Community Plan

Memphis uptown Community plan

DRAFT: June 21, 2018 Credits

City of Memphis Memphis and Shelby County CRA Consultant Team Jim Strickland, Mayor Board T orti Gallas + Partners city of Memphis Council McKinley “Mack” Martin, Chairman Lead, Planning, Architecture, Public Engagement, Implementation Berlin Boyd, Chairman, District 7 R. Miles Mason, Sr., Vice Chairman Bill Morrison, District 1 Ann Langston, Secretary Y ard & Company Planning, Public Engagement, Implementation Frank Colvett Jr., District 2 Dynisha Brown Woods, Treasurer Patrice Robinson, District 3 Kevin Spragling MKSK Public Engagement Jamita Swearengen, District 4 Sam Cantor Allworld Project Management Worth Morgan, District 5 Uptown Advisory Committee GIS, Public Facilitation Dr. Edmund Ford Jr., District 6 Andrea Curry The Carter-Malone Group Joe Brown, Super District 8-1 Njeri Fombi Public Relations, Website, Event Coordination Janis Fullilove, Super District 8-2 Alan Higdon Valerie Peavy Malasri Engineering Martavius Jones, Super District 8-3 Civil Engineering Kemp Conrad, Super District 9-1 Andre Jones Development Strategies Mary Baker J Ford Canale, Super District 9-2 E conomics Reid Hedgepeth, Super District 9-3 Louisa Shephard Damonic Davis Shelby County Williams Brack Mark Luttrell, Mayor Bryan Smith Shelby County Board of Commissioners Bobby White Heidi Shafer, Chairman, District 5 Ricky Floyd Willie Brooks, Chairman Pro Tem., District 6 Sara Hall Terry Roland, District 1 C RA Staff George Chism, District 2 Rosalyn Willis, President David Reaves, District 3 Andrew Murray, Director of Planning and Community Development Mark Billingsley, District 4 Tanja Mitchell, Uptown Neighborhood Melvin Burgess, District 7 Coordinator Walter Bailey, District 8 Lisa Ivy, Executive Assistant Justin Ford, District 9 Housing and Community Reginald Milton, District 10 Development Eddie Jones, District 11 P aul Young, Director Van Turner, District 12 Planning and Development Steve Basar, District 13 John Zeanah, Director

Executive Summary 2 P arks, Recreation, and Open Space 32 R etail and Services 76 Introduction and Purpose 2 Role of Open Space in the Community 32 Retail Demand Overview 76 Community Framework and Anchors 3 Regional Open Space Analysis 32 Infrastructure and Utilities 78 Transportation 4 Recommendations: Existing Open Space 34 Infill and Redevelopment 78 Land Use 5 Recommendations: New Open Space 34 Drainage 78 Housing 5 Community Framework Alley Maintenance and Restoration Design and Zoning 5 and Anchors 36 in the Uptown Planning Area 78 Environmental 5 Community Framework 36 Implementation 5 Implementation: Community Anchors 38 Discover Demand, Shape Supply 80 Pinch and Gayoso Bayou District 40 Introduction, Vision and Goals 6 Understanding Where You Are 80 Burkle Park District 44 Introduction and Purpose 6 Market-Based Funding Toolkit 82 Washington Park District 48 Vision 6 The Uptown Growth Strategy 84 Chelsea Neighborhood Center 50 Equity and Upward Mobility 6 Priority Project Implementation Matrix 92 Manassas Market 52 Goals 6 The Uptown TIF Scorecard 94 Morris Park Neighborhood Concept Plan 56 Planning Background 10 The Memphis CRA: Summary of Existing Master Plans and Smokey City Civic Center Concept Plan 58 Built to Grow Uptown 96 Planning Reports 12 Smokey City Market 60

Public Engagement + Discovery Housing 62 Approach 14 Existing Conditions 62 Summary Of What Was Learned 16 Existing Programs 62 Preserving Housing Affordability 62 History 18 Property Acquisition 62 Historic Districts 23 Smokey City Historic Alley Historic Districts Map 23 Restoration Concept Plan 68

T ransportation 24 Leand Us 70 S treet and Sidewalk Conditions 24 Proposed Land Use Recommendations 72 Bicycle Transportation Planning 26 Public Transit 26 Design and Zoning 74 Community Design 74 Environmental 28 Zoning Analysis 75 Existing Conditions and Environmental Contamination 28

Memphis uptown community plan 2 Executive Summary Draft June 21, 2018 Executive Summary Introduction and Purpose The Memphis and Shelby County Community Redevelopment Agency (CRA) seeks to improve the quality of life through the removal of slum and blight within Memphis and Shelby County. Key to meeting the mission of the CRA is improving the lives of the people that live in the community. Promoting social equity that can lead to upward mobility for the residents of the Uptown Community leverages community investments and provides a stabilizing force in the neighborhoods. The purpose of the Uptown Community Plan is to address the above stated goals through the establishment of a vision, goals, community development concepts, specific recommendations, and priorities that will serve as a guide in both assessing applications for funding and in identifying efforts where the CRA should be proactive. P rocess An extensive public and stakeholder engagement process was used that included the following: • An Advisory Committee comprised of • diverse community members • Stakeholder meetings with City • departments • Stakeholder meetings with business • owners, property owners, and developers • A week long public “charrette” • (workshop) that included community listening sessions, stakeholder meetings, community presentations, opportunities for community review and comments, surveys, and a community party • Events within the community to reach • residents where they are located • A website • • On-line surveys • • A values and priorities community 5. Create distinct neighborhood • meeting Goals identities that foster a sense of belonging and neighborhood pride. The following goals support the community vision: 6. Require the best quality architectural Vision design for new development and 1. Create fully occupied residential rehabilitation that reflects the Based on input from stakeholders, neighborhoods with a mix of incomes best historic architecture of the community members, business owners, and ages, while preserving single- community and the City. and City agencies the following Vision family homes, in which people share a sense of belonging. 7. Improve multi-modal transportation represents the hopes of the community: for community residents including The CRA and Advisory Committee 2. Increase homeownership within the walking, biking, and mass transit. community. will work with the residents, property 8. Promote safety using the best owners, institutions, businesses, and 3. Protect affordability for long term design practices available, including City to support and facilitate the residents. CPTED (Crime Prevention through revitalization of the Uptown Community 4. Preserve and celebrate historic Environmental Design) principles. to create stable neighborhoods of choice and cultural assets and use them 9. Maximize the use of existing that promote a mix of incomes, protect to reinforce community identity, infrastructure and leverage single-family homes, create vibrant community pride, and a unique sense investments in new infrastructure to community anchors, and that strengthen of place. facilitate surrounding revitalization. connections to downtown. Executive Summary 3

10. Encourage the preservation and improvement of natural resources and use environmentally sustainable development practices. 11. Improve green spaces and incorporate new green spaces to meet the needs of the community. 12. Create a land use pattern that promotes the development of vibrant anchors that are gathering places for the community. 13. Strengthen connections to downtown. Washington Square 14. Incorporate community input and participation in revitalization efforts. 15. Promote and support the Smokey City development of local entrepreneurs, Civic Center local businesses, and local small Burkle Park Chelsea developers. Neighborhood Center 16. Promote projects that leverage TIF Harbor Town funds to create increased investment in the Community.

