Town of Guadalupe
General Plan 2044
Contents
1.0 Introduction
Overview of the Town of Guadalupe
Historical Perspective of the Town
Guide to the Town of Guadalupe General Plan
2.0 Administration Element
Introduction
General Plan Adoption and Ratification Process
General Plan Amendments
General Plan Implementation
General Plan Updates
Implementation Mechanisms
3.0 Land Use Element
Description of the General Plan 2044 Land Use Element
Existing Land Use
Land Use Designations
Future Land Use Plan
Land Use Intensity/Density
4.0 Circulation Element
Introduction
Existing Transportation System
Future Transportation System
5.0 Economic Sustainability Element
6.0 Plan Goals

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1.0 Introduction
1.1

Overview of the Town of Guadalupe

Guadalupe is a Native American and Hispanic community of approximately 5,300 residents
located between the cities of Phoenix and Tempe, at the base of South Mountain.
The Town proudly maintains a strong cultural and ethnic identity. It is named after the Virgin of
Guadalupe, the patron saint of Mexico.
Guadalupe was founded by the Yaqui Indians around the turn of the century. The Town of
Guadalupe was incorporated in 1975 and is slightly less than one square mile in area. The Town
will remain this size since it is surrounded by man-made boundaries; Interstate 10 and the City
of Phoenix on the west; the City of Tempe to the North and South; and by the Salt River
Project's Highline Canal on the East.
The Town of Guadalupe has a council-manager form of government.

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1.2 Historical Perspective of the Town
Guadalupe is a unique place, home to three cultures – The Yaqui people who settled in what is
now Guadalupe, and subsequent Mexican and Anglo settlers.
The Pascua Yaqui Indians endured many turbulent times beginning with wars fought against the
Spanish and Mexicans. The Yaquis lived on land near the Yaqui River in Sonora, Mexico, until
they were exiled. The Yaquis were sent down to the jungles of Yucatan. During the Mexican
Revolution, the Yaquis aligned with Pancho Villa. When Villa's army was defeated, the Yaquis
headed to the United States for safety. Many of the Yaquis came up to the Salt River Valley to
work on the construction of canals in the area. A community sprung up part of which is today’s
Guadalupe.
Over the years, many Hispanic families have also located in Guadalupe, and it has become a
stopping point for Mexican immigrant workers. When the Yaqui people fled to Arizona, Anglos
here were sympathetic to their plight as refugees and Yaquis were able to find a home in the
Salt River Valley's agricultural economy. Catholic and Presbyterian missionaries also supported
the community and helped secure land for a legal Town site in 1914. Residents voted to
incorporate the Town in 1975.
The three cultural groups of Guadalupe flourish today in an interconnected tapestry of life, rich
with tribal, cultural, and religious celebrations and ceremonies.
1.3 Guide to the Town of Guadalupe General Plan 2044
The Town of Guadalupe General Plan 2044 was created to comply with Arizona's Growing
Smarter (1998) and Growing Smarter Plus (2000) legislation, but more importantly, to also
identify, preserve and protect. It is based on the community’s desire to accommodate new
private development and public improvements that nurture economic vitality while reinforcing
the existing sense of community valued by so many. The General Plan has been organized into
the following chapters.

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Chapter 1. Introduction Element — Describes the location and context of the Town of
Guadalupe, provides an overview of each element/chapter included in the Plan.
Chapter 2. Administration & Implementation Element — Describes the administrative
processes and procedures to successfully administer and implement the plan once
adopted.
Chapter 3. Land Use Element — Designates the proposed general location and size of
uses of the land such as housing, business, industry, recreation, public buildings and
grounds, open space, and such other categories of public and private uses of land that
may be appropriate in the Town.
Chapter 4. Circulation Element — Consists of the general location and extent of existing
and proposed freeways, arterial, collector and neighborhood streets, and bicycle routes.
Chapter 5. Economic Sustainability Element — Provides guidance for planning to
establish a fully integrated and sustainable municipal economy. Jobs, revenue and
financial stability contribute to the municipality’s economic health.
Chapter 5. Plan Goals — Consists of the aspirational goals associated with the General
Plan elements.
The Town of Guadalupe General Plan 2044 represents a framework for the form and function of
Guadalupe over the next 20 years. It is a statement developed with the community and for the
community to maintain quality of life through managed growth and development. Town of
Guadalupe General Plan 2044 is a statement about Guadalupe’s commitment of individual and
collective action to accomplish important community values, including:
• Community well-being
• Economic sustainability and growth
• Managed growth
• Positive image and identity
• Coordinated transportation and infrastructure systems
• Arts and culture
• Environmental stewardship
Optimizing these community values and goals requires collaboration between public agencies
and private organizations, and partnerships between neighborhood residents and businesses.
As it has done throughout its history, the Guadalupe community will attain the goals of the
Town of Guadalupe General Plan 2044 by striving to understand others’ perspectives and
working together for the good of the community.

