Tempe approves 200-unit apartment complex with median design changes, advances Carvana headquarters
TEMPE, ARIZONA — July 2, 2021

Tempe approves 200-unit apartment complex with median design changes, advances Carvana headquarters

City Council approved three significant residential and office developments including a contested 200-unit apartment complex after negotiating design changes to address neighborhood traffic and median access concerns, while advancing affordable housing acquisitions.

Tempe Council Approves Price and Baseline 200-Unit Complex with Firm Commitment to Preserve Bala Drive Access, Resolves Year-Long Traffic Dispute

The Tempe City Council voted unanimously to approve a 200-unit apartment complex at Price and Baseline Road on July 1, 2021, after developer Trammell Crow Residential and city staff negotiated critical design changes to address over 350 community signatures opposing the project. The most significant compromise: a revised "Alternative 3A" median design on Baseline Road that preserves access to and from Bala Drive—a demand that emerged from intense neighborhood pressure and became the council's formal preference written into the approval.

The vote capped a contentious process spanning nearly two years, marked by pandemic-era virtual meetings, conflicting traffic concerns, and resident fears about transformation of their neighborhood south of the 101 freeway. Yet the council's handling of the dispute—approving the project while institutionalizing a strong preference for the median design that neighborhoods favored—illustrates how public comment and organized opposition can reshape developments even when the underlying entitlement (an office building up to 35 feet) already belongs to the owner.

Key Speeches

"If this project weren't approved tonight, I imagine without any arbitration an office building that's taller that takes up twice as much of the lot that's more intrusive that has glass all around that has views of people's homes and yards and has limited landscaping—that's what could be built and that would be built by right. We would not be able to stop it. It wouldn't even come before us." — Councilmember Nikki Amberg

"I would much rather approve a multi-family residential complex as opposed to an office building that they're already entitled for, up to 35 feet, and this council nor the Development Review Commission would have the ability to have any input on whatsoever. That frankly is what frightens me—when we don't have an opportunity to have a hand in any of this and something just happens to our city." — Mayor Corey D Woods

"I understand that the residents' traffic issues, and I think we've been trying to work through these for the last year. I think by decreasing those entrance points on Price and having them primarily on Baseline and on Priest, we think that will certainly help some of the traffic. We hope to have an answer from ADOT in the next couple of months. We feel like we can work out a solution." — Angela Vazquez, Gammage & Burnham, PLC

"I do want to see—a neighborhood approval of the traffic resolution—that it not impinge on Bala and that the median not go west of Bala and keep Bala open." — Councilmember Nikki Amberg

Timeline

Applicant presentation: Angela Vazquez (Gammage & Burnham, PLC) presented on behalf of Trammell Crow Residential. The 200-unit, one- to four-story complex includes 10 studios, 91 one-bedrooms, 86 two-bedrooms, and 14 three-bedrooms—314 total bedrooms served by 362 parking spaces (including 40 guest spaces and 200 covered spaces). Site plan features 32 percent landscape area and 27 percent lot coverage. Building heights on the western edge reduced to 2–3 stories (maximum 28-foot parapet) to protect adjacent Continental Villas neighborhood; three-story buildings (31-foot plate height) along north; four-story buildings (tallest) along the freeway as acoustic barrier. Solar to be added to carports; EV charging stations included.

Staff recommendation: City staff presented condition language requiring coordination with ADOT on median design and commitment to work with developer on traffic solutions. Condition specified the city's preference would be written into approval on second reading.

Public comment: Five speakers submitted comment cards; one resident (Tom Hoover, Continental Villas) spoke live. Hoover voiced concern about access to Bala Drive and traffic impacts on neighborhood collector streets (Fremont, River Drive, Country Club Way) during rush hours. He cited a petition of 350+ signatures gathered during pandemic and noted the underlying traffic study (completed in 2020) may not reflect post-pandemic conditions. Other comment cards submitted by Elizabeth Grosh (Cole Park neighborhood), Chris Higgins (South River Drive resident since 1982), and Shelly Tunis (property directly adjacent to project). Two cards of support: Patrick McNamara and Fitz Madrid, citing the site's unsuitability for retail, adjacency to the 101, and the need for housing for young professionals and graduates.

Council discussion: Councilmember Nikki Amberg emphasized the entitlement scenario—the owner can already build a taller office building by right, which would bring more traffic and offer no negotiation opportunity. She highlighted the developer's responsiveness to neighborhood concerns: reduced western building heights, no windows facing the neighborhood, additional landscaping, and Alternative 3A median design. Nikki Amberg also underscored the need for housing, noting Tempe's large student and young professional population from ASU and surrounding tech corridors (Intel, Discovery, innovation districts in Chandler and Scottsdale) seeking to live locally rather than commute.

