Lloyd Farm: What Happens When You Let a Grocery Store Chain Do Urban Design

After several years of hearing suggestions for improvements from adjacent neighborhoods, elected officials, advisory boards and citizens from all over Carrboro, the folks at Argus Development have submitted plans for what they have always wanted to build here – a grocery-anchored strip mall.  I first wrote about this project in 2014, nearly 18 months ago, and have talked to many Carrboro residents about it since. Very, very little about the proposal has changed and its chief flaws dating back to 2014 remain mostly unaddressed.

If I was a member of the Carrboro Board of Aldermen, I would vote to deny this rezoning application.

The most recent site plan attached to Tuesday’s packet is below. If you look at the link above to my prior post, you’ll see little has changed in 18 months. I’m going to list several shortcomings ahead of the image below.

  1. The overall design of the site is simply too suburban, which makes it hard to redevelop into something better in the future. Some of the suburban features damaging this site layout in particular are the gently curving road from the top of the site the area down by the two stores surrounded by stormwater detention ponds. This roadway geometry and lack of buildings along the side of the road will encourage speeding through the site by cars.
  2. Tax base efficiency for the town. This design incorporates several of the low-value per acre approaches documented in the 2014 presentation by Urban 3 to the Chapel Hill-Carrboro Chamber of Commerce (click to see slides-they’re EXCELLENT!).  In a town with a rural buffer, we need to do our best to maximize our tax value per acre on parcels inside the buffer to produce a better balance between commercial and residential tax base in Carrboro, and that means building up in a denser format. The site design for this plan incorporates the limited value proposition of the Timberlyne Shopping Center and the “Older Outparcel Format” on slide 18 with parking completely surrounding a building, providing a much lower value per acre (in this case, about $950,000/acre) than more urban building types such as the Hampton Inn in downtown Carrboro. (Over $33 million per acre!). Go to the final slide and look at the comparison of mall or strip development per acre with mixed-use at 3 and six stories. The Lloyd Property should be in the categories on the right hand side of the chart; instead, it is mostly in the strip mall category, with limited tax base per acre developed and a design that locks that in for probably 30 or more years.
  3. The massive parking field in front of the Harris Teeter grocery store. I don’t think I have had a single conversation about this project that doesn’t involve someone lamenting the massive parking lot fronting the grocery store, and how much better it would be to have something more akin to Southern Village instead. This suggestion has been made repeatedly to the applicant, and they have done nothing to engage with this community request in their design. The most likely reason is that their client, Harris Teeter, has probably sent some middle management person to the site who looked around and said “yup, this looks suburban, it must have the suburban standard site layout,” which comes with a checklist that says, more or less- “if we can’t have all the parking right in front of the store in a massive parking field, the store will not make money. Our customers are simply too stupid to figure out how to use our stores otherwise.” Harris Teeter’s own store at North Hills in Raleigh shows this isn’t true, but since the corporate grocery office has labeled this “suburban” rather than “urban” they are shoving the standard design down our throats. Let me say that again another way- one of the most significant undeveloped parcels in Carrboro is being designed primarily around the needs of a checklist in a major grocery store corporate office, not the town’s needs and goals.
  4. The two water detention ponds with the two outparcel sites featuring a triple drive-through (worst kind of drive through!) bank and another retail site are a pretty irreversible suburban set of uses that work to prevent a future urban street grid from being installed while also only supporting low-intensity uses.
  5. No public gathering spaces. There are two locations titled “Plaza Lawn” on this drawing. Neither of them are likely to be used by many people and become the beloved community space that the Weaver Street lawn is. One Plaza Lawn (bottom left) is going to be nearly empty, all the time. With no adjacent uses other than parking, and a walking path to Old Fayetteville- the side of the site featuring the least pedestrian traffic, there’s no reason to be here. The Plaza Lawn in the curve near the top center of the site will have high-speed traffic on one side, and a retail/restaurant space on the left side. Perhaps there may be some spillover here if this is a restaurant, but if it is a retail store, this will just be another grassy berm that goes unused. Looking at these two sites plus the big green swath of land between the road and the detention pond north of the senior housing, there was plenty of space in this site to create a village green surrounded by active uses, but the parking for the grocery store was too important. Are you one of the folks who was really interested in a gathering spot, or are you interested in learning more about the failures of American “plazas,” and why the Lloyd Farm “Plaza Lawns” fail in the same way? Check out this neat piece by Neil Takemoto on the difference between Americanized “plazas’ and Italian “Piazzas.”
  6. Age-restricted housing. My most recent post on Lloyd Farm covered the issues with Senior Housing instead of housing for all ages. Click here to read why going from apartments to age-restricted housing presents a dilemma when it comes to equity issues in housing.
  7. None of the buildings have any relationships with the streets. They have relationships with the parking lots. This means that it will be harder to tear these buildings down and replace them with more dense development in the future, effectively restricting the future economic capacity of one of our limited commercial zones.
  8. Virtually all of the commercial buildings are one story. Orangepolitics ran a great piece recently on how we don’t have space to receive small and growing companies, and we can’t get ANY of these buildings to have a second story with some space for the next business that breaks out of an incubator to move to?
Lloyd Farm Plan April 2016