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2.0 Administration & Implementation Element
2.1 Introduction
This chapter describes the administration of the Town of Guadalupe General Plan 2044. Town
departments should understand the General Plan and use it as a foundation for decision
making. Furthermore, state and regional governmental agencies should be aware of the goals in
the Town of Guadalupe’s General Plan so there is greater likelihood they will coordinate their
efforts to complement the General Plan. Finally, the residents and business community should
understand and support the Town of Guadalupe General Plan. When all these entities are
working in concert to achieve the common goals and policies in the Town of Guadalupe General
Plan 2044, Plan administration will be successful, and the community will progress.
2.2 General Plan Adoption and Ratification Process
Arizona Revised Statutes, Section 9-461.06 requires that adoption or re-adoption of the General
Plan be by resolution, approved by an affirmative vote of at least two-thirds of the Town
Council.
Guadalupe’s population from the 2020 census is 5,322 and the 2010 census was 5,523. That is
below 2% annual growth over the last decade. This means that under state law, once
notification and outreach requirements and timing constraints are met, the Town’s General
Plan may be adopted by Council by Resolution at a voting meeting after a public hearing.
The General Plan must be submitted for approval every 10 years. This requirement provides an
opportunity for the Town to assess progress that has been made and to respond to changes in
the community.
2.3 General Plan Amendments
Periodic amendments to the General Plan can be beneficial to the community. Conditions will
change over time, new technologies will evolve, the socioeconomic conditions of the
community will continue to evolve, and economic conditions will change. Significant changes in
any of these factors might necessitate a change in the Guadalupe General Plan. Additionally, a
General Plan for the entire community is, by its very nature, general. Looking at a specific parcel
or area of the community allows for a greater level of detail and may provide additional
information which differs from the general policies and details of the General Plan.
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ARS Section 9-461.06 also sets forth the requirements for General Plan amendments, including
a requirement that governing bodies follow written procedures that provide effective, early,
and continuous public participation. In that regard, amendments to the General Plan shall occur
after careful review of the request, findings of fact in support of each amendment, and public
hearings by the Town Council. The findings of fact required shall include (but are not limited to):
•

That each amendment will result in acceptable means of mitigating impacts through
subsequent zoning action of the development process, to not adversely impact the
community as a whole, or a portion of the community.

•

That each amendment is consistent with the Guiding Principles of the General Plan.

•

Amendments to the General Plan may be initiated by the Town or by formal application
by the owner(s) (or their agents). Applicants must demonstrate that the proposed
change is an improvement to the General Plan. With regard to major amendments of
the General Plan, the Town shall take steps to ensure participation from all geographic,
ethnic, and economic areas, including:
o broad dissemination of proposals and alternatives;
o opportunity for written comments;
o public hearings after effective notice;
o open discussions, communications programs, and information services;
o consideration of public comments; and
o consulting with and advising public officials and agencies, the County, school
districts, association of governments, public land management agencies, other
appropriate government jurisdictions, public utility companies, civic, educational,
professional, and other organizations, property owners, and citizens to secure
maximum coordination of plans and to indicate properly located sites for all public
purposes on the General Plan.

To ensure adequate review of proposed major amendments, at least 45 days before they are
noticed, the planning agency shall transmit the proposal to the Town Council and for review to:
o the planning agency of Maricopa County;
o the neighboring cities of Phoenix and Tempe,
o the Maricopa Association of Governments;
o any person or entity that requests in writing to receive a copy of the proposal.
2.3.1 Major Amendments
A major amendment to the General Plan is any proposal that would result in a change to the
Land Use Plan that would substantially alter the Town’s planned mixture or balance of land
uses. The following criteria are to be used to determine whether a proposed amendment to the
General Plan substantially alters the mixture or balance of land uses. The term amendment
shall apply to both text and map revisions.
A major amendment is any proposal that meets any one of the following criteria:
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•

A change from a residential land use classification to a non-residential land use
classification on 5 or more acres, except for Open Space and Public/Quasi- Public
classifications.

•

A proposal on 5 or more acres that increases the maximum number of allowable
residential units by more than 10 units.

•

Any proposal that in aggregate includes changes in land use designations exceeding 10
acres.

•

A proposal that results in a significant alteration, displacement, or diversion of a road
alignment from the Circulation Plan, including but not limited to a change in functional
classification.

•

A proposal against which a written petition has been submitted, signed by qualified
electors of the Town (as defined by state law), equal to 10% of the total number of
votes cast at the Town election last preceding the submission of the petition at which a
Mayor or Councilmember was chosen.

Amendments to the General Plan shall only occur after careful review of the request, findings of
fact in support of the amendment, and public hearings by the Town Council. Major
amendments are considered on an annual basis by the Town Council and require a two-thirds
majority approval. They are presented at a single public hearing during the calendar year in
which they are made.
2.3.2 Minor Amendments
Any amendments that do not qualify as major amendments to the General Plan shall be
considered minor amendments. Any change mandated by changes in state law shall also be
considered minor amendments.
2.4 General Plan Implementation
ARS 9-461.07 provides additional guidance for implementation of General Plans. In compliance
with these requirements, the Town staff shall:
•

Investigate and make recommendations to the legislative body about reasonable and
practical ways to put the Plan into effect so that it will serve as a pattern and guide for
orderly growth and development, and as a basis for efficient expenditure of funds. The
recommended measures may include plans, regulations, financial reports, and capital
budgets.