Councilmember Arlene Chin pressed for solar installation on carports and EV charging stations; Vazquez committed to both. Councilmember Doreen Garlid suggested indigenous design collaborative artwork reflecting the land acknowledgement resolution passed in October 2020. Councilmember Randy Navarro visited the site and spoke with residents; he emphasized gateway appearance and requested the developer work with landscape architects and Continental Villas residents on vegetation enhancements along Bala Drive. He also stressed the importance of police enforcement during initial occupancy to prevent cut-through traffic and speeding on neighborhood streets.

Councilmember Jennifer Adams inquired about public transportation options, asking Vazquez about bus passes and multimodal incentives. Vazquez noted Baseline has an active bus stop and committed to offering residents transit subsidies and bike parking to encourage alternatives to single-occupant vehicles.

Mayor Corey D Woods delivered the longest council comment, anchoring his support in personal narrative. He described selling his townhome at Mill and Baseline after 14 years and struggling to find affordable housing despite good credit and a stable job. He explained his decision to rent downtown at 5th and Maple, citing fixed costs, proximity to City Hall, and the practical ability to pay down student loans—a burden he noted affects roughly two of three college graduates in the Corey D Woods positioned renting not as a failure or sign of financial distress but as a sound financial and lifestyle decision for increasing numbers of professionals, and he framed apartment housing as essential infrastructure for the city to retain and attract talent.

Vote: Motion by Nikki Amberg, second by Councilmember Nikki Amberg. Passed 6–0. (Councilmember Aradando Savage absent.)

Opposition

Number of speakers against: One live speaker (Tom Hoover); three written comment cards submitted by Elizabeth Grosh, Chris Higgins, and Shelly Tunis. Petition of 350+ signatures gathered by residents during pandemic, primarily from Continental Villas and Cole Park neighborhoods.

Main concerns:

  1. Median design blocking Bala Drive access: Initial proposal included a median on Baseline that would have forced residents to access the site only via Baseline, cutting off the closer, safer Bala Drive route used by adjacent neighborhoods. This prompted the urgent request for Alternative 3A.

  2. Traffic volume and congestion on collector streets: Residents expressed concern that 200 new units would add approximately 370+ automobiles to already-stressed neighborhood thoroughfares, especially Fremont Road, River Drive, and Country Club Way during late afternoon rush hours.

  3. Intersection safety at Price and Southern: Tom Hoover cited congestion already observed at the Price and Southern intersection and noted that Bala Drive alley access was not designed for "lateral transportation."

  4. Price Road traffic concerns: Chris Higgins and others flagged Price Road as an already "very dangerous thoroughfare" with 12,000 vehicles per day (40% morning, 60% evening per city count from 2019) and cited instances of emergency vehicles exiting nearby alleys, indicating the infrastructure is strained.

  5. Parking adequacy: Shelly Tunis questioned why the project was allowed to reduce parking below code requirements and whether a "solid foundation for the code" justified the reduction if the code was not being applied uniformly.

  6. Traffic study methodology: Elizabeth Grosh called for an independent, post-pandemic traffic study, noting the 2020 study may not reflect actual conditions after COVID-19 impacts on commuting patterns.

  7. Quality of life and neighborhood character: Residents expressed concern about the loss of neighborhood ambience and character due to density increase and construction activity.

Most compelling arguments:

Organized groups: Continental Villas (adjacent townhome community, represented by Candace Toller and Tom Hoover) and Cole Park neighborhood (represented by Elizabeth Grosh and Chris Higgins). Candace Toller requested the decision be delayed until August 5 and asked Tom Hoover to speak on her behalf, citing ongoing ADOT negotiations.

Support

Number of speakers for: Two written comment cards submitted by Patrick McNamara and Fitz Madrid, expressing support for the project. Council members Nikki Amberg, Navarro, and Doreen Garlid spoke in favor.

Main arguments:

  1. Entitlement and best-available alternative: The site is already entitled for an office building up to 35 feet. Apartment housing is a better use than commercial office or retail, which would generate more traffic and offer no opportunity for public input or design negotiation.

  2. Housing need and workforce retention: Tempe has a large population of ASU graduates and young professionals working in tech corridors (Intel in Chandler, innovation districts in north Scottsdale) who want to live in Tempe but face prohibitive home prices. Apartment housing allows graduates to remain in the city during early careers and potentially transition to home ownership later.

