Council rejects first reading of rezoning for Buckham/Butler parcel after debate over traffic and drive-throughs

Greenville City Council narrowly failed to pass first reading of an ordinance to rezone about 2.92 acres at Buckham Street and Butler Avenue from Planned Development (PD) to MX-2, after council members and residents raised concerns about traffic, pedestrian safety and the possibility that a drive-through could be proposed later.

At public comment, Bob Lloyd of 14 Pinkney Street urged denial, warning that “the applicant will tee up a request for a special exception to allow a drive-through lane” and that the proposed single building layout would harm neighboring development. Robert Benedict, a Clemson University faculty member, cited academic research he said shows drive-through restaurant driveways have higher crash rates — calling out a study that found a “44% greater crash rate” at drive-throughs compared with other commercial driveway types — and urged council to consider pedestrian impacts and property-value effects.

Planning staff told council that MX-2 is intended for moderate-intensity, pedestrian-friendly mixed uses and that any drive-through would require a separate special-exception review by the Board of Zoning Appeals. Staff and the planning commission had recommended approval of the rezoning, and staff noted no special-exception application for a drive-through had been filed.

Opponents on council and in the neighborhood said the Buncombe/Butler intersection is already congested and that some commercial uses allowed under MX-2 would be inappropriate for that parcel. Supporters argued the site, described during the meeting as a fenced concrete slab with environmental constraints, has languished and that leaving it zoned PD would likely keep it undeveloped. Council members discussed trade-offs: a prior PD approval had allowed a much larger senior-living project (237 units, seven stories), while MX-2 would allow a shorter project by right and a different mix of uses.

Several council members suggested policy changes that could reduce the risk of unwanted drive-throughs, including directing staff to review MX-2 citywide or to draft a new, lower-intensity zoning category (an “MX-1”). Staff cautioned any change would have community-wide implications and would require planning commission review and a return to council.

When the council took roll call on first reading, the motion failed and the rezoning did not advance. Council members who opposed the rezoning reiterated concerns about traffic and neighborhood compatibility; those in favor said redevelopment of the parcel would be preferable to leaving it blighted.

Next steps discussed included the possibility of tabling the matter, directing staff to draft zoning changes, or returning the question to planning commission for additional review; staff confirmed those procedural options are available.

The ordinance read into the record described the rezoning request as “an ordinance to rezone approximately 2.92 acres of real property located on Buckham Street and Butler Avenue from PD (plan development district) to MX-2 (mixed use district).” The council did not adopt the rezoning at first reading and no final action on the zoning designation occurred during the meeting.