona 2022, Best Vegetarian Restaurant Arizona, Best Lunch Spot Tempe; Don Village Market: long-serving Latino community anchor).
• Organized groups: Samias Arizona represented.

Rio Salado Projects:

• Council members expressed strong support (no public opposition at first hearing stage). Jennifer Adams specifically praised Madera Rio Salado as honoring Wayne Howard's legacy.

Guadalupe Cemetery Historic Designation:

• Council members (Garland, Berdetta Hodge) expressed strong support; no public opposition.

Project Details

Apache Boulevard Property Acquisition

• Case number: Not stated in transcript.
• Applicant / Property owner: City of Tempe (acquisition from private landlord).
• Attorney: Not stated.
• Location / address: 1511–1537 East Apache Boulevard, Tempe, Arizona.
• APN: Not stated in transcript.
• Current zoning: Not stated (implied commercial).
• Proposed use: Affordable and/or Workforce and/or Mixed-Income Mixed-Use Development.
• Businesses affected: Tajibaba (Middle Eastern restaurant & grocery, established 1984, award-winning); Don Village Market / Carnicería Don Philos (Latino-oriented grocery, established 1998, relocated to 1533 East Apache Boulevard in 2015).
• Funding: Resolution approved authorizing acquisition; specific funding mechanism not detailed in transcript.

Perry and Rio Salado Mixed-Use Project

• Case number: Item 8B1 (first hearing introduction).
• Applicant / Developer: Modular Boss (represented by Gammage & Burnham, PLC).
• Attorney: Not stated; Gammage & Burnham, PLC counsel present.
• Location / address: 1891 East Rio Salado Parkway, Tempe, Arizona.
• APN: Not stated in transcript.
• Current zoning: GID (General Industrial District).
• Proposed zoning: MU4 (Mixed-Use 4) with PAD (Planned Area Development) overlay.
• Residential units: 308 (including 4 live-work units).
• Commercial: 3,069 sq ft retail, 1,100 sq ft office, fitness center.
• Parking: 464 spaces (1.46 spaces per unit; 1.1 spaces per bedroom). Retail: 1 space per 300 sq ft. Office: 1 space per 300 sq ft. Four on-street spaces on Perry; no additional street parking proposed.
• Height: Not explicitly stated; appears 3–4 stories (implied from "three layers of parking" and suburban context).
• Density: ~65 dwelling units per acre (implied from "up to 65 dwelling units per acre").
• Parking comparison to code: Applicant claims 151-space surplus vs. ITE standards; 112 spaces below Tempe code (per opposing commenter Mike Wallace).
• Shade: Substantial landscaping, tree canopy, walkway shade enhancements.
• EV parking: Included; specific count not stated.
• Previous projects by applicant: Sky at McClintock Station (formerly Tempe Tempo) on Apache; Ray in downtown Phoenix; Midtown project near Park Central.
• Second hearing & vote: Scheduled December 1, 2022.

Madera Rio Salado Mixed-Use Development

• Case number: Item 8B2 (first hearing introduction).
• Applicant / Developer: Hardy Rio Development (collaboration between Howard Family and Mill Creek Residential).
• Attorney: Wendy Riddell, Barry Riddell LLC.
• Location / address: 835 West Rio Salado Parkway, Tempe, Arizona.
• APN: Not stated in transcript.
• Current zoning: GID (General Industrial District) with Rio Salado Overlay District (RSOD).
• Proposed zoning: MU4 (Mixed-Use 4) with RSOD and PAD overlay.
• Site area: 5.04 acres.
• Residential units: 319.
• Density: ~63 dwelling units per acre.
• Height: 5–7 stories (60–85 feet); elevator shaft maximum 98.8 feet.
• Commercial: ~3,500 sq ft (potential restaurant under development).
• Parking: 1.4 spaces per unit (including commercial); some surface parking along Rio Salado Parkway due to water-line easement; remainder in garage.
• Parking shade: 78.8% (vs. 20% code requirement).
• Public walkway shade: 50% (vs. 33% code requirement).
• Transit easement: 14-foot easement along Rio Salado Parkway dedicated for future streetcar expansion.
• EV parking: 10 spaces proposed; council requested expansion.
• General plan amendments: Rezoning from Public Open Space to Mixed-Use (1.66 acres); density map amendments (no density to high density for 1.66 acres; medium-high to high for 3.39 acres).
• Previous development agreement: Site was subject to development agreement approved by council in 2021, which proposed land uses now being formalized.
• Heritage consideration: Project honors legacy of late Wayne Howard; Howard Family and Mill Creek Residential are partners.
• Second hearing & vote: Scheduled December 1, 2022.