Pinch & Gayoso Smokey City Bayou District Manassas Market Community Market Framework and Anchors The Uptown Community is a large area comprised of approximately 2,582 acres (2,216 acres excluding the Mississippi

River), portions or all of 9-neighborhoods, Morris Park and measures approximately 2-miles east to west and 3-miles north to south. Community anchors are important defining and organizing elements of neighborhoods and are places where residents and visitors come together. Sometimes these are commercial centers, sometimes recreational settings, and sometimes civic gathering places. While the neighborhood fabric (residences) are equally important, strong anchors support healthy communities. Strengthening these anchors will serve to focus efforts in the places that will have the greatest impact for the entire community towards stabilization, revitalization, community pride, identity, safety, and additional investment. The adjacent diagram identifies both the existing and proposed key community anchors in Uptown. These are reinforced by the transportation network. While each of these are defined by a 5-minute walk, they are comprised of a variety of uses and a gradation of density moving from the center. These anchors form the basis for recommendations in the following sections and are viewed as priorities for investment of TIF funds and other funding. There are 9 Anchors shown in the adjacent map and listed below. 1. Pinch & Gayoso Bayou District 2. Burkle Park District 3. Chelsea Neighborhood Center 4. Washington Park Square 5. Smokey City Civic Center Manassas Market 6. Manassas Market 7. Morris Park District 8. Smokey City Market 9. Harbor Town

Memphis uptown community plan 4 Executive Summary Draft June 21, 2018 Pinch and Gayoso Washington Park Square (approximately up to 35,000 SF). Even the smaller grocer may require significant Bayou District This area exists at the interface between subsidy. A pharmacy is also desired and, The City of Memphis Pinch District Concept single-family residential and the industrial given the adjacency to St. Jude Hospital, Study from November 30, 2016 establishes uses to the north and west. The dominant would provide for beneficial co-location. A a goal to create a mixed-use urban district element is the 9-acre Washington Park third scenario assumes that a traditional that preserves historic buildings (mainly comprised of a basketball court, picnic chain grocery store is not attained, so on Main Street), reinforces connections, shelter, tot-lot, walking path, lawn, and seeks a non-traditional small format grocer is walkable, and adds significant amounts parking. This park is popular for picnicking/ to occupy all or a portion of the existing of development (supported by structured grilling, but has seen an increase in crime building. It is recommended that this parking). The vision for the area north of recently. It feels remote since it is at the area provide a grocer, pharmacy, and a the Pinch District is to transform the storm edge of residential development, has small amount of retail with the remaining water facility into an active park, integrate vacant industrial on one side, a storm water area developed as residential. It is also new residential uses, and facilitate adaptive pond and industrial on a second side, backs recommended that the CRA issue an RFP reuse of existing buildings in order to of single-family home lots on a third side, for a developer to implement. provide a pedestrian activated environment and Bunge grain elevator across the street that joins the Pinch District and the on the fourth side. The proposed plan for Morris Park District remainder of the Uptown area. this area is to promote safety through CPTED principles by reconfiguring two This are is adjacent to LeBonheur Hospital, edges of the park that will allow for new but suffers from significant vacant Burkle Park District homes to face the park and provide natural properties in the area, as well as high This area is located at the confluence of monitoring of the space. crime in Morris Park. The existing Park three major streets, 2nd Street, 3rd street, will be renovated by the City in the near and Chelsea, as well as a proposed new Smokey City Civic Center future. Implementation of the April 2017 roundabout, Slave Haven Museum, the North Medical District Charrette plan Snuff Factory, and street access to the This area is comprised of the Guthrie (infill development) for this area should be Wolf River Lagoon waterfront. This key Elementary School, Guthrie Park, Dave supported. location also currently has significant Wells Community Center, and a parcel vacant parcels. In addition, several thatis currently being studied as a site Smokey City Market property owners have plans for adaptive for a senior living facility. This location is reuse of former industrial buildings in this also a gateway to the Uptown Community. This existing retail area is in poor condition. area. These factors present a significant Improvements to Guthrie Park to make it a Since there is limited demand for retail, opportunity to create a neighborhood gateway and serve as a historical marker, some of this area should be promoted anchor that can serve as a catalyst for development of senior housing, and infill as residential, while the core of this revitalization. This anchor is primarily high, single-family housing should be supported. area should be supported with façade mid, and low density residential, but can improvements and sidewalk improvements. also accommodate light industrial uses Manassas Market compatible with residential, such as a The Manassas Market area bounded by brewery and food services. T ransportation Jackson Avenue to the north, A.W. Willis to the south, Seventh Street to the west, Current best practices in Urban Street Chelsea Neighborhood and Manassas Street to the east was Design promote equitable transportation Center originally envisioned as a retail center. The access for all people and all transit study area is currently a food desert and modes (principally pedestrians, bicyclists, This area is comprised of both functioning residents desire to have a grocery within public transit, and motorized vehicles). retail and vacant parcels. Since there is the community. While the desire is to have There is a significant need for pedestrian limited demand for retail, some of this a national chain with a larger selection of improvements including provision area should be promoted as higher density foods (50,000-55,000 SF), it is typical that of sidewalks, sidewalk repairs, and residential transitioning to single-family a community with the current population intersection improvements. There are homes, while the core of this area should density and economic demographics existing recommendations by the City for be supported with façade, pedestrian can support a smaller chain grocery improvements in the Uptown Community. intersection, and sidewalk improvements. Bicycle facilities are lacking, but there

Gayoso Bayou Executive Summary 5

Burklepark District are existing proposals to add bike lanes. with the best historic architecture of the Public transit is perceived to be poor by the Housing area. In addition, CPTED (Crime Prevention residents of the community and there is a The Uptown Community housing stock Through Environmental Design) principles study underway as a part of the Memphis has historically been primarily single- should be employed in all proposed 3.0 process. Many of the completed studies family homes with some duplex homes development. and proposals are at the scale of the city. (side-by-side). Most of the housing stock is While the existing recommendations should pre-World War II. Since WWII small multi- be supported, a more focused review and family buildings from 4-6 units have been Environmental study should be undertaken for the Uptown built as infill. Some infill single-family One of Memphis’ and Uptown’s greatest Community. homes (primarily in Uptown proper) have assets is the riverfront. Portions of been built in the past couple of decades. property along the east side of the Wolf A significant number of single-family River Lagoon should be acquired to Leand Us homes in the whole area are in poor implement the waterfront trail. A Wolf River A Land Use strategy has been developed condition and need repairs. A significant Brownfields Assessment Grant included that focuses on Community Anchors. number of the multi-family properties the Wolf River Study Area and a Wolf River These anchors are where the greatest are poorly maintained and also need Harbor Phase I ESA was completed. More density, and more dense housing types repairs. Recommendations include: detailed studies to assess environmental should be located, while areas outside preservation of single-family homes and contamination of individual sites should be of these anchors should be protected as limiting multi-family to the anchors, single- supported. There are also isolated areas single-family residential. Retail is most family rehabilitations grants, multi-family within the Uptown Community that have often successful when it is immediately rehab program, an increase in market experienced flooding during rain events adjacent to other retail, without gaps, and rate housing, and a property acquisition and a study should be undertaken to when grouped in nodes versus corridors. strategy of consolidated areas to facilitate determine the extents of isolated flooding Proposed land uses should create redevelopment and revitalization. and the causes. Additionally, a review contiguous retail nodes and prohibit them and or study should be undertaken to from becoming long commercial corridors. understand if sanitary sewer overflows Commercial should mainly be located Design and Zoning occur in the Gayoso Bayou. If sanitary within areas designated as “Neighborhood Design and form are far more than sewer overflows do occur, a study should be Crossings”, “Neighborhood Main Streets”, aesthetics. Significant research has undertaken to solve this problem. “Urban Main Streets”, or “Anchor shown that urban walkable mixed-use Neighborhood: Urban” – Vacant commercial communities have a significant impact outside of the nodes and outside of these on the environmental sustainability (less Implementation land designations could be converted emmissions), economics (greater fiscal The Advisory Committee is responsible to residential uses. New industrial uses stability and higher property values), health for reviewing funding applications and will should be designed in an urban form and (fewer chronic diseases and depression), use this document as a guide in assessing compatible with adjacent building forms. and safety (lower crime) of a community. consistency with the community vision. The Institutional uses should reflect the best While clearly there are other significant CRA will also use this document to guide architectural character of the community, contributing factors, an urban walkable the initiation of studies and proactively should relegate parking to the rear of the mixed-use community performs better initiate selected improvements for Pilot buildings, and should have front facades than a comparable suburban development. Projects that can act as catalysts for that face the neighborhood, rather than New development should preserve existing revitalization. turning their backs on the neighborhood walkable urban pattern were it exists and which has detrimental effects on ensure that new development is consistent neighborhood revitalization. with the urban pattern of development. Historic architecture should be preserved and new architecture should be consistent

