EAST NASHVILLE COMMUNITY PLAN

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nashvillenextEAST NASHVILLECOMMUNITY PLANMAY STATIC DRAFTThis is the static review draft of the East Nashville Community Plan of NashvilleNext. Itis part of Volume III (Communities) of the draft General Plan.We appreciate that you are giving time to reviewing this work. This chapter is the resultof three years of effort on NashvilleNext, combining public visioning and communityengagement with topical experts to create a plan for Nashville and Davidson County overthe next 25 years.CommentsThe public review period is open until the Planning Commission’s public hearing on theplan on Monday, June 15, 2015. We are eager to hear your thoughts on the plan. Here’show to provide input:»» Email: info@nashvillenext.net»» Phone: 615-862-NEXT (615-862-6398)»» Mail: Metro Nashville Planning Department,P.O. Box 196300, Nashville TN 37219-6300We ask that you include contact information with your comments. We also request thatyou be as specific as possible in your requests. Referring to a specific page or section isgreatly appreciated.Next stepsThe most up to date information is always available at www.NashvilleNext.net. Here isthe Planning Commission’s tentative adoption schedule:»» 3:00 pm, Monday, June 15: The Metropolitan Planning Commission will hold a publichearing on the NashvilleNext plan at the Sonny West Conference Center in Metro’sHoward Office Building, 700 Second Avenue South. The public hearing will be heldthis day only.»» 1:00 pm, Monday, June 22: The Metropolitan Planning Commission will resume theirdiscussion on the NashvilleNext plan and proposed amendments at the Sonny WestConference Center in Metro’s Howard Office Building, 700 Second Avenue South.III-EN-1 MAY 2015 STATIC DRAFTEast Nashville

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PARTS OF THE PLANEach part of the plan has a role to play. Some parts are broad and visionary, while others are specific and detailed. Thissection helps users of the plan understand how the parts fit together and support one another. No part of the plan isintended to stand alone; each can only be understood as working together with the rest of the plan.IVision, Trends, & StrategyVolume IIIVolume I presents the role and powers of the plan, keytrends and issues that the plan addresses, a summaryof the plan’s strategy and approach to the future, andimplementation goals and policies.East NashvilleII Elements»»»»»»»»»»»»»»Land Use, Transportation & InfrastructureArts, Culture & CreativityEconomic & Workforce DevelopmentEducation & YouthHealth, Livability & the Built EnvironmentHousingNatural Resources & Hazard AdaptationIII CommunitiesNashville’s Community Plans provide history and contextfor Nashville’s 14 Community Planning Areas, alongwith community-specific issues, strategies, and sketchesof how different places in the community could changeover time. Detailed Community Character Maps link thebroad, county-wide Growth Concept Map to characterpolicies that guide zoning and development decisions.Community Character ManualContentsDescription of the Community 5History of the Planning Process 16Community Demographic Information17Role in the County and Region 20Conclusion27Growth and Preservation Concept Map and theCommunity’s Role28Community Character Policy Plan34Special Policies 42Enhancements to the Open Space Network45Enhancements to the Transportation Network 46The Community Character Manual provides detailedexplanations of the character policies used in theCommunity Character Maps.IV ActionsSpecific tasks for Metro departments and partners toundertake, within a recommended timeframe.VAccess Nashville 2040Volume V is the overarching vision of how transportationworks under NashvilleNext.III-EN-3 MAY 2015 STATIC DRAFTEast Nashville

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EAST NASHVILLEDescription of the CommunityThe East Nashville community is located just east of downtown Nashville.It is bounded by I-24/I-40, the Cumberland River and I-65 to the west,Briley Parkway to the north, and the Cumberland River to the east andsouth. The East Nashville Community contains approximately 21 squaremiles, representing about 2 percent of the land area in Nashville/DavidsonCounty.The Community consists primarily of historic urban residentialneighborhoods and classic suburban neighborhoods, discussed in greaterdetail below. East Nashville is traversed by three main north-southcorridors—Dickerson Pike, Main Street/Gallatin Pike and EllingtonParkway. While Ellington Parkway is limited access and primarily servescommuters, Main Street/Gallatin Pike and Dickerson Pike serve tworoles. These corridors provide regional routes for commuters driving toDowntown Nashville from Goodlettsville, Gallatin and Hendersonville(Main Street/Gallatin Pike was the route selected for Nashville’s first localexpress route, called Bus Rapid Transit [BRT] Lite). These corridors are alsohome, however, to significant restaurant, retail and service businesses,serving pass-through customers and customers in from the neighborhoodsthat flank these corridors. Increasingly, these corridors are becomingdestinations in their own right, especially with imaginative, local mixeduse developments at Five Points and along the Main Street/Gallatin Pikecorridor.In the latter half of the 20th century, these corridors were developed tohave a suburban feel with parking lots fronting the street and little orno street presence. Some historic structures that were built to the streetremain, and new construction is built closer to the street to frame thestreet and create blocks that are comfortable, safe and welcoming to visiton foot. MDHA has been a partner in the redevelopment of the MainStreet/Gallatin Pike with the East Bank redevelopment district (establishedin 1996) and the Five Points redevelopment district (established in1991) and along Dickerson Pike with the Skyline redevelopment district(established in 2007).III-EN-5 MAY 2015 STATIC DRAFTEast Nashville

