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Council leaves major Western Boulevard rezoning open after debate over highway buffer and affordability
Summary
A rezoning request for the former Kmart site at Western Boulevard drew detailed staff analysis and developer testimony about transit‑oriented redevelopment, but council left the hearing open to Jan. 6 so the applicant can consider restoring a Special Highway Overlay District tree buffer the neighborhood requested.
A rezoning proposal for roughly 12 acres at 4500 Western Boulevard, the site of the old Kmart, drew extended discussion at the Raleigh City Council evening meeting Dec. 2 as staff and the applicant debated development scale, buffers and affordable housing commitments.
Planning staff and the applicant said the change would permit a commercial mixed‑use district with a 20‑story height limit under the proposed conditions and would allow a range of residential scenarios — in one scenario staff estimated up to about 3,500 residential units. Matthew Klem of Planning and Development told council the request is consistent with the 2030 comprehensive plan and noted the transit overlay and the planned Bus Rapid Transit (BRT) station at Blue Ridge and Western Boulevard that anchors the site for higher‑density development.
Jason Baron, representing the property owner and the applicant, said the rezoning is intended to “rehabilitate decades of underutilization” and to support a sequence of retail and mixed‑use phases that complement future transit service. Baron told council the owner has already invested in site work and façade improvements and described neighborhood outreach and two community meetings where supporters attended in favor.
Much of the council’s questions focused on a Special Highway Overlay District (SHOD) that would create a planted buffer between the highway and the site. Several council members and West Raleigh neighborhood representatives said the SHOD provides important visual and environmental benefits. Councilor Harrison explicitly requested the applicant consider bringing the SHOD back; Council members also discussed whether a narrower vegetated buffer could meet the same goals without impeding redevelopment.
Klem said SHOD requirements include a 25‑foot planting area and a schedule of canopy and evergreen plantings; Baron said his client had considered the SHOD but prefers to limit overlay conditions to keep the property competitive in the marketplace. After extended discussion the council agreed to leave the hearing open to Jan. 6 so Baron can discuss with the client whether to restore the SHOD or propose an alternative vegetative buffer.
Councilors also asked about timing and triggers for site improvements tied to future towers, pedestrian frontage requirements and how the transit overlay would interact with affordable housing bonuses. Klem explained that transit‑oriented development (TOD) incentives can unlock height bonuses tied to affordable units, but the current zoning conditions cap entitlements and therefore limit automatic unit increases tied to additional height.
The council did not vote on the rezoning at this meeting. The case will return for further consideration in January, when the applicant may offer revised conditions addressing the SHOD and other council concerns.