•

Provide an annual report to the legislative body on the status of the Town of Guadalupe
General Plan 2044 and progress towards its application.

•

Endeavor to promote public interest in and understanding of the General Plan and
regulations relating to it.

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•

Consult with and advise public officials and agencies, public utility companies, civic,
educational, professional, and other organizations, and residents generally as it relates
to carrying out the General Plan.

2.5 General Plan Updates
Separate from General Plan amendments that are typically related to particular areas or
proposed developments, there are times when circumstances may suggest general updates to
Plan goals and policies. Therefore, the Town of Guadalupe staff shall regularly review and
monitor the amendment and implementation process and provide, when appropriate,
recommendations to the Town Council for potentially updating the Town of Guadalupe General
Plan 2044 to ensure the Plan remains valid. In appropriate circumstances, staff may
recommend to the Town Council that the Town of Guadalupe General Plan 2044 be adopted or
readopted sooner than every 10 years.
2.6 Implementation Mechanisms
General Plan 2044 will be used by policymakers to guide Town decisions and to evaluate future
growth and development.
The greatest means for implementing a General Plan are partnerships and coordination. These
means are often facilitated through several planning tools, including but not limited to:
• Zoning and Subdivision Ordinances
• Capital Improvement Plans
• Planned Area Developments
• Development Agreements
• Public-Private and Tribal Partnerships
• Staff Time
• Volunteer Citizen-Based Committees and Commissions
• Interagency Coordination – Local, County, Regional, State and Federal
A variety of funding tools also facilitate implementation of the General Plan, including:
• Private investment
• Town general funds
• Federal, state, local, and private grants
• Creative community fundraisers
• Private-public and Tribal partnerships

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For any community General Plan to be effective, it needs to be kept current and used as an
ongoing reference manual to help guide future land use and community development
decisions. This keeps the Town focused forward on achieving the long-term goal of building the
best Town of Guadalupe possible for future generations. While no General Plan can accurately
predict the future, it provides a frame of reference to guide future decisions that will hopefully
minimize short-term decisions that could adversely affect the best interests of the community
over the long term.
2.7 A Unified Direction Toward the Future
The Town of Guadalupe General Plan 2044 represents a framework for the form and function of
Guadalupe over the next 10 years. It is a statement developed with the community and for the
community to maintain quality of life through managed growth and development. Town of
Guadalupe General Plan 2044 is a statement about Guadalupe’s commitment of individual and
collective action to accomplish important community values, including:
• Community well-being
• Economic sustainability and growth
• Managed growth
• Positive image and identity
• Coordinated transportation and infrastructure systems
• Arts and culture
• Environmental stewardship
Optimizing these community values and goals requires collaboration between public agencies
and private organizations, and partnerships between neighborhood residents and businesses.
As it has done throughout its history, the Guadalupe community will attain the goals of the
Town of Guadalupe General Plan 2044 by striving to understand others’ perspectives and
working together for the good of the community.

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3.0 Land Use Element
3.1 Description of the General Plan 2044 Land Use Element
The Land Use Element presents a vision that will guide local development decisions during the
lifetime of General Plan 2044. The focus of this Element is on the future form of the Town,
including policies on the location of new housing and employment areas. The Land Use Element
serves as the basis for future zoning and rezoning requests.
Diversifying and strengthening the local economy is a priority for the Town. Presently, the
Town’s economy provides local and some regional serving amenities, and the Town would like
to create additional opportunities for more highly skilled, higher-wage jobs and broaden the
type and range of services available. The designation of commercial lands on the Land Use Plan
is intended to provide such opportunities, and to ensure that Guadalupe remains a financially,
culturally and environmentally sustainable community.
As future development occurs, the Land Use Plan will be updated to reflect these changes.
3.2 Existing Land Use
The planning area for the General Plan 2044 includes lands within the Town limits as of October
2024. The Town of Guadalupe encompasses approximately 512 acres of land.
RESIDENTIAL
In 2010, the US Census identified 1,727 Housing Units in the Town of Guadalupe, in 2020
that number had grown to 2,049.

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Residential development has occurred within the Town in six named areas. These were
all included within the limits of the Town of Guadalupe when incorporated in 1975.
Figure A below shows these neighborhoods.

Figure A: Neighborhood Map of Guadalupe

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Residential land uses constitute most of the development in Guadalupe, comprising
approximately 85% of the Town’s total acreage.