Lloyd Farm Plan April 2016

In closing, I’m going to share a few comments from the advisory boards that I thought were particularly good:

Add multistory mixed use development with ground floor commercial with residential
and/or office use above, and increased clustering  of  buildings relative to the current site
plan. Consider the model  of  Southern Village. The current site plan has too many
buildings too far apart with too much separated parking. Building up and clustering
would reduce impervious surface and therefore more effectively address stormwater
runoff and flooding issues. – Environmental Advisory Board

And…

The Board recognizes the need for senior housing in Carrboro, but is disappointed with
the lack  of  affordable or workforce housing. We would like to see some  of  the senior
residences made available at workforce rates. A payment-in-lieu should be required as a
condition  of  the rezoning.- Planning Board

And…

The Board strongly suggests that the final plan reverse the positions  of  the grocery store
and the buildings facing it. The intent is to reinforce a residential buffer. It would also
serve to decrease the distance between the grocery store and the senior housing.
The rezoning should include conditions regarding architectural standards, including
uniformity  of  materials and setback  of  taller buildings in proximity to residential areas,
which mirror the Downtown Districts. The conditions suggested by the Applicants should
also be included, however condition  #1  should be amended to reflect the change in
positions  of  the grocery store and the facing retail buildings.

It seems pretty clear that the rezoning is the last chance to get any improvements to the design or reconsideration of strategies, and I hope the Board signals that this proposal should not proceed unless these issues are addressed. Given we’ve been at this for 18 months formally and longer informally, I’m not terribly optimistic that we’re going to get much better by giving them a green light.

In closing, I want to acknowledge that I think that development processes that don’t make it clear what the community wants and expects make it harder for developers to come to reasonable  win-win outcomes for the community. I understand that the proposed investment at this site is a big deal, but I also think a superior project would offer better upside for the town and the developer if they could get past the inflexible approach to the parking on the grocery store and the other conventional mid-to-late twentieth century design approaches they are taking to the site layout and organization. Honestly, I feel like the investors and the Town are leaving profit and taxbase on the table to cater to the checklist at the Harris Teeter corporate office.

Given that we already have a Harris Teeter with a dangerous, pedestrian-hostile parking lot in Carrboro, and that these folks don’t seem to have incorporated much of what the community is asking for, I think that denying this rezoning is reasonable, and that the town should then turn to establishing a process that the TOWN leads to establish what type of development is appropriate for this site. We can (and should) do better.

ArtsCenter-Kidzu Building: A Compelling Idea That Needs Some Work Before Going Forward

The Short Take: The Town of Carrboro has been approached by two cherished local non-profits (Kidzu and The ArtsCenter) with a proposal to build a new “Carrboro Arts and Innovation Center” (CAIC) involving town funds from a not-presently-existent revenue stream.  The proposal has several issues that should discourage the Town from moving forward until these challenges can be resolved or greatly improved upon.  These issues are exacerbated by a lack of public policy guidance documents, most notably a Town Comprehensive Plan, that would guide such proposals to be more in sync with community priorities from the outset.