The East Nashville Community also includes a portion of the “EastBank”—the area on the east bank of the Cumberland River. The bulk ofthe East Bank is in the Downtown Community; however, a portion of theEast Bank from Spring Street on the south to the I-24/I-65 interchange tothe north is in the East Nashville Community. This area has been home tolight industrial and warehousing businesses and it also experienced severeflooding during the flood of 2010. As downtown redevelops, developers arelooking to the East Bank, including the northern portion in East Nashville,for redevelopment opportunities. This area is envisioned to redevelop tomuch greater intensity, capitalizing upon its river location and proximityto downtown. Redevelopment will, however, have to address the threat offlooding.Although East Nashville is arguably the most urban of Nashville’sneighborhoods, it also home to one of Nashville’s best natural areas—Shelby Bottoms Greenway and Nature Park and adjacent Shelby Park. At960 and 336 acres respectively, the two parks provide an oasis of openspace capitalizing on three miles of frontage with the Cumberland Riverand also providing a Nature Center, play areas, ball fields, a golf courseand the former Cornelia Fort Airpark, which was purchased by Metro andadded to the Shelby Bottoms Greenway and Nature Park in 2011.Overall, the East Nashville Community includes 2,018 acres (15 percentof its land uses) in open space, civic facilities, schools, community centers,common open space areas of residential developments, cemeteries, andplaces of worship.Despite being predominately developed, East Nashville retains somenatural features that require special attention and regulation to protectincluding steep slopes with unstable soils, wetlands, significant floodplainand archeological sites and areas with rare or endangered plant or animalspecies. These are discussed in greater detail below.III-EN-6 MAY 2015 STATIC DRAFTEast Nashville

Major Neighborhoods/CommunitiesEast Nashville is a community of distinctive neighborhoods. The EastNashville community planning area extends beyond the area traditionallyknown as East Nashville. The historic boundaries of East Nashville werethe Cumberland River, Greenwood Avenue, Ellington Parkway, andRiverside Drive. This part of the East Nashville Community includesthe neighborhoods of Cayce, East End, Eastwood, Historic Edgefield,Greenwood, Lockeland Springs, Maxwell Heights, Rolling Acres, andShelby Hills as well as several smaller neighborhoods. East Nashville asdefined for community planning purposes also includes the Capitol View,Cleveland Park, East Hill, Gra-Mar Acres, Highland Heights, Hillhurst,Inglewood, McFerrin Park, Renraw, Rosebank, and South Inglewoodneighborhoods along with several smaller neighborhoods.The urban neighborhoods are compact and walkable, and many haveconvenient access to small corner commercial areas or civic uses such aschurches, the East Branch Library and various schools. Many of theseneighborhoods are historic in character and contain notable architecture,giving them distinctive identities. These neighborhoods have the qualitiesof urban neighborhoods such as a grid street pattern and shorter blocks,sidewalks (although not in all cases), and a mixture of housing typesfrom single- and two-family detached homes to accessory dwelling units,townhouses and small-scale stacked flats. The neighborhoods of Eastwood,Edgefield, Greenwood and Maxwell Heights have historic zoning, whileportions of Edgefield and portions of Lockeland Springs and East End areNational Register Districts.The urban neighborhoods of East Nashville are also home to two publichousing developments—Sam Levy, which was redeveloped under fundingfrom the HOPE VI program in 2003 and Cayce Homes, which was builtmid-20th century and, at 700 units, is the city’s largest public housingdevelopment. The Metropolitan Development and Housing Agency(MDHA) operates these housing developments. In 2013, MDHA undertooka visioning effort called Envision Cayce, to consider how the site—atShelby and South 5th Street—could be redeveloped to become a mixed use,mixed income development.East Nashville’s suburban neighborhoods include Inglewood andRosebank. These neighborhoods have the hallmarks of classic suburbanneighborhoods—they are comprised primarily of single-family detachedhomes on larger lots with curvilinear streets and feature nature, andspecifically tree cover, prominently.III-EN-7 MAY 2015 STATIC DRAFTEast Nashville