Guadalupe Cemetery Historic Designation

• Case number: Item 8B3 (first hearing introduction).
• Applicant: Town of Guadalupe.
• Presenter: Carl Herrig, tribal historic preservation officer, Pascua Yaki tribe.
• Location / address: 4649 South Beck Avenue, Tempe, Arizona.
• APN: Not stated in transcript.
• Current zoning: AG (Agricultural).
• Proposed zoning: AG with historic overlay.
• Property description: Guadalupe Cemetery, established ~1898 as first Yaki settlement during historic period in Salt River Valley. Adjacent to Hohokam village site of Ciudad de los Ornos; platform mound visible in 1928 photograph.
• Historic significance: First settlement of Yaki people in historic period in Salt River Valley; ongoing site of active religious practice and Day of the Dead celebrations (100+ attendees annually); important locus of Mexican-American and Yaki cultural/family connectivity.
• National Register nomination: Approved by Arizona State Historic Preservation Office Historic Sites Review Committee, July 2022; forwarded to National Park Service Keeper (approval expected).
• Tempe Historic Property Register nomination: Completed and under review; application based on criteria A (significant events/history) and D (archaeological/historical information potential).
• Second hearing & vote: Scheduled December 1, 2022.

Vote Breakdown

Apache Boulevard Property Acquisition (Item 8B2):

• Final: 7–0 (unanimous).
• Yes: All seven members (Mayor Corey D Woods, Vice Mayor Jennifer Adams, Councilmember Arlene Chin, Councilmember Berdetta Hodge, Councilmember Randy Keating, Councilmember [fourth member name not stated in vote record], Councilmember [fifth member name not stated]).
• No: None.
• Abstentions / absences: None.

Perry and Rio Salado Project (Item 8B1):

• First hearing / introduction only: No vote taken; second hearing and final vote scheduled December 1, 2022.

Madera Rio Salado Project (Item 8B2):

• First hearing / introduction only: No vote taken; second hearing and final vote scheduled December 1, 2022.

Guadalupe Cemetery Historic Designation (Item 8B3):

• First hearing / introduction only: No vote taken; second hearing and final vote scheduled December 1, 2022.

Other unanimously passed items (8A1, 8A3, 8C1–8C7):

• All passed 7–0 or 6–0 (where noted).

Outcome & Next Steps

Apache Boulevard Property Acquisition: Resolution approved unanimously 7–0. City authorized to acquire 1511–1537 East Apache Boulevard for affordable/workforce housing development. Mayor empowered to execute acquisition agreement. Funding mechanism and development timeline not specified in transcript.

Police Brutality Complaint: Michael Allen's complaint (Incident #2022-65629) and Shannon Hayes' follow-up demands referred to City Manager for investigation and potential action. No immediate council action; matter remains under administrative review. No timeline specified for investigation or response.

Perry and Rio Salado Mixed-Use Project (Item 8B1): First public hearing held and introduction approved. Project conditions/revisions requested by council regarding solar EV charging, expanded balcony space, and street-parking mitigation. Applicant agreed to revisit design details. Second public hearing and final vote scheduled December 1, 2022.

Madera Rio Salado Mixed-Use Project (Item 8B2): First public hearing held and introduction approved. Council requested expanded EV parking and solar solutions. Applicant agreed to review balcony dimensions and EV specifications. Second public hearing and final vote scheduled December 1, 2022.

Guadalupe Cemetery Historic Designation (Item 8B3): First public hearing held and introduction approved. Councilmembers Garland and Berdetta Hodge recommended partnership with Tempe History Museum to disseminate historical materials. Carl Herrig acknowledged Town of Guadalupe already has heritage package prepared; coordination with museum to follow. Second public hearing scheduled December 1, 2022. National Register listing expected following Tempe designation approval.

Controversies & Context

Police Excessive Force Complaint — Broader Context:

Michael Allen's complaint reflects a pattern of community concern regarding Tempe Police Department conduct. The June 19, 2022 incident involved three young Black men stopped without stated justification, subjected to multiple taser deployments, and inadequate medical response (one son's brain bleed left unaddressed). Allen's demands for investigation, officer retraining, body-camera access (currently withheld 6–12 months), and accelerated internal-affairs reports (currently 180 days) suggest systemic delays in police accountability.

Shannon Hayes' invocation of Mayor Corey D Woods' identity as Tempe's first Black mayor and the police chief as the first Black chief underscored the symbolism gap between leadership diversity and accountability mechanisms. Hayes' demand for officer removal and unredacted footage reflects distrust of current complaint processes, suggesting community perception that redaction practices obscure officer misconduct.

The council received the complaint without debate, indicating either procedural deference to administrative investigation or reluctance to engage in real-time public accountability discussion. Referral to the city manager preserves administrative discretion but may limit council's oversight role.

Parking Reduction & Urban Infill Debate:

Mike Wallace's parking complaint exposes a tension between Smith Hub infill goals (walkability, transit-oriented density, car reduction) and real-world neighborhood impacts. Two large projects (308 + 319 units = 627 units) proposing below-code parking ratios (1.46 and 1.4 spaces per unit) in close proximity (300–400 feet apart) create cumulative pressure on street parking.