I urge the Carrboro Board of Aldermen to NOT move forward with this proposal at this time, and to step back and ask themselves:

  • Broadly: What can the Town do to better prepare itself for major proposals such as The CAIC and the Lloyd Farm project?  Why is the Town so unprepared to deal with ideas like this?
  • More Narrowly: What pieces of the ArtsCenter proposal are at an inappropriate level of detail (too much?  too little?) to effectively evaluate whether the Town should:
    • Support such a project?
    • Support such a project AND participate in it financially?

 

The Long Take: There are multiple issues to consider with this proposal and I will try to take them on one at a time.

Background on my Point of View

For those who don’t know me who are reading this, I’ve lived in Carrboro for about 15 years, and my interest in the arts is one of the reasons I live here.  I’ve been a performing musician since high school, and have played locally at the Festival for the Eno, Blue Horn Lounge, Cafe Driade, the Carrboro Music Festival, Open Eye Cafe, Johnny’s, The Station, and yes, The ArtsCenter. Our family has patronized concerts, theater events, public meetings and art shows there.  With a small child in our family, we have also recently been members of Kidzu.  I am a supporter of both of these organizations and what they do in the community, both in spirit and as a patron of their activities. I hope that those who have spent time assembling the CAIC proposal will read the remainder of this post while keeping in mind that I am someone who wants to see both The ArtsCenter and Kidzu succeed.

What’s Good – Carrboro, The Arts, and Institutions for Young Families

The exciting part of the proposal is the promise of an expanded ArtsCenter in a town where the populace loves the arts from a participant point of view as much as a concertgoer/theatergoer/galleryhopper point of view. A great space for the arts is in keeping with Carrboro’s strengths and brand as a community.  There’s no doubt that the idea is compelling.  Additionally, Carrboro’s percentage of population under age 10 is almost 16%, so a place like Kidzu also makes sense to be in the community.

However, as we move from the general to the specific, these positives get overwhelmed by details (and in some cases, the lack thereof) that detract from other things residents cherish about Carrboro, most notably its nature as one of the truly walkable communities in North Carolina and the Southeast.

What’s Problematic:

The Architectural Style

To start with the challenges of the proposal, I’m going to focus on what I’ve learned from the media coverage as I have not been able to attend any public forums.  Below are some images that I believe came from the Chapel Hill News.  They show a modernist/postmodernist building that is heavy on glass and steel.  The building has uneven projections from multiple sides, which certainly probably raise the cost of the building over continuous walls in the same space. I assume that the building would not actually have all the text labels on the outside and that those labels are to help explain interior functions.

ArtsCenter Visualization 1

ArtsCenter Visualization 1

 

ArtsCenter Visualization 2

ArtsCenter Visualization 2

First, if the town wants to take on debt to build a building for non-profit organizations, we should have a plan for how the building could be used if those nonprofits fail and cannot use the space as proposed.  I flag this because the track record of re-using modernist buildings is not that good. 

Carrboro’s Town Hall, a former school, has found adaptive re-use, as has Carr Mill.  Meanwhile, the BCBSNC property sits empty because it ignored many timeless building practices for trendy abstract art statement-making.

If the Town is going to build a building, it should build in a style that has a record of attracting new uses when the original ones fail or leave, and we should try to build it without expensive, hard-to-maintain materials and profiles.

The Building’s Orientation to Its Surroundings

I’ve been to DPAC for a show and I walk by there all the time.  It’s a beautiful facility on the inside, and it sounds great.  That said, I don’t know that its interaction with the rest of the city is all that great in Durham.  To be fair, I’m not sure the site of DPAC presented many opportunities for synergy when it was built, but this site has the opportunity to embrace one of Carrboro’s most busy intersections for pedestrian activity. Unfortunately, the design seems to “hide” the CAIC behind two trees and there is no relationship with Main Street, the most important or “A” street on which the property fronts.  Instead, the primary orientation for people walking to and from the entrance is towards the “B” street of lower importance, Roberson Street.  Additionally, nearly the full length of the ArtsCenter’s interface with the block is for drop-off/pick-up for cars.