Memphis uptown community plan 6 Introduction, vision and Goals Draft June 21, 2018 Introduction, Vision and Goals Introduction and Purpose In 2001 the Memphis and Shelby County by defining recommendations for the Community Redevelopment Agency following: Goals (CRA) was established for the purpose 1. Vision The following goals support the community of “improving the quality of life through vision: the removal of slum and blight within 2. Goals 1. Create fully occupied residential Memphis and Shelby County.” The enabling 3. Historic Asset Recommendations neighborhoods with a mix of incomes legislation conferred the following powers and ages, while preserving single- 4. Transportation Recommendations to the CRA to carry out community family homes, in which people share a redevelopment: 5. Parks, Recreation, and Open Space sense of belonging. Recommendations 1. The power to determine an area 2. Increase homeownership within the to be a slum or blighted area, or 6. Housing Recommendations community. combination thereof; to designate such area as appropriate for 7. Land Use Recommendations 3. Protect affordability for long term community redevelopment: and to residents. 8. Infrastructure Recommendations hold any public hearings with respect 4. Preserve and celebrate historic to this condition 9. Initial Implementation and Activation and cultural assets and use them 2. The power to grant final approval to Recommendations to reinforce community identity, community redevelopment plans and community pride, and a unique sense modifications of place. 3. The power to authorize the issuance Vision 5. Create distinct neighborhood of revenue bonds Based on input from stakeholders, identities that foster a sense of belonging and neighborhood pride. 4. The power to approve the acquisition, community members, business owners, demolition, removal or disposal of and City agencies, the following Vision 6. Require the best quality architectural property represents the hopes of the community: design for new development and rehabilitation that reflects the 5. Tax increment financing through the The CRA and Advisory Committee best historic architecture of the redevelopment trust fund will work with the residents, property community and the City. owners, institutions, businesses, and 6. The power of eminent domain and 7. Improve multi-modal transportation the exercise of police power for public City to support and facilitate the for community residents including uses and purposes for which public revitalization of the Uptown Community walking, biking, and mass transit. monies will be expended. to create stable neighborhoods of choice that promote a mix of incomes, protect 8. Promote safety using the best The 2001 Community Redevelopment design practices available, including single-family homes, create vibrant Plan was amended/updated in 2009 and CPTED (Crime Prevention through community anchors, and that strengthen included: Environmental Design) principles. connections to Downtown. • Changes to the Future Land Use Plan 9. Maximize the use of existing • infrastructure and leverage • Amendments to the Parks, Recreation, • investments in new infrastructure to and Open Spaces E quity and Upward facilitate surrounding revitalization. • Changes to Hurt Village related to open • Mobility 10. Encourage the preservation and space and commercial improvement of natural resources Key in meeting the mission of the CRA to and use environmentally sustainable • Amendments to the Rehabilitation • remove slum and blight are the people that development practices. Plan for multi-family properties, single- live in the community. Promoting social family homes, and certain commercial 11. Improve green spaces and properties equity that leads to upward mobility for incorporate new green spaces to the residents of the Uptown Community meet the needs of the community. • Amendments to the Transportation Plan • leverages community investments and provides a stabilizing force in the 12. Create a land use pattern that • Planned Initiatives promotes the development of vibrant • neighborhoods. When assessing how • Demonstration Areas anchors that are gathering places for • CRA funds should be allocated, ensuring the community. • Acquisition Plan that funds are allocated in a fair and just • manner should be at the forefront of 13. Strengthen connections to downtown. • Rehabilitation Zones • considerations. The following strategies 14. Incorporate community input and In 2017 the Community Redevelopment should be employed when allocating funds: participation in revitalization efforts. Plan/TIF Boundaries were expanded east • Promote projects that encourage small 15. Promote and support the • along the south-eastern boundary. business development development of local entrepreneurs, local businesses, and local small The purpose of the Uptown Community • Promote projects that include MWBE • developers. Plan (this document) is to establish a participation comprehensive and cohesive vision that will 16. Promote projects that leverage TIF • Promote projects that facilitate provide guidance to the CRA Board, Uptown • funds to create increased investment entrepreneurship Advisory Committee, and staff in assessing in the Community. • Promote projects that hire local (from and approving funding requests, as well • as defining projects where the CRA can be the Uptown Community) proactive in bringing about improvements • Promote projects that use effective • to the community. This is accomplished public engagement and participation • Structure projects that are inclusive • Introduction, vision and Goals 7 City Context and Uptown Community Plan Location The Uptown Community Plan area coincides with the TIF boundary and is located immediately adjacent to the northern edge of Downtown with the Mississippi River making up the western boundary, Interstate 40 passing through the southern area, bounded on the north by the Wolf River, and stopping before the industrial area and Interstate 240 on the east side. The northernmost area of the Medical District makes up a large portion of the southern area.

Legend To Nashville, TN t Rail Lines Uptown Community Plan/TIF S Interstate South Memphis

Urban Arterial Midtown homas T Local Downtown Medical District Parks

Firestone Ave Chelsea Ave

t Uptown S Community atkins

W Plan/TIF . N

Ave

nterstate 240 I J ackson

Interstate 40 North Parkway

To Little Rock, AK Midtown

iver eP oplar Av terstateI n 55 R Medical District

eU nion ississippi Downtown Av M

e L amar

W Mclemore Ave

South Parkway E n I terstate 55 t S 3rd 3rd S S outh Memphis t S resley Blvd resley P lvis lorida E F E Mallory Ave

Norris Rd Ball Rd

To Jackson, TN

City Context

Memphis uptown community plan 8 Introduction, vision and Goals Draft June 21, 2018 Uptown Community Planning Area – Neighborhoods The Uptown Community Planning Area is comprised of significantly more than Uptown proper. It is comprised of all or portions of 9-neighborhoods: Downtown, Victorian Village, Winchester Park (defined by a master plan area), Uptown, Smokey City, Bearwater, New Chicago, Harbor Town, and North Mud Island. The TIF boundary is 2,582 acres (2,216 acres excluding the Mississippi River).

Legend

Uptown Redevelopment Area Rail Lines Medical District Master Plan

Mississippi River

N 7th

S North Mud t Island New Chicago Bearwater

Ave Chelsea

Harbor Town

Chelsea agoon Ave L Smokey City

Wolf River Uptown

Thomas St

t S t sonJ ack Ave S AW Willis Ave t

2nd S 3rd N N Pinch District N orth Park Interstate 40 way anassas

N Winchester Park

idtown

Interstate 240

homas T Interstate 40 Blvd ann D N y Downtown

Victorian

Central Village Gardens Medical District Introduction, vision and Goals 9 Uptown Community Planning Area – Figure-Ground and Key Facilities Mud Island makes up the western area of the community and is separated from the remainder of the area by the Wolf River Lagoon. It contains the Mississippi Greenway Park along the Mississippi River. Mud Island can be accessed from the south (A.W. Willis Ave) and from the north (N Mud Island Rd). St. Jude Children’s Hospital occupies a large portion of the south, has over 3,600 employees, and was ranked as the #1 children’s cancer hospital in the U.S. by U.S. News and World Report. The area to the east of the Wolf River Lagoon is protected by a flood wall. While the majority of the area is comprised of single-family homes, the eastern edge of the Wolf River Lagoon is industrial. Route 40 cuts through the southern area and is psychological barrier between Uptown and Downtown.