  3. Current site blight: The existing shopping center (Lake Country Village) is largely vacant and has become a beacon for transient populations. Redevelopment will eliminate visual blight and generate property tax revenue.

  4. Traffic reality: Office buildings and retail centers bring continuous traffic throughout the day and unpredictable usage patterns. Apartment residents follow predictable schedules (morning and evening commutes, weekend errands), similar to the Lake Country Village apartment redevelopment and similar projects along Baseline (Harper, San Marcos), which have not generated severe traffic problems.

  5. Positive precedent: Councilmember Navarro cited the Lake Country Village project transformation and noted that traffic impacts have not been "noticeable" despite high occupancy in adjacent apartment complexes.

  6. Gateway and community investment: Patrick McNamara and Councilmember Navarro emphasized the importance of developing this corner as a visible gateway to Tempe from Mesa and as a symbol of the city's commitment to growth and livability.

Most compelling argument:

Corey D Woods personal narrative about renting as a financially sound decision, combined with the entitlement backdrop (office building by right), shifted the debate from "should we build this project?" to "what form should development on this site take, and who gets a voice in its design?" This framing allowed council members to approve the project while maintaining credibility with residents by institutionalizing their preferred median design.

Project Details

Case number: Not stated in transcript.

Applicant / developer: Trammell Crow Residential.

Attorney: Monchala Vaz (Mannela Vaz), Gammage & Burnham, PLC.

Location / address: 2160 East Baseline Road, at the southeast corner of Price Road and Baseline Road, Tempe, Arizona.

APN (Assessor Parcel Number): Not stated in transcript.

Current zoning → Proposed zoning: PCC-1 (Planned Commercial Center) to R4 (Multi-Family Residential).

General Plan amendments: Projected land use map changed from Commercial to Residential; projected density map amended from Medium Density (up to 15 dwelling units per acre) to Medium-High Density (up to 25 dwelling units per acre).

Density / units / square footage: 200 dwelling units on 4.51 acres. Breakdown: 10 studios, 91 one-bedrooms, 86 two-bedrooms, 14 three-bedrooms. Total 314 bedrooms. Buildings 1–4 stories. Lot coverage 27 percent; landscape area 32 percent.

Parking: 362 parking spaces, including 40 guest spaces and 200 covered spaces. Ratio: 1.15 spaces per unit; 1.15 spaces per bedroom; 1.6 guest parking ratio. Solar installation on carports; additional EV charging stations.

Changes from previous version (if reconsideration): Western edge building heights reduced from three stories to 2–3 stories (parapet 20–28 feet) to protect adjacent Continental Villas neighborhood views. Three-story buildings along north edge (31-foot plate height, lower than permitted office or neighboring apartment buildings). No windows on north face of northeast three-story building (windows face east toward freeway). Four-story buildings on east (freeway-facing) side for acoustic barrier. Median design evolved from initial blocking of Bala Drive to Alternative 3A, which preserves Bala Drive access while maintaining primary development access on Baseline.

Amenities: Private yards along Bala and Price sides; open space; landscaping; possible corner art installation at Price and Baseline (discussed with Councilmember Navarro regarding sister city collaboration or distinctive gateway art).

Contributions: Project contributes to Hometown for All affordable housing initiative.

Vote Breakdown

Final: 6–0 (two items: General Plan Amendment and Zoning/Development Plan).

General Plan Amendment (Resolution):

Zoning Map Amendment, Planned Area Development Overlay, and Development Plan Review (Ordinance):

Individual votes not fully parsed in transcript; vote was announced as 6–0 with named absentee.

Outcome & Next Steps

The Price and Baseline project was approved on second reading. The council added a formal condition expressing strong preference for "Alternative 3A" median design, which preserves Bala Drive access while maintaining baseline entrance. The city committed to work with developer Trammell Crow Residential and ADOT to finalize the median configuration. Councilmember Navarro requested the developer engage with landscape architects and Continental Villas residents to design enhanced vegetation along Bala Drive, and the developer agreed to explore this. No construction timeline was specified, but ADOT review and approval is expected within the next several months (applicant cited "fall" as hoped timeframe).

The city also committed to traffic enforcement during initial occupancy to prevent cut-through traffic on neighborhood streets (Fremont, River Drive, Country Club Way) and to work with the developer on multimodal transportation incentives, including bus passes and bike parking to reduce single-occupant vehicle trips.