The present design honors the car first and the pedestrian second. This needs to change, and any project at this location needs to do more to honor Main St and contribute to it as a place.

The Multiple Roles of the Architect

Mr. Szostak is on the board of the ArtsCenter. What happens when the ArtsCenter is pushing for a design element that raises the cost to the Town, and the Town wants to reduce it?  Wouldn’t it be awkward for an architect to fulfill the Town’s (his client’s) wish while upsetting his Board colleagues?  It doesn’t seem fair to ask the architect of a Town building to negotiate that tension.  Also, shouldn’t the Town, if it’s undertaking a signature building project, seek proposals that would include competitive bids for the design work? There’s no doubt Mr. Szostak is a talented architect.  I suspect he’s done many good things for the ArtsCenter board as well.   If this proposal goes forward, the Town should consider how to prevent conflict between the non-profits and itself via the roles of the architect.

Architecture, Decorum, and Placemaking

Former Mayor Mark Chilton once said that Carrboro’s architecture has “a certain humility” to it. I think he was onto something, but I would say it a little differently, perhaps that our architecture has a “common dignity” to it. I think that any new ArtsCenter building would best serve its purpose by contributing to the common dignity of the street scape rather than making a big statement unrelated to the rest of downtown.

Calls for New Revenue Streams

To the extent that any of this proposal relies on new revenue streams, it is hard to ignore that the NCGA has recently taken away the privilege license tax from municipalities and is looking to redistribute some of their sales tax revenue to rural areas.  This is a legislature that also put new limits on sales tax for counties last year.  A realist proposal would not include a component of asking the NCGA for new revenue sources for a municipality.

Collateral from Non-Profits

The proposal suggests that the Town would only move forward if the ArtsCenter or Kidzu could offer some collateral. Realistically, what assets do these organizations have, and what is the value of these assets?

Continued Failure on Parking Policy From the Town

It is extremely painful to see that one of the four key points this agreement suggests that the Town would not move forward without the appropriate parking infrastructure.  Forgetting all the other points I have made, this is more than enough to oppose the entire proposal until we get off of the idea that because we have a new use of any type in our walkable, transit-served downtown we need more (implied: free) PARKING.  During the Carrboro music festival this year, theoretically our biggest visitor event which will DWARF the busiest night at any new ArtsCenter, the deck was not full.  Why on earth would we put public money toward any structured parking (which eats up truly finite economically productive land in the downtown) without pricing the parking we already have?  (which would also bring revenue). Or without stepping up enforcement? (which would bring revenue and reduce predatory towing)

I’ve already hashed out most of the reasons for being smarter about parking in this post.  Please take a look.

How We’re Getting Input On This

I’m also disappointed that what we’re doing to decide how to proceed with this project is to hold a public hearing.  First, let me say that holding a hearing is vastly better than not holding one.  Still, what’s happening is that everyone is debating the merits of this proposal against itself, and not as part of a broader vision for downtown and the community.  It’s the same type of short-term, single-faceted thinking that led the Town to recently consider turning the bike lanes on Fidelty Street into car parking.  It’s almost as if because one idea emerges, we forget everything else we’ve agreed to as goals for the community.

The recent Lloyd Farm meetings with the community highlight some of the same problems. In frustration, one neighbor said to the developer “we’re not supposed to be designing the project for you!” This line brought lots of laughs, but it held a lot of truth.  But I also had sympathy for the developers.  Our zones and our code don’t tell them what we want; many of the ideas in our zoning and codes are decades old and are not made for this moment in our community’s life, but we keep governing off of them.

Of course, with both the CAIC and Lloyd Farm, the missing document that is supposed to manage all these tensions is a comprehensive plan. Carrboro needs one.

Closing

As I finish this piece, there are a lot of pieces of the CAIC proposal that need work.  I hope The ArtsCenter and Kidzu will step up to the challenge and address those issues in a refined proposal to be considered somewhere down the road. I also hope the Town will take a hard look at whether our current policy tools are adequate to deal with Carrboro’s growth in the next twenty years.