Legend

Uptown Redevelopment Area

H arbor View Nursing & R ehab Center

Grain

Elevator

ark P S tormwater Fsacilitie

W ashington Park Manassan

ississippi Greenbelt Greenbelt ississippi High School M

Mississippi River Guthrie Guthrie Park Elementary School Caldwell Elementary School

D ave Wells Bickford Community agoon all Community Center L W Center

e lood Slave Haven Av F Underground R ailroad Chelsea Museum

Wolf River P orter – L eath

Gordan S cience & Arts A cademy

Greenlaw Gayoso Park Bayou

A. W. Willis Jackson Ave Ave Greenlaw

Memphis uptown community plan 10 introduction, vision and Goals Draft June 21, 2018 Planning Background CRA Community Redevelopment Plan – Graphic Summary The initial plan for the area was the 2001 Community Redevelopment Plan which was then amended in 2009. Key elements of the previous plans included Proposed Land Uses, North Parkway and Jackson realignments and improvements, redevelopment of Hurt Village, an Interstate 40 ramp from the east, a public transportation loop, new parks, renovation of Lauderdale Courts, residential demonstration areas (including scattered site replacement program, Fifth/Sixth Street Single-Family Demonstration Area, Caldwell Initiative), site acquisition plan, North Second Street Improvement Study, development of a greenway along the east side of the Wolf River Lagoon, Commercial Center, designation of Rehabilitation Zones.

d d R lan Is ud M Mississippi N River

N 7 t h S

Ave sea

r Chel

lan

s s

oma

agoon

Chel sea Ave

Wolf River

SJa ck on Ave

AW Willis Ave

S t d S No 2n rth rd Parkw N ay 3

t t

S S

a rs

s ye

Mana

Ns Interst ate 40 e 240 t D a LV B rst s e a t m In

Danny Tho N

Legend Single Family & Historic Rehabilitation Lauderdale Courts Uptown Commerial Center Scattered Site Homes - Phase III CRA Study Area Hurt Village Initiative North Second Parkway Uptown West Boundary St Jude Initiative Danny Thomas Realignment Public Transit Loop Gayoso Bayou Greenway North Parkway Realignment Rail Lines Caldwell Elementary Initiative Exchange Street Improvement 5th/6th Street Demonstration Area Multifamily Rehabilitation Chelsea Ave Residential Demonstration Area Commerial Rehabilitation introduction, vision and Goals 11

Graphic Composite of Master Plans There have been several concepts/master plans developed for the area in addition to the Community Redevelopment Plan that include The Pinch District Concept Plan, Uptown West Master Plan, Klondike Smokey City Historic Preservation Plan, Winchester Park Master Plan, and the (Medical District Master Plan). A graphic summary of the recommendations is found below.

Legend Wolf river Greenway Study Area/TIF Boundary Proposed River Taxi Proposed River Taxi Stops Proposed Boulevard Existing Boulevard Rail Lines Wolf River Greenway SWM Proposed Greenway Existing Parks Proposed Parks Uptown West Plan Pinch District Plan Mississippi Winchester Park Plan River Commercial Frontage Infill Opportunities Historic Neighborhoods & Institutions N 7th St Neighborhood Commercial (NC) Historic Alley System First Priority Heritage Trail Proposed Road Improvement Uptown West M.P. Proposed Bike Lane Uptown West M.P. Proposed Cycletrack Uptown West M.P. Mississippi Greenbelt Uptown West M.P. Mississippi River Trail Uptown West M.P. Signed Bike Route Proposed Shuttle

Uptown West Master Plan Wolf River Greenway Klondike Smokey City Historic Preservation Strategy

agoon L Ave Chelsea

Wolf River Chelsea Ave

2nd St

N 3rd St

Thomas St Pinch District Jackson Ave Master Plan illisA W W Ave

North Parkway

Danny Thomas Blvd N

Manassas St Memphis ers St N y

Dunlap St

A Riverfront N Concept

Winchester Park Master Plan

Memphis uptown community plan 12 Introduction, vision and Goals Draft June 21, 2018 Pinch District Concept Plan The Pinch District Concept Study from November of 2016 establishes a goal to create a mixed-use walkable urban district that preserves historic buildings and reinforces connections. The boundaries are generally the St. Jude Campus to the east, Front Street to the West, I-40 to the South, and just beyond A.W. Willis to the north. The retail focus of the plan is made up of two cross streets. The first is Overton, leading from the St. Jude Entry to the Pyramid, which is primarily comprised of new buildings. The second street is Main street, which is comprised of several existing buildings and some new ones. About half of the properties (located on the eastern half) are owned by St. Jude Hospital and will be developed to meet the needs of the hospital (but will not be inside the gate). The other half are owned by others. The proposed vision for this study area is consistent with the goals of the Uptown Community plan. Implementation is greatly dependent on participation by St. Jude, as the market is untested.

Uptown West Master Plan The 2012 Uptown West Master Plan established the goal to create a new waterfront trail along the east side of the Wolf River lagoon. It also proposes that industrial uses be relocated and illustrates properties developed as multi-family residential. Several of the existing industrial buildings are proposed to be demolished. In addition to the waterfront, open space recommendations include improvements to the Gayoso Bayou, improved programming of Washington Park, and the addition of a skate park at the Bunge site. The proposed vision for this study area is generally consistent with the goals of the Uptown Community Plan, but implementation needs to respond to goals of maintaining and maximizing single-family homes where existing, maintaining some industrial buildings and uses, adjusting for the 2nd and 3rd street alignments, augmenting Washington Park programming improvements with a better and safer neighborhood interface, and responding to incremental implementation through a market-based approach. Introduction, vision and Goals 13 W inchester Park – In-Town Charrette Report/Plan and North Medical District Charrette Results The 2006 Winchester Park Plan contains many recommendations including rehabilitation and infill of single-family homes, redevelopment of blocks facing Morris Park with fronts facing the park, improved street sections including Poplar with a median, improved connections north to south, an overpass park (courts under highway), redevelopment of the blocks surrounding Winchester Park as residential and office/medical front-of-house, redevelopment of the St. Mary’s parking lot, Gateway. The proposals generally focus on - Based on best practices that move away and creating higher density around Morris small scale infill development. from commercial corridors to commercial Park. nodes, a review of various market analyses, The proposals for these areas are generally and the anchor-based Uptown Community The April 2017 North Medical District consistent with the Uptown vision, goals, vision, this approach is not supported. The Charrette results break down the and plan, but with one notable exception. remainder of the recommendations are Winchester Park Area into the Galloway The North Medical District Charrette supported. Speedway District, Legends Park Area, proposes a commercial corridor along the St. Mary’s Neighborhood, and St. Jude entirety of Jackson Avenue within this area

Klondike Smokey City Historic Preservation Strategy/Plan This plan summarizes the history of the area, identifies historic time periods and historic assets, and recommends a historic houses rehabilitation pilot program, Klondike Smokey City Historic Trail, Community Based Indoor and Outdoor Museum, Marketing Strategy, and building organizational capacity for historic preservation. The proposed vision for this study area is consistent with the goals of the Uptown Community plan.