Controversies & Context

Historical context and negotiation: The Price and Baseline site (a failed shopping center, Lake Country Village, now mostly vacant) has been commercially zoned for years. The underlying entitlement allows an office building up to 35 feet by right, without city council approval. The community's organized opposition (350+ signatures) was motivated primarily by traffic concerns, especially after learning of the initial median design that would block Bala Drive access. This triggered a year-long series of negotiations among the developer, residents, the city, and ADOT.

Median design evolution: The developer's initial design included a median on Baseline that would have prevented left turns from Baseline into Bala Drive, forcing residents to access the development only via Baseline or to loop around via Price. This was perceived as unsafe and unfair to neighbors. Resident representatives (Candace Toller, Tom Hoover, Elizabeth Grosh) pushed back hard, and the council ultimately insisted on Alternative 3A—a median configuration that preserves both Baseline and Bala access, with the primary development entrance on Baseline (to discourage navigation software from routing commuters through Fremont and neighborhood streets).

Broader narrative: The council used this approval to articulate a philosophy about housing, density, and professional mobility. Corey D Woods extended personal narrative about renting as a sound financial strategy—rather than a marker of financial distress—was intended to reframe apartment housing not as "transient" or "low-income" but as a necessary and dignified option for graduates and young professionals managing student debt and rising home prices. This addressed implicit concerns in some of the public comment about the character of renters and property values.

ADOT role: Arizona Department of Transportation (ADOT) has jurisdiction over the median configuration on Baseline Road and must approve the final design. The developer, city, and ADOT are to work together to select Alternative 3A or a similar design that preserves Bala access while routing primary traffic to Baseline. The condition language empowered the city to advocate for the neighborhood's preferred design.

Affordable housing: Both the Price and Baseline project and the concurrent Milhouse development commit contributions to the Hometown for All initiative, underscoring the council's strategy to tie market-rate housing approval to affordable housing funding.

Duration

This item: Approximately 90 minutes (presentation, public comment, council discussion, two votes).

Total meeting: 109 minutes (6:03 p.m. to 7:52 p.m.). The meeting included consent agenda items, miscellaneous contracts, easement abandonments, two affordable housing property acquisitions, and the Carvana corporate headquarters project on first reading.

Other Notable Items

Carvana Corporate Headquarters (15-acre site, southeast corner of Priest Drive and Rio Salado Parkway): Locally headquartered, publicly traded technology company (market cap $50 billion) seeking approval for a 300,000 square foot corporate campus with two new three-story Class A office buildings, renovation of one existing building, two parking structures with EV charging (10 stations per garage), centralized amenity space (chess board, basketball, pickleball, public art, pedestrian connections), and relocated primary access point from First Street to a new signalized intersection on the east side. Attorney Wendy Riddell (Barry Riddell law firm) presented on behalf of Verdi Investments. Councilmember Nikki Amberg requested solar installation consideration; Riddell agreed to explore options. Councilmember Doreen Garlid suggested indigenous design collaboration for shade structures or public art reflecting the city's October 2020 land acknowledgement resolution. Design Review Commission recommended approval 6–1. One neighbor (HOA president) attended virtual neighborhood meeting and expressed support. No organized opposition noted. First reading approved; second hearing scheduled August 5, 2021.

Milhouse Multi-Family Residential Development (2125 East Apache Boulevard): 219-unit apartment community with 5 live-work units and 590 square foot restaurant on 4.51 acres. Zoning change from CSS and R4 to MU4. Second reading approved 6–0. Monchala Vaz (Gammage & Burnham, PLC) confirmed solar installation on canopies, additional EV charging, and color accents per council request. City and developer committed to assisting remaining RV park residents (approximately 4 remaining from original 14) with relocation support through navigators. Project contributes to Hometown for All initiative.

Affordable Housing Acquisitions: Two properties on East Apache Boulevard acquired for affordable housing. (1) 2158 and 2174 East Apache Boulevard: 46 units preserved immediately; long-term plan for 150 permanent affordable units. (2) 2101 East Apache Boulevard: Short-term transitional housing with plan for 50-unit permanent affordable development. Lavon Laney, city housing manager, presented both acquisitions on first reading. Corey D Woods praised Laney and her team for advancing Hometown for All initiative within six months, describing the work as "amazing." Both items scheduled for second reading August 5, 2021.

Personnel: City Manager announced departure of Alex Smith, 16-year city employee specializing in real estate development and development agreements, to a promotion with Maricopa County. Mayor Corey D Woods and City Manager offered tributes to Smith's expertise, dedication, and professionalism. No vote was required.