Applicants justified reductions by citing future light-rail/streetcar lines, transit options (Orbit bus, bike paths), and independent parking studies. Council members did not reject reductions but requested mitigation (street-parking permits, signage, possible two-hour limits). However, Wallace's observation—that existing street parking is "absolutely pushed to the max"—suggests study assumptions may not account for current saturation.

The debate reflects broader tension in mid-density urban development: planners assume modal shift to transit before transit is operational, while neighbors experience parking chaos in the interim.

Gentrification Prevention & "Hometown for All":

Corey D Woods' emphasis on the Apache Boulevard acquisition as exemplary of the city's "Hometown for All" strategy signals explicit commitment to preventing displacement-driven gentrification in minority business corridors. The city's willingness to acquire commercial property—not just develop affordable housing—demonstrates proactive intervention beyond typical zoning and permitting roles.

However, the absence of details on funding source, development timeline, and affordability covenant terms in the public record (at least as captured in the transcript) raises questions about long-term affordability and whether acquired property will remain under city stewardship or transfer to a third-party developer.

Native American Land Acknowledgment in Practice:

Corey D Woods' invocation of the city's "Native American land acknowledgment statement" in relation to the Apache Boulevard acquisition—emphasizing "taking care of the land that indigenous people first occupied"—connects affordable-housing policy to indigenous stewardship. This rhetorical framing, however, may exceed the practical scope of the transaction unless the acquisition agreement includes specific provisions for tribal consultation or cultural preservation.

By contrast, the Guadalupe Cemetery designation offers concrete recognition of Yaki and Mexican-American heritage through zoning and historic protection, with potential for broader public education via collaboration with Tempe History Museum.

Duration

• Apache Boulevard and police complaint discussion (Items 8B2, 6 public appearances): Approximately 25–30 minutes (not formally timed in transcript).
• Perry and Rio Salado first hearing (Item 8B1): Approximately 40–50 minutes (applicant presentation, council questions, public comment, council discussion).
• Madera Rio Salado first hearing (Item 8B2): Approximately 35–45 minutes (applicant presentation, council questions, brief public comment expectation, council discussion).
• Guadalupe Cemetery first hearing (Item 8B3): Approximately 25–30 minutes (detailed historical presentation by Carl Herrig, council discussion).
• Total meeting duration: Approximately 3.5–4 hours (full agenda from mayor remarks through adjournment, including ceremonial items, consent agenda, and public comment periods).

Other Notable Items

Tempe Pre Preschool Program Award: City of Tempe received Education Forward Arizona's first-ever Childhood Learning North Star Award for the Tempe Pre program (launched August 2017). Program serves ~1,700 children ages 3–4 with significant outcomes: 69% of families report improved financial stability; 68% report family member returned to or increased work; 15% obtained secure housing; 12% returned to or enrolled in school. Corey D Woods and Randy Keating accepted on behalf of council. Aaron Hart (Education Forward Arizona, SVP) presented. Recognition affirms partnership between city and Tempe Elementary School District as statewide model.

US-60 Water Line Break Communication Excellence Awards: City's Communication and Marketing Office received two awards for crisis communications during May 7, 2022 water-line break at US-60/McClintock (24-inch transmission line burst, freeway closed 3 weeks, 170,000 daily vehicle trips affected). Phoenix chapter of Public Relations Society of America awarded Prize of Merit; National City County Communications & Marketing Association (3CMA) awarded Savvy Award (highest honor). Team recognized: Jason Wolf, Eddie Garcia, Chris Baxter, Nikki Ripley, Mark Weber, Tara Ford, Julian Drisang, and staff. Mayor declared May 23 "U.S 60 Workers Day." Awards recognize strategy of frequent, accurate communication and millions of views across videos, social media, press conferences, and dedicated webpage.

Organizational Structure Ordinance (First Hearing): Item 8B4–8B6 (not voted; introduced for first hearing, second hearing December 1). Council approved establishment of new city offices: Communication and Marketing Office, Diversity Equity and Inclusion Office, Education Career and Family Services Office, Government Relations Office. Renamed Human Services Department to Community Health and Human Services Department; renamed Strategic Management and Diversity Office to Strategic Management and Innovation Office. Added Chief Deputy City Manager and Assistant City Manager positions. Details on staffing levels and budget transfers (Items 8B5–8B6) noted but not fully specified in transcript.

Veterans Appreciation & Proclamations: Corey D Woods issued proclamations for Veterans Brain Health Awareness Day (November 15) and Law Enforcement Records Personnel Appreciation Day (November 3). Emphasized 480,000+ military personnel with traumatic brain injuries and 600,000+ diagnosed with PTSD; noted Tempe PD records staff process 2,600 calls monthly (31,000 annually) and 7,000+ public records requests annually. Council members encouraged attendance at Veterans Day Parade (November 11, 10 a.m., ASU Gammage to Mill Avenue) and veterans breakfast (November 10, 5:30–8:30 a.m.).