R egional Bicycle and Pedestrian Plan, Memphis Complete Streets, Memphis Pedestrian and School Safety Action Plan These plans provide recommendations for bike lanes, bike trails, complete street configurations, new sidewalks, sidewalk improvements, and intersection crossing improvements. The recommendations are consistent with the goals of the Uptown Community Plan.

Memphis uptown community plan 14 Public Engagement + Discovery Draft June 21, 2018 Public Engagement + Discovery Approach Any powerful community engagement This process gave input from some of the Engagement Principles effort must include a multitude of tools and most active and engaged stakeholders in tactics if expected to be truly successful Uptown. But that is only the beginning. 1. Meet people where they are at reaching a broad and diverse audience. The approach to engaging with In order to reach those who often aren’t community goes further than asking Too often we only ask people to come engaged in a process like this one, we also people to attend meetings. Our to our meeting with our agenda, and took a more active approach by popping process is rooted in meeting people while traditional meeting and interview up and taking the process out and into where they are when they are there. structures are important, we believe that it We do not expect people to get on the day-to-day routine of neighborhood is equally important to get outside meeting our calendar, we must get on theirs. residents. This approach took us to places people where they are. like Roxie's in the morning and Ms. Girlees, 2. Engage inside and out The Uptown Advisory Committee has Cozie Corner and the Office @Uptown at For places to truly grow we must understand not only how residents taken a significant role in this process lunch time. This simple process of asking interact with their place, but also by providing initial input through a 3-4 strategic questions while people were how visitors interact or not with the group meeting, facilitating groups at the walking to their car or waiting for their community. This is why our approach charrette, participation at community coffee produced powerful results. The includes creatively engaging events, review of the Plan concepts via questions included: with outsiders to see what their a community tour, a detailed review of perception is of a place and how that • How do you spend your time in Uptown? • drives their interaction with it. the Plan, facilitation at the community Live/Work/Play? Values and Priorities meeting, and ongoing 3. Have Fun • What should change in Uptown? establishment of priorities and review of • Community meetings and planning input processes often are perceived applications for funding. • What should remain the same in • to be boring and tedious, but that Uptown? An extensive public and stakeholder doesn’t have to be the case. Our engagement process was used that • The CRA will invest $95 million in active process of popping up in • places creates a fun and collaborative included the following: Uptown over the next 14 years, how would you prioritize this investment? atmosphere that encourages more • An Advisory Committee comprised of honest input and engagement, while • diverse community members We believe that it is critical to not only inducing excitement around the listen to those who engage with the process of planning for change. • Stakeholder meetings with City • neighborhood daily, but also with those departments who may live nearby but avoid or simply • Stakeholder meetings with business • do not consider visiting or interacting with owners, property owners, and developers the place. This typically provides valuable • A week long public “charrette” insight into what the outside perception • (workshop) that included community of a community is and what drives the listening sessions, stakeholder meetings, decision-making of stakeholders who community presentations, opportunities choose to not include Uptown in their day- for community review and comments, to-day routine. In this case we co-opted a surveys, and a community party popular slow ride event put on regularly • A website • by the nearby Memphis Medical District • Online surveys Collaborative. By taking the route through • the Uptown focus area we were able to • A values and priorities community • hear the perceptions and thoughts of meeting outsiders in real time as we passed through on two wheels.

cra board meeting at the office @uptown Bus Tour with CRA Board and Advisory Committee Public Engagement + Discovery 15

Final charrette presentation and warehouse party

Pop up engagement in office @uptown Active engagement on 2nd Street

MMDC slow ride through Uptown Pop up sidewalk cafe

Memphis uptown community plan 16 Public Engagement + Discovery Draft June 21, 2018 S ummary Of What Was Learned Our approach to outreach in Uptown Weaknesses Common Themes + Objectives included a digital survey, public meetings, • Safety concerns 1. Diversify housing by building type, engagement of the newly formed Advisory • tenure type, and price point Committee, one-on-one interviews, and • Not enough being done about run down • 2. Invest in street infrastructure that active pop up input sessions throughout buildings enhances walkability and bikeability the focus area. We heard from residents • Need more diversity new and old, business owners, employees • 3. Attract more active retail, particularly • Not enough jobs food and beverage establishments of local businesses and even those who • 4. Begin to alleviate the food access live outside of the focus area. Below • Not enough restaurants and bars are some of the items we heard most • problems by attracting a diverse set • No grocery store and drug store of food options to the neighborhood often throughout the process sorted by • strengths, weaknesses and opportunities. • Not enough market-rate housing 5. Enhance transit opportunities We have also included a list of objectives • throughout the focus area that are based on the intelligence gathered Opportunities throughout this process. • Could build larger single family houses • Strengths (3 and 4 bedrooms) • Parks could be better • Good single family housing stock • • • More recreation along the harbor • Proximity to downtown and the river • • • Trolley could be extended north • Affordable housing prices • • • More for the youth to do when not in • Quality nearby elementary school • • school • Good long-term established restaurants •

directly engaging stakeholders in the planning process Public Engagement + Discovery 17

Charrette Highlights

Memphis uptown community plan 18 HISTORY Draft June 21, 2018 History

The history of the Uptown community had and Randolph road sketched on later shows any response to topographic conditions its beginning in the early layout of the city what became N 7th Street. or how the bayou might be rerouted plan. A site for the city of Memphis had within the street and block structure. A The Uptown (Greenlaw) neighborhood was been situated to take advantage of the platting of larger blocks is shown north first platted in the 1840’s by the Greenlaw Chichasaw Bluffs as a landing station. The of Chelsea Avenue, up to Brinkley Street brothers, and developed in partnership with earliest plan (H-Fig 1) extended north and (T.M. Henderson Ave), between N 2nd and Robert Looney, the Saffarans Brothers, east to the Gayoso Bayou (H-Fig 1), which N 7th Streets, which explains the larger and E.T. Keel, all namesakes of the formed a natural boundary, and south blocks we see today; however, some of neighborhood’s streets. The 1858 Rucker initially as far as Union Avenue. In this the north-south streets shown were not Map (H-Fig 2) shows the executed platting, platting, the blocks that became the Pinch put in place. Note also the platting of which extended the four-square block form District were first laid out, and we see the Alabama Avenue, between Jackson and (a block equally subdivided by crossing first traces of many of the neighborhood’s Poplar Avenues, which survives intact, alleys) of the original Memphis plan north principle streets, such as A.W. Willis but the other streets associated with that to Kerr Street (Avenue), and between N (Auction) Ave, Jackson Ave, as well as N platting have not survived; this change in Main St. and N 7th Street. The platting Front (Chickasaw), N Main, N 2nd, and N street orientation from the existing grid “maps over” the Gayoso Bayou without 3rd Streets. An early trace of Big Creek to the west appears to be a response to the topographic conditions resulting from the branching of the Gayoso Bayou at the intersection of N 4th St and Concord St (Danny Thomas Place). The map also shows the first platting of a north/south street labeled ‘Town Reserve’, then in later maps Boundary (Street?), before taking its current name Manassas Street; the orientation of this street would have a significant impact on the layout of future streets as development moved eastward. The first Aerial Perspective View of Memphis, dated circa 1870 (H-Fig 3) appears to depict portions of the Uptown Planning Area as it existed in the decade prior to the maps publication, which is confirmed by an 1862 map prepared by the Union Army. Upon close inspection, some interesting observations can be made: • The Gayoso Bayou is clearly visible, its • course tamed and routed into its current location north of Auction (A.W. Willis) and west of N 4th St, • The Greenlaw neighborhood shows • significant build-out, but not as dense as similar edge neighborhoods east and south, • No street grid had been developed east • of N 7th St, • A substantial rail station (terminus) • for the rail line coming from the east occupied the Pyramid site along the Wolf River waterfront (labeled Memphis U.S. Naval Depot in the 1858 Rucker Map), • The Pinch District was substantially built- • out and was an integral extension of the central business district to the south, • Auction St (A.W. Willis Ave) appears • almost as an alley west of N Main St, and the square shown in the 1819 and 1858 cadastral maps is present on the southwest corner of Auction and Main,