Residential Districts
The Town’s Zoning Ordinance establishes five types of single-family residential
districts: The single-family residential districts are intended to provide for low density,
detached housing in the R-1-9 district and medium density, detached housing in the R-16 District. The R-2 District is intended to provide for medium density, one-family and
two-family dwellings. The R-3 District is intended for medium density, multi-family
dwellings. The R-4 District is intended for higher density, multi-family.
Planned Area Development (PAD)
Residential Planned Area Developments as defined in Town Code §154.068 involve
groups of structures designed as a unified project permitting flexibility in design so that
developments would produce maximum choice in the types of environments, living
units, and commercial installations and facilities available to the public, and produce an
efficient, aesthetic, and desirable use of open space.

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COMMERCIAL/SERVICES
Commercial and service uses account for approximately 10% of the Town’s total acreage.

Commercial Districts
The C-1 District is intended to preserve and protect neighborhood commercial areas
located in close proximity of residential areas and to provide retailing of convenience
goods and services to meet the frequent needs of the neighborhood. The C-2 District is
intended to provide space for general retail and office uses, and efficient development
of major retail shopping areas to serve the needs of the community and regional area.
The C-M District is intended to provide for general and outdoor retailing uses and light
manufacturing and storage associated with commercial uses.
PARKS, SCHOOLS, AND PUBLIC LANDS
Parks
The Town currently operates 4 developed parks encompassing approximately 17.8
acres. Located in the north portion of the Town is Stottlemyre Field. The Beihn Colony
Park is centrally located, with the Guadalupe Wash and Calle Sewa Wash on the eastern
edge of town against the Salt River Project North Highline Lateral Canal.
Government Buildings
Government buildings are primarily concentrated at the Town's Civic Center. The Civic
Center grounds include the Town Hall, Senior Center, Guadalupe branch of the
Maricopa County library system, Boys and Girls Club of the East Valley, South Mountain
Community College Guadalupe Center, and Maricopa County Sheriff’s Office Guadalupe
Sub-Station
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The Pascua Yaqui Tribe maintains a tribal complex, including a health center just south
of the Town Civic Center complex.
Public Schools
The Kyrene Elementary and Tempe Elementary School districts serve the Town of
Guadalupe, as does the Tempe Union High School District. Frank Elementary School is
located in the Town (grades PK-5), operated by the Tempe Elementary School District.
The South Mountain Community College Guadalupe Center is located in the Town. The
Guadalupe Center maintains active partnerships with nearly three dozen community
organizations, such as the Town of Guadalupe, the Pascua Yaqui Tribe, Boys & Girls Club
of the East Valley, United Way, AWEE, and Tempe Adult Education.
3.3 Land Use Designations
Due to the comprehensive nature of the Land Use element, land use issues are not addressed in
the same detail as they might be in certain physical planning documents, plans, and ordinances
the Town of Guadalupe may adopt. The land use categories described in the Land Use Plan
section of this Element indicate general categories of allowed uses and development intensities
within each land use category. Other documents, including the Zoning Ordinance and
Development Agreements, establish more specific regulations and policies influencing
development. These are discussed below.
TOWN OF GUADALUPE ZONING ORDINANCE
The Zoning Ordinance establishes land use districts where specific regulations apply, such
as density, height, size, and development character. The Ordinance consists of two primary
parts: a map that delineates the boundaries of zoning districts; and text that explains the
purpose of the district, specifies permitted, conditional and accessory uses, and establishes
development and performance standards.
Zoning translates the long-term guiding principles, goals, and policies of a General Plan into
the guidelines used for everyday decisions. The Zoning Ordinance establishes the following
zoning districts:
R-1-9
R-1-6
R-2
R-3
MFR
C-1
C-2
C-E
PAD

Single-Family Residential
Single-Family Residential
One- and Two-Family Residential
Multi-Family Residential*
Multi-Family Residential**
Neighborhood Commercial
General Commercial
Commercial – Employment**
Planned Area Development

* “R-3” is currently under consideration to be transitioned to “MFR” in 2025
** “MFR” and “C-E” are under consideration as new zoning designations in 2025

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DEVELOPMENT AGREEMENTS
Development agreements enable a town or city to enter a binding contract with a
developer and/or landowner to define for the Town of Guadalupe the type, character, and
quality of development and guarantee the developer that the necessary permits will be
issued regardless of changes in regulations that may occur in the future. This ensures that a
developer and/or landowner of a multi-phased project who has based project financing on
conditions negotiated with the Town at a particular time would not be adversely affected
by subsequent change in regulations that might otherwise affect the project. This, in-turn,
enables the Town to obtain additional contributions and benefits from the developer
and/or landowner.
3.4 Future Land Use Plan
The General Plan 2044 Future Land Use Plan presented at the end of this Element provides a
vision for the Town’s development through the year 2044. Land use designations (categories)
indicate the type and nature of development that are allowed in each location. While terms like
“residential,” “commercial” and “industrial” are generally understood, State General Plan law
requires a clear and concise description of the land use categories that are depicted on the
Future Land Use Plan.
The Future Land Use Plan contains 8 land use categories as follows:
RES
HI-RES
N-COM

Low-to-Medium Density Residential
High-Density Residential
Neighborhood Commercial

G-COM
EMP
PAD
ROS
CF

General Commercial
Employment
Planned Area Development
Recreation & Open Space
Community Facility