The TransectPlanning in Nashville has, for many years, used the “Transect,” whichis a system for categorizing, understanding and guiding the variousdevelopment patterns of a region, from the most rural to the most urban.The Transect calls for all elements of the natural and built environmentto be consistent with the character of the Transect category within whichthey are located.The Nashville/Davidson County Transect consists of seven categories ofnatural and built environments:»» T1 Natural: This Transect Category includes Shelby BottomsGreenway and Nature Park»» T2 Rural: This Transect Category includes Shelby Park»» T3 Suburban: This Transect Category includes neighborhoods such asInglewood and Rosebank»» T4 Urban: This Transect Category includes neighborhoods such asEdgefield and Lockeland Springs»» T5 Center: This Transect Category includes the portions of the eastbank of the Cumberland River between Spring Street and the I-65/I-24interchange and between Davidson Street and South Fifth Street andthe I-65/I-24 interchange.»» T6 Downtown: This Transect Category is not present in East Nashville»» D District: This Transect Category includes the state offices at HartLaneThe Transect system is used to ensure diversity of development inNashville/Davidson County. It recognizes that Inglewood is a classicallysuburban neighborhood and should be encouraged to remain that way,while Greenwood and Cleveland Park are urban neighborhoods that shouldalso be preserved. Both development patterns are viable and desirable,but thoughtful consideration must be given to development proposals toensure that these different forms of development are maintained.The Growth and Preservation Concept map for the East NashvilleCommunity represents the vision for the East Nashville Community. Thestarting point for the map was the most recent East Nashville CommunityPlan update (2006), related detailed neighborhood planning, andconsideration of the growth that had occurred in the intervening years,i.e., understanding the trends in growth and preservation that the EastNashville Community has faced. The Growth and Preservation map alsoreflects the input received during NashvilleNext including input on howEast Nashville should grow, but also input on what the vision for Nashvilleis in the future and deliberation on what role East Nashville should play inthe future. This is discussed in greater detail below.III-EN-8 MAY 2015 STATIC DRAFTEast Nashville

Figure EN-1: TransectEast Nashville detailILI2 4 EBRMadisonSI65EYP KW YHARTLNELLI NDICKG TONE RSONI6 5 SD3RN 1S T S TGALLATINI24 WAV EEast NashvilleSTNI24EAVINMAEDowntownSouth NashvilleTransectsT1 NaturalT5 CenterCentersT2 RuralT6 DowntownSubarea BoundariesT3 SuburbanD DistrictT4 UrbanW WaterIII-EN-9 MAY 2015 STATIC DRAFTBLEOANNPIKEBRILEY PKWYI6 5 NYI6 5 SNI6 5WP IK EPPKI6 5 RAM East Nashville

Figure EN-2: Growth & Preservation Concept MapEast Nashville detailK WYSI65ONE RSDICKHARTLNY PK WTO N PK WYMadisonBR ILEI24 EI65 N I65 SNP IK EPI65 R A M5I6YEL LINGYPBR ILEGALLATINI24 WD3RN 1S T S TI65 NAV EEast 0 ELEBANO N PIKEOANNPIKELEBANON PIKE Green networkNeighborhoodHigh capacity transit corridorsTier TwoOpen space anchorTransitionLong-term needTier ThreeMissing an anchorSpecial impact areaTier OneIII-EN-10 MAY 2015 STATIC DRAFTImmediate needRegional connectionEast Nashville