H-Fig 1: Original Layout of Memphis 1819 Horse-drawn Trolley 1870 HISTORY 19

H-Fig 2: excerpt of Planning Area from 1858 Rucker Map

H-Fig 3: excerpt of Planning Area from 1870 Aerial Rendering

Memphis uptown community plan 20 HISTORY Draft June 21, 2018

H-Fig 4: Donoho & Buckley Map of 1871 (Planning Area in red)

but not at the scale or extent originally proposed, • The rail line running on Main Street • terminated at then-Auction Street, and if the minutiae of the diagram are to be believed, it was serviced by horse-drawn trolleys (see image), • The only trolley line extending eastward • north of Beal St was on Poplar Ave, • The alignment of Alabama Ave and • its sister streets can be seen clearly responding to the branching of the Gayoso Bayou, • The current site of St. Jude was sparsely • occupied, likely due to negative impacts (flooding, insects, odors, etc.) of the Gayoso Bayou and its branches, • Two significant historic structures in the • Uptown Planning Area are visible: the Orphan Asylum (Porter-Leath) and Third Presbyterian Church (Old Brick Church, 299 Chelsea Ave). The next phase in the platting and neighborhood development can be observed in the Donoho & Buckley Map of 1871 (H-Fig 4), which shows the initial platting of streets and blocks east of N 7th Street and north of Poplar Ave. Again, we see the origins of the Planning Area’s eastern street and block network: • The area bounded by N 7th St, the then- • M&O R.R. line, Boundary (Manassas Ave), and Chelsea Ave displays a radical break with the grid to the east, with the alignments of east/west streets mediating between the alignments of Jackson and Chelsea, while north/south streets align with Manassas, although pre-existing parcel configurations may have played a role in these alignments,

H-Fig 5: excerpt of Planning Area from 1887 Aerial Rendering HISTORY 21

• All the north/south streets between • Union and Vollentine (T.M. Robinson Ave) are aligned with Manassas St, • Union Ave and Vollentine Ave, as well as • most east/west streets in between, are aligned perpendicular to Manassas St, • This orientation is maintained • throughout the portions of the Smokey City and Winchester Park neighborhoods that fall within the Planning Area, • The north/south streets north of Chelsea • Ave and east of Thomas St also maintain this orientation, but some with minor deviations; the D&B 1871 map shows an intention to orient these streets to due-north rather than to the Manassas St alignment, which may explain these variations, • The map provides no information on the • Gayoso Bayou. Another Aerial Perspective View of Memphis, dated c. 1887 (H-Fig 5) is limited in what it shows of the Planning Area due to its vantage point, but there are a few observations of note: • The Uptown (Greenlaw) neighborhood • shows additional infill, but mostly to the south, • The principal spine of eastward • development was along Poplar Ave, no doubt due to the early installation of a trolley line, • A rather circuitous trolley line beginning • H-Fig 6: P.F. Collier Map 1911 (Planning Area in red) at Exchange and Main Streets, made its way over to Jackson Ave somewhere proximate to the current Thomas Street intersection, then extended eastward to Manassas, • Development north of the then-L.N.&G • R.R. (previously labeled M&O R.R.), particularly east of Manassas, remained sparse. By the time of the 1911 P.F. Collier Map (H-Fig 6), we can observe that the street framework of the Planning area was complete, and any changes from what we observe today are mostly due to streets being eliminated to accommodate the St. Jude campus, I-40, and several public housing projects. The Gayoso Bayou was still open-air at this point; the process of placing it into a below-grade stormwater drainage system began soon after. That work was initiated sometime after 1911 with the accession of E.H. Crump, partially as a response to repeated flooding in and around the bayou. One of the first efforts was the construction of the Gayoso/ Saffarans Pumping Station, circa 1915. Covering the bayou allow for the creation of Lauderdale Street, which must have been completed prior to the construction of the Lauderdale Courts housing project circa 1937. The 1913 Memphis Street Railway Company Map (H-Fig 7) shows the trolley line on Jackson had been extended as far as Maury Street. The N Main St line had been extended to Keel, where it took a right turn and proceeded north along N 2nd Street. Another branch off the Main St line turned right on Mill St, formed a north/ south couplet on N 5th and N 6th Streets up to Chelsea Ave, where the line branched, H-Fig 7: Memphis Street Railway (trolley) map 1913 (Planning Area in blue) north along Thomas Street, and east on Chelsea Ave.

Memphis uptown community plan 22 HISTORY Draft June 21, 2018

Slave Haven Museum

The Ohman Map of 1925 (H-Fig 8) shows a few things of note: • Most of the Planning Area fell within the • city limits, except for the area north of Maple (Wells) Avenue, • This is the first map to propose • a land use plan with four simple designations: Residential, Business, Manufacturing, and Open/Cemetery; while the Business designation clearly indicates commercial/retail uses, the Manufacturing designation is a blanket overlay for districts as diverse as the CBD, warehouse districts in the south and north, and actual industrial operations, • Areas of the Uptown (Greenlaw) • neighborhood west of N 3rd St were designated Manufacturing, even though historically manufacturing enterprises mostly resided adjacent to the Wolf River waterfront, • North Parkway makes its first • appearance on a map as an extension of A.W. Willis (Auction) Ave, H-Fig 8: Ohman Map of 1925 (Planning Area in red) • The principle east/west avenues of • Poplar, Jackson, Saffarans, Vollentine (Tim Robinson), and Chelsea were intended to be the commercial corridors in the Planning Area. The final map shown is the 1951 Ashburn Map (H-Fig 9). This map documents the street network in the planning area prior to the disruptions caused by the Interstate construction, and smaller alterations arising from public housing projects. We note here that the history of the Klondike and Smokey City neighborhoods is extensively documented in the Klondike Smokey City Historic Preservation Strategy (KSCHPS) report, and readers are advised to consult that document for additional information on those neighborhoods. It should also be noted that only the western half of Smokey City (from Ayers St) falls within the Planning Area. Things of note in that report which are also covered in this planning effort: • On p. 36, Item 3 of the KSCHPS report • recommends restoration of the alley system in Smokey City as part of a neighborhood-wide trail system recognizing the alleys’ importance in the history of the neighborhood (see Recommendations below); • A significant portion of the historic • housing fabric of the neighborhood is still intact, but aggressive preservation efforts will be need to slow the loss of additional structures (see pp. 26-35 of the KSCHPS, and recommendations below). H-Fig 9: Ashburn Map 1951 (Planning Area in red) HISTORY 23 Historic Districts Map