Table C shows these designations along with their corresponding zoning districts:

PAD

C-E

C-2

C-1

R-4

R-3

R-2

R-1-6

Zoning Districts

R-1-9

General Plan 2043 Land Use
Designations
Low-to-Medium Density Residential
High-Density Residential
Neighboorhood Commercial
General Commercial
Employment
Planned Area Development
Open Space
Public Facility
Table C: General Plan Consistency with Zoning

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Descriptions of each of the land use categories depicted on the Land Use Plan are provided
below. The land use designations should be referenced when interpreting the Land Use Plan.
Designation of an area with a particular classification does not entitle a property owner to
develop at the top end of the stated density or intensity range. These use descriptions, types,
and limitations are more specifically defined within the Town’s Zoning Ordinance. Site and
neighborhood specific conditions, plus available services, transportation capacity, site
constraints, and other factors are considered when establishing the allowable density for an
individual project.
Low-to-Medium Density Residential
The Low-to-Medium Density Residential (RES) designation is intended to provide for the
development of single-family detached homes. Densities in the RES designation range from 1.0
to 8.0 dwelling units per acre (1.0 – 8.0 du/ac) which would accommodate detached singlefamily residences, attached single-family residences, townhomes, and mobile homes. These
areas should be located within proximity to schools, parks, shopping, and employment. Nonresidential uses that complement and serve the surrounding residential neighborhood typically
include schools, parks, churches, and public facilities.
Zoning districts compatible with the Low-to-Medium Density Residential (RES) designation
include: R-1-9; R-1-6; R-2, R-3 and PAD.
High Density Residential
The Medium-High Density Residential (HI-RES) designation is intended to provide for the
development of multi-family residential uses. Densities in the HI-RES designation range above
8.1 dwelling units per acre (8.1 du/ac) that would accommodate attached single-family homes,
apartments, townhomes, and condominiums close to employment and service areas, and that
would buffer low density residential areas.
Zoning districts compatible with the HI-RES designation include: R-4 and PAD.
Neighborhood Commercial
The Neighborhood Commercial (CC) designation is intended to allow for both neighborhood
and community serving commercial uses. Neighborhood serving commercial uses generally
include smaller scale business activities that provide retail or convenience services for the
residents in the surrounding neighborhood. Community serving commercial uses generally
include retail, professional office, and service-oriented business activities that serve the entire
community. Community commercial areas typically include neighborhood commercial uses, as
well as larger retail uses. Institutional uses such as churches and schools are also appropriate if
they are compatible with surrounding land uses. Sites with the CC designation need to be
sensitive to the surrounding land uses when establishing their development intensity. Floor
area ratios (FAR) range from 0.25 for high trip generating land uses to 1.0 for low trip
generating land uses; a mix of one to three-story buildings is appropriate for the sites. This land
use designation is typically located along arterials due to the potential amount of traffic
generated.
Zoning districts compatible with the CC designation include: C-1, C-2, C-M and PAD.

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General Commercial
The General Commercial (G-COM) designation is intended to apply to large retail shopping
areas that serve a regional market area. The intended uses within this designation include
major department stores, specialty retail outlets, restaurants, offices, hotel, and other
complementary uses. Auto sales are allowed within specific zoning designations.
Development in this designation generates high volumes of traffic because of the regional draw
and location near highways and major arterials and away from residential uses. Floor area
ratios up to 1.0 are allowed. Buildings can be a mix of one- to three-story buildings.
Zoning districts compatible with the G-COM designation include: C2 and C-M and PAD.
Employment
The Industrial (EMP) designation is intended to provide for a variety of small-, medium- and
large-sized industrial and compatible office-and-support commercial uses. Uses include
manufacturing, processing, research, science, engineering, wholesale trade and institutional
uses. Development in this designation is intended to minimize conflicts between the industrial
uses in this designation and adjacent land uses, especially residential, parks and open space,
and institutional designations.
Development in the EMP designation should be contained on large parcels. Floor area ratios for
development are limited to a maximum of 1.0, though increases are available for situations
where there is a special need. A mix of one- to three-story buildings is appropriate. Because of
the traffic generated by these uses, the Employment designation is located on major roadways
and at the exterior borders of the Town.
Zoning districts compatible with the EMP designation include: C-E and PAD.
The Planned Area Development (PAD) designation is intended to promote a unified
development, consisting at a minimum of a map and adopted ordinance setting forth the
regulations, location and phasing of all proposed uses and improvements to be included the
development. A PAD can be developed for residential, commercial, industrial or a mix of these
types of uses. The PAD is intended to:
• Ensure orderly and thorough planning and review procedures that will result in high
quality urban design and to encourage a variety in architectural design techniques
including, but not limited to, variations in building style, lot arrangements and site
planning.
• Establish procedures that would reduce inequities occurring when strict application of
zoning regulations pertaining primarily to small lots are applied to large lots.
• Permit flexibility in design so that developments would produce maximum choice in the
types of environments, living units, and commercial installations and facilities available to
the public, and produce an efficient, aesthetic, and desirable use of open space.
• Produce an environment of stable character in harmony with the surrounding areas and
developments.
Zoning districts compatible with PAD designations include zoning districts compatible with
designated land uses.