Five Great Reasons to Bulldoze the BCBSNC Building In Chapel Hill

Former BCBSNC Headquarters

BCBSNC Headquarters – A Building Its Own Architect Doesn’t Know What Do To With (photo from newsobserver.com)

Today Blue Cross Blue Shield of NC announced they are consolidating their operations in Durham and vacating their dated, modernist solar-cooker-on-cinder-blocks digs in Chapel Hill, because the building is inflexible, expensive to operate, and bad for workers:

Blue Cross officials said the insurer’s distinctive Chapel Hill headquarters – a rhomboid, glass structure designed by the architect A.G. Odell Jr.’s firm – had become more costly to operate than its other buildings and didn’t fit the way employees work today.

The article adds:

Blue Cross expects the move to Durham will ultimately save it more than $2.5 million annually in utilities and operating costs.

“It will be a walkable, flexible environment, and create a community of literally all of our employees,” Borman said.

As for the Chapel Hill headquarters, Blue Cross plans to work with town officials to determine the property’s future, Borman said.

McMurray [the building’s designer] worries what will become of his building.

“It’s sad that they’re leaving it,” he said. “I don’t know what you do with it.”

I visited this building this past year on a day with temperatures in the 60s to low 70s.  The air conditioning was cranked up like it was in the high 80s or 90s outside, which I assume is part of the reason why their utility costs are so high- whoever occupies the building must combat massive solar gain through the roof.  Even the guy who built the building can’t think of a reason to keep using it.

The site layout is as flawed as the building, with curvilinear roads in a mid-century suburban layout that wastes space with both pavement and grass.  But as much as anyone hates the announcement that a major employer is leaving, the silver lining is an opportunity to redevelop over 30 acres, or more than 1.5 million square feet of land. If this dysfunctional building was torn down, what could fit there instead?

For inspiration, here are five other examples of quality urban development that could fit in that area or less:

1. Cesky Krumlov, Czech Republic (photo by Flickr user Iurbi)

This picture perfect town is mostly enclosed by a bend in the river that winds through it.  The area within the river bend is about 80% of the size of the BCSBNC site.

Cesky Krumlov, Czech Republic

Cesky Krumlov, Czech Republic

2. Vernazza, Italy (photo by Flickr user damianocerrone)

Hemmed in by the see and a hill, Vernazza only takes up about 40% of the BCBSNC site, and that includes some of the harbor.

Vernazza, Italy

Vernazza, Italy

3. Downtown Shelburne Falls, MA (photo by Flickr user neonlike)

Picturesque small town in Massachusetts with a waterfall, an abandoned bridge covered with flowers, and a trolley museum – in about 25% of the BCBSNC site.

Shelburne Falls, MA

Shelburne Falls, MA

4. The entire pedestrian-only section of Church St and the 8 surrounding blocks in Burlington, VT. (photo by Flickr user devils4ever)

About 91% of the size of the BCBSNC site.

Church St, Burlington, VT

Church St, Burlington, VT

5. The Downtown Core of Black Mountain, NC (photo by Flickr user Bass Player Keith Hall)

East of Asheville, the downtown of Black Mountain is about 50% the size of the BCBSNC site.

Downtown Black Mountain, NC

Downtown Black Mountain, NC

6. And One Bonus Location: East Franklin St (photo by Flickr user Zannie Gunn)

The space bound by Columbia St, Franklin, Rosemary, and Henderson takes up about 25% of the BCBSNC site.

East Franklin St

East Franklin St

Any of these building patterns are more resilient for changing times than the modernist design of the BCBSNC building, which was always more about making abstract aesthetic statements than being useful to the people using the building or embracing the neighboring parcels in a constructive way.  When was the last time you heard someone say Franklin St “doesn’t support the way people work or live today?”

Build a street grid on this site and populate it with many smaller buildings, public spaces, and much less parking, and Chapel Hill can have a tremendous new urban neighborhood built to last. This is an exciting opportunity. What could you imagine here?