old brick church

16. Caldwell Elementary, 230 Henry Ave., early 20th c. 17. Fire Station #3 (New), 924 Thomas St., 1950 18. Porter-Leath Home, 850 North Manassas, 1856 19. Humes, L. C. High School, 659 North Manassas, 1924 20. Fire Station #15 (Bungalow), 1010 Faxon Ave., 1919 21. Lownstein, Abraham, House, 217 North Waldran, 1901 22. St. Mary’s Cathedral, Chapel and Diocesan House, 692 Poplar Ave., 1898-1926 23. Bradford-Maydwell House, 648 Poplar Ave., Memphis, 1859 Recommendations • The historic integrity of existing • neighborhoods in the Planning Area should be preserved, as revitalization efforts proceed, • Disruptions to the existing street and • alley network should be minimized as revitalization efforts proceed, • Infill efforts should take precedent over • National Register Historic Districts: multi-block urban renewal efforts, Klondike-Smokey City Historic Study Area: • Street, sidewalk, alley, and other • infrastructure restoration/upgrade Memphis Heritage Inc. Listed Properties: projects should be designed to enhance the unique historic character of each neighborhood, 5. MLGW Artesian Water Department, • Many surviving structures more than Historic Districts 301 A.J. Willis Ave., circa 1920 • 100 year of age are in severe jeopardy; 6. Memphis Humane Shelter/Old Shelby on the east side of the Planning Area, List of National Register County Jail Fence, 463 North Front buildings 50 years of age or more Historic Districts in the St., 1936 are numerous, and many are severely endangered; aggressive efforts will be Planning Area: 7. Dixie Greyhound Bus Lines Complex, required to prevent loss of additional 525 North Main St., 1937 historic fabric, • Pinch North Main Commercial District, • 8. MLGW Bayou Gayoso/Saffarans • Building on the work in the KSCHPS, • Greenlaw Addition Historic District, • • Pumping Station, 35 Saffarans Ave, undertake a complete survey of between 1920-1950 • Galloway Speedway Historic District, surviving historic structures (50 years • 9. Tri State Iron Works, 61 Keel Ave., of age or more), noting location, date of • Wells-Arrington Historic District, • 1883-1946 construction, use, style, condition, and • Delmar Lema Historic District. other pertinent data to aid in prioritizing • 10. Burkle Estate (Slave Haven U.R.R preservation efforts; Museum, c. 1850 • Enlist existing historic preservation List of Memphis Heritage Inc • 11. Fire Station #3 (Old), 652 North Third organizations to assist in these efforts Designated Historic Properties: St., 1900 within the Planning Area, 1. St. Mary’s Catholic Church, 155 Market 12. Mill House, 274 Mill Ave., 1861 • Implement a Historic Badge program • St, 1864, for buildings in the Planning Area to 13. Love, George Collins, House, 619 North recognize the historic value of the 2. Lauderdale Courts Public Housing, Seventh St., 1889 structures and aid in their preservation, 234 N Lauderdale St, 1937, 14. Old Brick Church (Third Presbyterian), restoration, and continued use. 3. GW Electric Substation #4, 67 299 Chelsea Ave., c. 1860 Jackson Ave, Memphis, early 20th c. 15. Anderson & Tully Lumber Company, 4. Anshei Mishem Synagogue, 112 1242 North Second St., early 20th c. Jackson Ave., Memphis, early 20th c.

Memphis uptown community plan 24 transportation Draft June 21, 2018 Transportation S treet and Sidewalk Conditions Existing Conditions 1. SR-3 North Second Street process will commence, which will work Interchange at I-40 (2040 ID 12); out the details of the final alignment and Within the Uptown Planning Area, the 2. North Second Street, Phase II (2040 its impact on adjacent properties. In the existing conditions of streetscapes ID 39); and recommendations below, there are NSSCIP- (roadways, planting Stripes, and sidewalks) specific opportunities for the CRA to vary considerably in quality and adherence 3. Poplar Avenue Improvements (2040 ID 58). engage in the design process with TDOT for to best practice design standards. The the betterment of the Uptown community. City has put in place standards for street As mentioned above, the condition of improvements, principally the Livability streets in the Planning Area varies, but Recommendations for 2040: Regional Transportation Plan (RTP), generally tend to be in a poor state of Complete Streets Project Delivery Manual repair and substandard to the needs of Street and Sidewalk (CSPDM), and the Memphis Pedestrian future development and neighborhood Improvements and School Safety Action Plan (MPSSAP), improvement. In the newer neighborhoods • Prioritize pedestrian and bicycle safety, which together promote current best that have been redeveloped as a whole, • • Maintain and improve existing street practice standards for street retro-fits and such as those around Greenlaw Place and • related infrastructure improvements. The at Legends Park, they exhibits some of the network connectivity and integrity, need for street and sidewalk upgrades and best street conditions in the Planning Area, • Fund a comprehensive study of street • improvements in the Planning Area are but these are the exception, not the rule. conditions in the Uptown Planning Area considerable, as any drive-through of the More typically, we see conditions that vary (Uptown Street Conditions Assessment, neighborhoods will reveal. between acceptable (paving and sidewalk or USCA) to assay and document conditions good, but could be improved the need and scope of necessary There are five Functional Class street types improvements, with better upkeep), to poor (degraded (Fig. T-1) in the Planning Area are: • The USCA should include paving and curbs, degraded and overgrown • • Urban Interstate: I-40, recommendations for how improvements • sidewalks, no planting stripes for street- across the Planning Area could be • Urban Principal Arterial: Poplar (east trees), to unimproved (minimal paving, • grouped into discrete projects for of Thomas), Jackson (east of Thomas), often degraded, no curbs, no stormwater purposes of scope, cost estimation, Thomas (south of Chelsea), N 2nd and N infrastructure, no planting stripes, and no funding, and implementation, 3rd Streets (north of I-40), sidewalks). • The preparation of the USCA should • Urban Minor Arterial: A.W. Willis, • • The need for street improvements in the include a public process to garner North Parkway, N Front St. (south of Uptown Planning Area are substantial, community input on needs and priorities, A.W. Willis), Poplar Ave (west of Thomas but as the RTP make clear, the currently and build consensus about the same, St), Chelsea Ave, Thomas St (north of planned transportation improvements for • A recommended reconfiguration of Chelsea Ave), Shadyac Ave (west of N • 3rd), N 2nd and N 3rd Streets (south of the Memphis Region require $19 billion to the intersection of A.W. Willis and I-40), fully fund, while only $10 billion in funding Danny Thomas Blvd. was developed is available (see Chapter 8). Of the projects during the Uptown Charrette, which • Urban Collector: N Manassas St, Ayers, • listed in the RTP, only the N 2nd/3rd Streets recommended improvements to the the N 7th Street, and T.M. Henderson Ave, intersection that will enhance pedestrian improvements show allocated funding. This • Local: All other streets not described safety and comfort when crossing at • suggests that funding for additional street above. the intersection, reduce the quantity improvements will be a challenge, even of paving by introducing additional (Source: Roadway Functional Classification though the need in the Planning Area is medians (which also provide pedestrian System for Shelby County, TN; Shelby great. refuges), and provide a more pleasing County Department of Regional Services, road aesthetic, The N 2nd/3rd Streets improvements July 2013. Also see TDOT, Functional • A recommended reconfiguration of (North Second Street Corridor • Classification Maps, https://www.tn.gov/ the proposed circle in the NSSCIP was Improvement Project - NSSCIP) currently tdot/driver-how-do-i/look-at-or-order-state- developed during the Uptown Charrette, being planned and budgeted, will have maps/maps/annual-average-daily-traffic- which recommended changes to the a significant impact on the west side of current TDOT proposal; the objective of maps1.html) the Planning Area, particularly on N 2nd the proffered modification to the current St north of Henry Ave, which requires a design is to prioritize neighborhood substantial increase in the width of the connectivity and integrity, provide The Interstate and Urban Principal Arterial neighborhood amenity space, create right-of-way, impacting properties on the routes conduct a substantial quantity of new opportunities for residential west side of the street. In much the same commuter and service traffic through the development and infill, and integrate the way, a new traffic circle is planned between varied uses in the neighborhood into an Planning Area, particularly to destinations Bickford and Henry Avenues that will merge unified urban design concept (see p. 44 such as Downtown and the St. Jude N 2nd and 3rd Streets coming from the for additional information). Campus. A.W. Willis, though designated south into 2nd Street northbound. South an Urban Minor Arterial, is nonetheless of the proposed circle, the project will make an important road serving the Planning improvements to the two existing streets, Area, particularly the St. Jude Campus and bringing them in line with best practice Harbor Town. Generally, the Planning Area standards as specified in the CSPDM and is well-served by this street framework. MPSSAP. The RTP lists several projects that will The Tennessee Department of impact the Planning Area. These include Transportation (TDOT) has submitted region-wide projects (2040 IDs 1009, 1010) the NSSCIP for Environmental Impact for general street improvements (Bike/Ped/ Statement (EIS) review. Upon completion Complete Streets/Transit Operations), and of the review, the construction design projects specific to the Planning Area: conceptual layout for n 2nd street traffic circle transportation 25

