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Legacy Park Development

At a glance

  • What: Legacy Park and Gateway Crossing, a mixed-use hospitality, retail and housing project in southeast Mesa near State Route 24 and Arizona Athletic Grounds. Council annexed the land, rezoned 196.3 acres to a Planned Community District and approved a retail tax incentive development agreement.
  • Where it stands: Approved 7-0 on September 14, 2026. Council adopted Ordinance Nos. 6029, 6030 and 6031 and Resolution Nos. 12571 and 12572 in one motion. Construction of infrastructure is projected to begin in January 2028.
  • Next: Developer's estimated schedule: vertical construction of Phase 1 in June 2028 and a Phase 1 grand opening in October 2029. The separate special taxing district is covered on Legacy Park Theme Park District.

Actions taken

  • ANX25-00682, Ordinance No. 6029: annex 5.2 acres at the southwest corner of East Williams Field Road and State Route 24 (owner Pacific Proving, LLC).
  • ANX25-00893, Ordinance No. 6030: annex 196.3 acres at the northeast corner of South Ellsworth Road and East Williams Field Road (owners Pacific Proving, LLC and Mesa BA Land, LLC).
  • ZON25-00891 "Legacy Park," Ordinance No. 6031: rezone the 196.3 acres from Light Industrial to Planned Community District (PC). Staff recommended approval with conditions; the Planning and Zoning Board recommended approval with conditions, 7-0, on August 26.
  • Resolution No. 12571: findings under A.R.S. 9-500.11 and a development agreement that is a retail development tax incentive agreement (five votes required).
  • The annexations and rezoning were introduced on the consent agenda on August 31, 2026 (with ANX25-00725, a 0.38 acre right-of-way annexation, Ordinance No. 6032, which was on the September 14 consent agenda).
  • The minutes name "ANX25-00685" in the public hearing announcement, which does not match the listed case ANX25-00682; likely a typo.

What staff presented

  • City Manager Butler called it a generational opportunity and the largest mixed-use hospitality, retail and housing project in Mesa's history, and said it would help replace revenue lost to state and federal changes. Reimbursements for public infrastructure come only from revenue generated on site.
  • Ms. Basford gave the estimates (Applied Economics study, September 2026): minimum buildout gives $545.1 million in city gross tax revenue (2029 to 2065), 1,687 jobs and $7.4 billion in economic output over 30 years; full buildout gives $1.4 billion, 13,511 jobs and $58.8 billion.
  • Eligible public improvements: about $76.4 million in estimated infrastructure costs plus finance costs at 4 percent simple interest, paid only from tax revenue generated on the site. Eligible items include public water and sewer, roads, signals, a pedestrian tunnel to Gateway Crossing and Arizona Athletic Grounds, the public park and park parking.
  • Minimum private improvements: Legacy Park 500 luxury hotel rooms, 225,000 square feet of qualifying restaurant and retail, 300 multifamily homes and 120,000 square feet of Class A office; Gateway Crossing 190 midscale hotel rooms (two hotels), 140,000 square feet of large-scale retail, 22,000 square feet of general retail and 6,000 square feet of restaurant. Quality is tied to benchmark centers (such as Kierland Commons and Santana Row) for 15 years.
  • Of each $100 of local sales tax from the project during the reimbursement period, the city keeps $55 and $45 goes to developer reimbursement; afterward the city keeps all of it. The luxury hotel must host up to four city-sponsored events and offer room blocks for up to four major events a year.
  • Public park about 10 acres plus a community lake of up to 10 acres, land dedicated to the city at no cost. The developer must maintain the park, lake and certain public improvements in perpetuity at its own cost. Full conceptual buildout: 600-room luxury resort, 2,261 multifamily homes, 3.8 million square feet of office.
  • Water: City Attorney Smith said no Mesa water will be used for the park or lake; the developer will obtain Type 2 groundwater rights and drill its own well.

Public comment (September 14, 2026)

  • Developer side: Andrew Cohn (Levine Investments) and David Larcher (Vestar Communities) described the project; Vestar committed to GreenStar sustainability standards and a luxury resort with Athens Group. Sally Harrison (Mesa Chamber of Commerce) supported it.
  • Eight Mesa residents spoke in favor, citing local dining, entertainment, jobs and keeping spending in Mesa.
  • Opposed: Jillian Ryan (luxury project out of touch with drought, housing costs and wages; asked for more time), Margaret Schultz (Worker Power; opposed the tax incentives, transparency and the reimbursement cap; asked for a no vote), Angelica Delgado Navarro (incentives, theme park district bond risk; wants affordable housing and small business support) and Shannon Woods (incentives, reimbursement process, theme park district).
  • Mr. Butler answered that the project had been public for more than two years, the developer donates the land and maintains improvements, state procurement law applies, and the city has no liability for district debt.

Council discussion

  • Councilmember Adams: Mesa needs hotels and amenities to keep visitor spending in the city.
  • Councilmember Taylor: supports based on community feedback; more sales tax reduces burden on residents.
  • Councilmember Heredia: Mesa has no primary property tax and relies on sales tax; traffic is a priority.
  • Councilmember Duff: her initial concern was the 10-acre lake; Vestar agreed to 75 percent shade coverage and separate water rights; the project includes 120,000 square feet of Class A office.
  • Councilmember Goforth: supports based on sales tax, the on-site reimbursement structure, independent water and quality of retail.
  • Vice Mayor Somers compared it to the Gaylord Hotel concept that won 82 percent voter support in 2009. Mayor Freeman called it a significant asset.

Vote

Moved by Vice Mayor Somers, seconded by Councilmember Adams. Ayes: Freeman, Somers, Adams, Duff, Goforth, Heredia, Taylor. Nays: none. Carried unanimously.

Sources

Log

2026-09-14 - City Council

Public hearing, public comment from 15 speakers, and a 7-0 vote adopting the annexations, rezoning, tax incentive agreement and theme park district resolution.

2026-08-31 - City Council

Annexation and rezoning ordinances (6029, 6030, 6031) introduced on the consent agenda, hearing set for September 14. Consent agenda passed 5-0 with Mayor Freeman and Councilmember Duff absent.