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Open Space
The Open Space (OS) designation is intended to provide for land within the Town that meets
the passive and active recreational needs of the citizens and that promotes and preserves the
health and general welfare of those people. Parks and open space, and the activities they offer,
help to maintain the quality of life in the Town. Park and open space areas provide amenities
for the community for individual and group activities. The OS designation includes both public
and private areas of permanent open space for uses such as parks, recreational facilities,
natural open space, recreation trails, greenbelts, lakes, utility easements, and developable
portions of floodplains along waterways. This designation is intended to include lands acquired
by easement, fee and other methods sanctioned by state and federal law for park land, for the
preservation of biological and cultural resources, and for protecting public safety from flood or
other hazards. Only accessory buildings or those structures related to parks and recreation
facilities are intended for open space lands. The Growing Smarter Plus legislation guarantees a
development right of one dwelling unit per one acre for lands designated as open space, which
provides an allowable alternative land use on these lands.
Zoning districts compatible with the OS designation include zoning districts compatible with
designated land uses.
Public Facility
The Public Facility (PF) designation provides areas for a wide variety of services for the public.
Services provided in this designation promote a high quality of life, protect the safety of the
citizens, and serve as focal points to join the entire Town together. Civic and governmental uses
are intended for this designation, which typically include town offices and facilities, libraries,
schools, post offices, and fire and police stations. Hospital and medical centers may also be
appropriate. Sites are located throughout the Town. Depending on the use for the site,
buildings or other permanent structures may or may not be present.
Zoning districts compatible with the PF designation include zoning districts compatible with
designated land uses.
3.5 Land Use Intensity/Density
State law requires that the Land Use Element define building intensities/ densities. Several
terms are used to define the land use designations described in this Element. The term
“intensity” refers to the degree of development based on building characteristics such as
height, bulk floor area ratio, and percentage of lot coverage. Intensity is most often used to
describe non-residential development levels. For most non-residential land use categories
(commercial, industrial, and public), the measure of intensity known as “floor area ratio” (FAR)
provides the most convenient method of describing levels of development. The floor area ratio
is the relationship of total gross floor area of all buildings on a lot in square feet to the total
land area of the lot in square feet expressed as a ratio. For example, a 21,780-square-foot
building on a 43,560-square-foot lot (one acre) yields a FAR of 0.50:1. The FAR describes use
intensity on a lot, but not the actual building height, bulk, or lot coverage.

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4.0 Circulation Element
4.1 Introduction
The Circulation Element focuses on the movement of vehicles, pedestrians, bicycles, and other
forms of transportation through the existing and future roadway and trail system in the Town
of Guadalupe.
The Town currently has a developed transportation system consisting of arterial, collector and
local roadways, as well as canal trails and paths. The main access corridors to the Town are
provided along the north-south arterial of Avenida Del Yaqui and the east-west arterial of Calle
Guadalupe. Interstate 10 is at the west border of the Town, with exits at Elliot and Baseline
Roads that facilitate access to the Town. Future traffic through the Town will be generated by
several sources, including internal growth within the community of Guadalupe and from new
development throughout adjacent communities and Maricopa County. Aside from roadway
improvements, the Town benefits from improved alternate transportation modes such as
public transportation, and pedestrian and bicycle facilities.
4.2 Existing Transportation System
The roadway network in and through the Town of Guadalupe consists of the interstate carrying
regional traffic, as well as arterial and neighborhood streets carrying local traffic. Interstate 10
provides regional access to the Town. The arterial and neighborhood street system has been
established and utilizes 1 fully signalized intersection.
Public Transit
The Town of Guadalupe is serviced by the regional transit authority, Valley Metro. Valley
Metro operates 14 bus stops in Town along Avenida Del Yaqui, and one at the south side
of Baseline Road. Every residence in the Town is within a 12-minute walk of a Valley
Metro bus stop.
Pedestrian and Bicycle Facilities
Town development standards include improvement of sidewalks and/or landscaping in
conjunction with new developments along arterials. Avenida Del Yaqui features dual bike
lanes and sidewalks.
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4.5 Future Transportation System

CIRCULATION
Minor Arterial
Collector
Residential Street

Signalized
Intersection
Bus Stop

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5.0 Economic Sustainability Element
5.1 Introduction
A strong local economy is the foundation of a vibrant community. The Town is currently
experiencing a structural deficit and needs to consistently generate the revenue needed to
support a level of quality services residents expect and deserve.
Most Arizona communities received revenues from three main sources: retail sales tax
collections, state shared revenues based on population, and property taxes. Guadalupe’s
economic vitality is closely linked to collections from transaction privilege taxes, the main source
of recurring Town revenue. Guadalupe’s portion of State Shared revenues will decline year-toyear as Arizona’s overall population increases and Guadalupe’s borders and population remain
relatively fixed. Therefore, Guadalupe may only plan for this continued decline with more
dependence on sales taxes. There are no property taxes collected by the Town of Guadalupe.
Town lands held in ownership by tax-exempt entities (churches, schools, tribal properties, nonprofit entities) further solidify the inability to collect property taxes in the future.
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30.3% of the Town's parcels are owned by entities receiving tax bills outside the Town
Out-of-Town property owners represent 64.5% of the Town's assessed valuation
14.1% of the Town's parcels are tax-exempt
18.6% of the Town's assessed valuation is tax exempt