History of the East Nashville CommunityThe East Nashville Community has an abundance of historically significantsites and areas. The history of East Nashville includes important chaptersabout the growth and expansion of Nashville as a city and a catalogueof neighborhood development ranging from the city’s earliest suburbanexpansion to twenty-first century redevelopment.Although the term “East Nashville” has come to refer to a large area southof Briley Parkway between I-65, the Cumberland River, and DowntownNashville, the original East Nashville began within a smaller area on theeast bank of the Cumberland River. After the Revolutionary War, much ofthe land that is now the State of Tennessee was on the western frontierof the new nation and was part of the State of North Carolina. ManyRevolutionary War veterans were granted 640-acre tracts of land in thiswestern frontier to compensate them for their service and to encouragesettlement of the area. Land granted to Themy Pernell in 1784 laterbecame East End. Land granted to Daniel Williams in 1786 later becameEastwood and Lockeland Springs. James Shaw was granted land in theEdgefield and Maxwell Heights areas that later belonged to the Shelbyfamily.Figure EN-3 illustrates the characteristics and major property owners inthe area in 1871.The rural history of East Nashville has been almost entirely absorbed bylate nineteenth and twentieth century residential development. Tracesstill remain where former farm or estate residences survive. One exampleis Riverwood, listed in the National Register of Historic Places. Generally,these houses are now part of subdivisions. East Nashville began to developand urbanize in earnest in the second half of the nineteenth century, whenthe Shelby lands were subdivided for residences in Edgefield. Edgefield wasincorporated as a separate municipality in 1868 and eventually annexedby the city of Nashville in 1880. Lockeland Springs and East End were notannexed into Nashville until 1905.East Nashville has always been heavily influenced by its bridge connectionsto downtown Nashville on the opposite river bluff. A bridge crossing hasexisted at the site of the Woodland Street Bridge since 1819. Replacementof that bridge with a more modern suspension bridge in 1853 paved theway for residential subdivision in Edgefield beginning in 1854. Mule-drawnIII-EN-11 MAY 2015 STATIC DRAFTEast Nashville

Figure EN-3: 1871 map Davidson CountyEast Nashville detailIII-EN-12 MAY 2015 STATIC DRAFTEast Nashville

street car was introduced in 1872 and Woodland and Main Streets offeredstreet railway lines by 1890, further easing travel between downtownand the east bank. The Shelby Street Bridge (now the John SeigenthalerPedestrian Bridge) was opened in 1905. It was originally known as theSparkman Street Bridge. Just as river access influenced the developmentof downtown Nashville on the west side of the Cumberland, access on theeast bank, combined with proximity to northbound rail corridors in thisarea, made it an attractive location for industry with the neighborhoods ofwhat is now East Nashville located further east of the industrial sites.Other influential transportation connections are the pikes, Dickersonand Gallatin, which have been important travel corridors since Nashville’sfounding. These two roads have attracted most of the commercialdevelopment in the area, although neighborhood commercial areashave historically been dispersed in neighborhoods developed during thestreetcar era, like Lockeland Springs and Cleveland Park. Riverside Driveitself is an important resource dating from the first phase of automobilecentered suburban development, and the Inglewood area demonstrates thecontinuing residential popularity of East Nashville in the early twentiethcentury. Later transportation changes accompanied urban renewal withthe construction of the interstate system in the 1960s and EllingtonParkway, which reconfigured large swaths of the east bank and createdgeographical divisions within neighborhoods as impermeable as the river.Briley Parkway now creates another boundary defining the northern edgeof the East Nashville Community.East Nashville contains a high concentration of housing stock built 50years or more ago and the largest remaining concentration of nineteenthcentury and turn-of-the-century residential architecture in the city.Districts listed in the National Register—Edgefield and portions ofLockeland Springs and East End—contain some of the best examples.Still other districts are eligible for the National Register or possess localsignificance that encourages their preservation. Enthusiasm for historicarchitecture, coupled with historic preservation zoning in several areas,has ensured a high rate of retention of historic buildings in this area.In spite of this trend, several demolitions of historic properties, mostlyinstitutional buildings, point to the continuing need for preservationstrategies for properties not located within the existing districts.III-EN-13 MAY 2015 STATIC DRAFTEast Nashville

Historical efield Historic Preservation ZoningOverlay District Design Guidelines, adoptedMay 1978, Amended September 1996;Eastwood Neighborhood ConservationZoning Overlay District Design Guidelines,adopted July 2004, Boundary Amended June2007;Greenwood Neighborhood ConservationZoning Overlay District Design Guidelines,adopted April 2008;Lockeland Springs-East End NeighborhoodConservation Zoning Overlay District DesignGuidelines, adopted September 1985,Amended May 2003;Maxwell Heights NeighborhoodConservation Zoning Overlay District DesignGuidelines, adopted February 2008All by the Metropolitan Nashville HistoricZoning CommissionNashville Rising: How Modern Music CityCame to Be, The Tennessean, 2013East Nashville, E. Michael Fleenor, 1998Nashville’s Inglewood, Crystal Hill Jones,Naomi C. Manning, and Melanie J.Meadows, 2009Nashville and Its Neighborhoods: Fanningthe Flames of Place, East Nashville, ChristineKreyling for the Nashville Civic Design Center,2004.A series of disasters and man-made proj

The Growth and Preservation Concept map for the East Nashville Community represents the vision for the East Nashville Community. The starting point for the map was the most recent East Nashville Community Plan update (2006), related detailed neighborhood planning, and consideration of the growth that had occurred in the intervening years,

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