Below is the exhibit depicting the Town’s General Fund’s forecasted revenues and expenditures
in October of 2024:

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Below is the exhibit depicting the Town’s General Fund forecasted balance in September of 2024:

Ongoing deficit spending is not sustainable. The Town will need to generate new revenues,
reduce expenditures, or both.
Raise Revenues

Reduce Expenditures

1. Taxes: Sales, Income, Property
2. Grants: Revenue Sharing, Capital Projects
3. Fees
4. Rents
5. Billboard Leases
6. Telecomm Agreements

1. Reduce / Eliminate Services and Programs
2. Reduce / Eliminate Contractual Services
3. Reduction in Force (RIF)
4. Reduce Wages

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5.2 Land Uses and Revenue
Decisions on future land use should reflect this priority of establishing and maintaining robust
tax-generating uses. Most Town revenues are generated at retail centers, and commercial
businesses.

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These centers of commerce should be protected and expanded through the streamlining of
regulatory approvals, supportive land use decisions, and detailed analysis and review of budget
performance on a regular basis.
The use of Town-owned land and buildings should promote revenue expansion and
diversification. Lease agreements should incorporate market rates, and not be subsidized if a
Town structural deficit remains.

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5.2 Use of Grant Funds
The Town has a solid track record of obtaining one-time funding grants. Grant funding should
not support ongoing operations, but rather one-time capital needs. The use of grant funds
towards operations can be detrimental to understanding actual operational funding gaps and
recurring needs.
Examples of operational needs include:

Examples of capital needs include:

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Public Safety
Town Administration
Insurance, Utilities & Fuel
Property & Road maintenance
Social Programs
Landscape & Equipment
Maintenance.

Building Additions
Road and Sidewalk construction
Signage
Installation of Landscaping
Purchase of Large Equipment
Enhancements to Public Property
and Rights-Of-Way

5.3 Town Location Advantages
As surrounding cities continue to evolve, they will provide opportunities to attract new
businesses and economic activity in Guadalupe. The Town should continually position itself to
take advantage of these opportunities.

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5.0 Plan Goals
LAND USE ELEMENT
These goals of the Land Use Element act to organize principles that will be utilized by the Town
of Guadalupe in making decisions regarding the location and intensity of land uses in the Town:
A) Preserve and reinforce the stability and diversity of the Town’s existing neighborhoods,
while allowing for increased density to attract and retain long-term residents and
businesses to promote the Town’s residential quality and economic vitality
B)

Provide for a fully balanced residential mix, which includes a wide range of housing by
location, type of unit, and price, to accommodate various income levels, family size, age,
and physical restraints, that addresses both owner and rental households

C)

Encourage the provision of adequate housing to meet the needs of families of all sizes

D) Promote development of additional retail and employment uses
E)

Encourage home-based employment where the nature of the work is not disruptive to
the neighborhood

F)

Ensure that new development is compatible with surrounding land uses, the circulation
network, the availability of public facilities, and existing development constraints

G) Recognize the need for existing and future residential areas to be separated from
adjacent non-residential uses by providing appropriate buffers be developed and
maintained. Buffers shall be required as conditions of approval and may consist of
landscaping, sound barriers, building setbacks or open space
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H) Strive to reduce or eliminate deferred or lacking property maintenance throughout the
Town. Vigorously enforce Town codes, including building safety and housing codes, to
promote increased property maintenance
I)

Develop and promote programs that recognize excellence in property upkeep

J)

Encourage modernization of older commercial structures including upgrading of building
elevations, parking areas, screening, and landscaping

K)

Consider developing incentive programs to upgrade the appearance of residential,
commercial, and industrial buildings and/or areas

L)

Develop and coordinate programs to prevent the deterioration of existing structures
and public facilities.

M) Identify, preserve, and retain historic structures and areas throughout the Town.
N) Improve pedestrian circulation and amenities
O) Utilize site and building design, landscaping, and parking to make walking convenient,
comfortable, and safe
P)

Provide streets that create comfortable walking environments that are not
overwhelmed by traffic speeds and volumes, while recognizing the need for reasonable
vehicular access

Q) Maintain high standards of quality in the construction of buildings and site features
R)

New development shall be of high-quality design and construction. Development shall
enhance the character and identity of the Town

S)

Work with other agencies providing public utilities or public services to the Town of
Guadalupe to define area wide and regional needs, projects, and responsibilities

T)

Work with neighboring jurisdictions, Maricopa County, and the Arizona Department of
Transportation to coordinate improvements in the regional transportation system

U) Promote water conservation in existing and new projects
V)

Promote installation of low water use landscaping including trees, shrubs, and ground
cover in new projects and existing properties when retrofitted

W) Promote use of drought tolerant plant materials native to the Guadalupe in all Town
landscaping and discourage use of non-native invasive species

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CIRCULATION ELEMENT
Guadalupe’s transportation goals address improvements both to regional and local circulation
by various modes ranging from vehicular convenience to pathway accessibility:
A) Develop and implement a street improvement plan for Guadalupe that supports existing
development and projected growth.
B)

Establish priorities and funding mechanisms for the maintenance and/or improvement
of existing roadways and crosswalks in the Town.

C)

Establish funding mechanisms for the design and construction of improvements to
existing roadways and future transportation infrastructure within the Town.

D) Continue to provide residents with alternative forms of transportation including, but not
limited to, public transit, pedestrian-friendly trails and sidewalks, and bicycle routes.
E)

Develop a connecting system of sidewalks and bicycle paths along existing and future
streets, where deemed necessary and appropriate.

F)

Work with school districts and partner agencies to develop a “Safe Route to School”
system and promote the system to school children of all ages.

ECONOMIC SUSTAINABILITY AND GROWTH DEVELOPMENT ELEMENT
Guadalupe’s economic goals focus on elimination of the current structural deficit and growth of
revenues to consistently generate the revenue needed to support a level of quality services
residents expect and deserve.
A) Consider Development Impact Fees: These fees are imposed on developers in
conjunction with the issuance of building permits to cover the anticipated additional
costs that the Town will bear because of the development. While accepted by the
development community, Guadalupe will need to assure that the fees are competitive
with other communities to avoid redirecting development elsewhere.
B) Consider Property Taxes: These revenues are imposed annually on both residential and
commercial property and tend to be more stable than other sources of revenue.
C) Maintain or Grow Sales Taxes: These are taxes imposed on sales activity that occur within
the Town boundaries. These revenues can vary considerably during the business cycle.
D) Track Construction Excise Sales Tax: This is a tax that is paid on a portion of the material
and labor costs associated with each construction project. The Town of Guadalupe

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typically allocates the revenue generated by this tax, which can vary significantly from
year to year, to capital projects associated with infrastructure enhancement.
E) Examine Bed Taxes: This tax is imposed on the room revenues of hotels and motels
within the Town. These revenues can also vary considerably.
F) Examine Bonding Capacity and Needs: Whether general obligation bonds or revenue
bonds, this source of immediate capital allows for capital projects to be built prior to the
revenue being fully collected. In these cases, community taxes and fees are simply used
to service the debt over a specific period of years.
G) Public-Private Partnerships: Public-Private Partnerships (PPP) constitute an important,
but often overlooked technique for leveraging the limited assets of a community. PPPs
are often used in Town Center areas, where the Town may have acquired land over time,
and desires a developer to redevelop the area. This technique may be able to be used
successfully to encourage desired redevelopment of land and properties the Town owns.
H) Examine Other Miscellaneous Revenue Streams: This includes special taxing districts that
will be dedicated to regionally important transportation improvements.
I) Update Planning, Building and other Service-related Fees.
J) Support land uses in designated employment areas that align with emerging economic
conditions and the town’s target industry sectors, such as retail.
K) Create partnerships with economic development agencies to attract businesses that are
likely to provide sustainable and livable wage employment opportunities.
L) Conduct market research to identify and attract businesses and industries that
complement Guadalupe’s existing strengths and targeted growth sectors.
M) Attract and support the growth of light industrial business.
N) Develop and enforce design standards that ensure new developments and renovations in
the Town align with the town’s historical and cultural aesthetics.
O) Facilitate public-private partnerships to invest in and revitalize key properties within the
Town.
P) Implement streetscape improvements, including landscaping, lighting, and pedestrianfriendly pathways, to enhance the visual and functional appeal of the Town.
Q) Encourage mixed-use developments that combine retail, office, and residential spaces to
create a vibrant built environment.

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R) Continue to support the establishment of art galleries, cultural festivals, and events that
draw visitors to the Town.
S) Guadalupe cultivates an efficient, transparent, and supportive environment for business
growth and development.
T) Maintain a simple and effective development review, permitting, and inspection process.
Ensure that local regulations and policies support and do not hinder the growth of
startups and small businesses.
U) Publish and regularly update clear guidelines and checklists that outline each step of the
process for different types of development requests.
V) Partner with educational institutions to develop and offer vocational and technical
training programs tailored to local industry needs, and to support the employee needs of
high wage industries.
W) Support scholarship programs to assist residents in obtaining necessary certifications and
advanced training in key sectors.
X) Develop internship and apprenticeship programs in collaboration with local businesses
and educational institutions to provide practical experience and career pathways for
young residents.
Y) Promote continuous learning and professional development opportunities for the
existing workforce to ensure they remain competitive in a changing job market.
Z) Enhance Guadalupe’s competitive advantage in attracting employers by investing in
public infrastructure and the overall business climate.

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