t-1: Transportation Analysis

Legend

Site Rail Lines Proposed BRT Route Interstate Proposed BRT Stops Urban Principal Arterial Riverfront Trolley Line Urban Minor Arterial Main Street Trolley Line Urban Collector Trolley Stops Greenway

Memphis uptown community plan transportation

experience in Memphis, such as the • Options of locating additional Explore • Chelsea Avenue Greenline and the NSSCIP Bike Share stations in the Planning (which retrofits 2nd and 3rd Streets with Area should be studied; the CRA should advocate for this. bike lanes). But as the Memphis Division of Engineering map reveals, existing and proposed bike routes north of A.W. Willis are relatively few for such a large area. P ublic Transit The Uptown Planning Area is reasonably The Memphis bike share program, Explore well serviced by existing bus and trolley Bike Share, has just launched (Spring lines, as well as benefitting from the 2018), and is anticipated to increase the location of a major transit hub, the new bike share station modal share of biking throughout the William Hudson Transit Center. To the Memphis core. In consequence, the need extent that the Planning Area suffers a for on-road bicycle facilities will increase, Bicycle deficit of service, it is one common to the and any planning study for streets and system, principally the infrequency of Transportation bikeways should assess the impact of this service, extent of network coverage, and share program. In addition, Explore Bike the travel time required to reach ones Planning Share stations within the Uptown Planning destination. This and related transit issues Current best practice in Urban Street Area are currently lacking; providing are currently under study by the Memphis Design promotes equitable transportation those stations where feasible in any future 3.0 planning effort, and their current access for all people and all transit modes expansion of service would be desirable. (principally pedestrians, bicyclists, public draft report, Memphis 3.0 Transit Vision Bird Scooters has also commenced transit, and motorized vehicles). Providing Draft Recommended Network, provides a operations in Memphis, which provides a for bicycle transit is having a substantial thorough analysis of the current system, as similar share program for scooters in the impact on street design, both for new well as recommentions for improvements city that increases transportation options, streets and retro-fits, and therefore should to the system. The report may be accessed with rental access for their scooters be anticipated as a significant component at http://www.memphis3point0.com/ available through a smart-phone app. of any future street improvements in the transit. Uptown Planning Area. Guiding documents include the Memphis MPO Regional Bicycle Recommendations for Recommendations for & Pedestrian Plan (2014), the Memphis Bicycle Infrastructure Transit Improvements MPO Bicycle & Pedestrian Report (2017), Improvements • Coordinate with the Memphis 3.0 as well as the CSPDM and MPSSAP. In • • The USCA study prescribed above should planning effort on transit analysis and addition, the City of Memphis Division of • needs particular to the Uptown Planning Engineering provides maps of existing and include sections assessing existing and currently proposed bikeways, and Area, proposed bike routes (2017). The map can whether additional bikeways are desired • Assess possibility of extending Trolley be accessed at https://bikepedmemphis. • or needed, lines and service further north to better wordpress.com/bicycles/bicycle-maps/. • The USCA study should draw on data serve the Planning Area, • The City of Memphis and affiliated collected for existing reports and • As density increases in the Planning • organizations (e.g., Greater Green studies (e.g., MMPO, Memphis 3.0) Area, plan and advocate for additional Line Memphis) have adopted policy that specifically relate to the Uptown service and improvements. documents (CSPDM and MPSSAP) and Planning Area, specific proposals to improve the bicyclist

t-2a: Preferred alignment from round-about to marble ave (Original EIS Alignment)

Alternate Alignment to Avoid American Hardwoods t-2b: Preferred Alignment for northern end of N 2nd Street (alternative alignment) transportation 27

t-3: Bicycle Network Analysis

Legend

Study Area/TIF Boundary Proposed On-Street

Rail Lines Proposed Shared Use Path Existing Dedicated Lanes Programmed Cycletrack Existing Bicycle-Friendly Roads Uptown West M.P. Proposed Cycletrack Existing Major Roads Uptown West M.P. Proposed Bike Lane Intersection Problem Point/Corridor

Memphis uptown community plan 28 Environmental Draft June 21, 2018 Environmental

close off the access to the Mississippi and expected to have been released to the Existing thereby convert the Wolf River Lagoon into Harbor through storm water runoff (both Conditions a lake while at the same time creating land overland and through underground with development potential – This proposal drainage features) and/or groundwater was adopted by the City Council. See discharge; examples of such discharges Waterfronts Riverfront Master Plan, May 22, 2002. are bulleted below. One of Memphis’ and Uptown’s greatest • Petroleum products and hazardous • assets is the riverfront. The Uptown Flood Wall substances have been discharged from Community has two waterfronts. The Along the eastern edge of the Wolf River parking lots and pavement around first is the Mississippi River which forms Lagoon is a floodwall that protects the industrial facilities, roads, and lots in the westernmost edge of the community. area from Mississippi River floods. If the Uptown and Downtown Memphis and on Mud Island. The second is the west and east banks floodwall were to fail or if water levels were of the Wolf River Lagoon. The adjacent to exceed the height of the floodwall, flood • Petroleum products have been • map shows the floodplains in the Uptown zones are illustrated on the adjacent map. discharged from automobile repair Community. garages, junk yards, and machine shops in Uptown and Downtown Memphis. Flooding • Releases of solvents detected in Mississippi River There are isolated areas within the Uptown groundwater at the Pyramid Arena, The edge of the Mississippi River is Old Cummins Diesel, Firestone, Uptown Community that have experienced flooding comprised of the Mississippi Greenbelt Memphis Blocks 51/52, Uptown Mixed- during rain events. The floodplain locations Park with recreational path and is a Use Center, Levee Auto Parts, and Metal are shown in the adjacent map; flooding regional and local amenity. Flooding of Manufacturing/Perl Co. incident reports are documented on p. 79. the Mississippi River cover most of the • Historical hardwood processing in the • Mississippi Greenbelt Park Park (see below), Uptown area may have included wood but the multi-use path is usually out of Environmental preserving. Coal tar (beginning in the the flooding. The development (mostly 1840s) and chromated copper arsenate and pentachlorophenol (beginning in the residential) on Mud Island is located outside Contamination mid-1930s) were commonly used wood of the 100-year floodplain. A Wolf River Brownfields Assessment preservatives. Grant included the Wolf River Study Area • A coal tar plant that was later converted Wolf River Lagoon shown in the adjacent diagram which • encompasses a significant portion of the to a manufactured gas plant that used The Wolf River Lagoon is a vestige of the and stored bulk quantities of fuel oil Wolf River formed when the Wolf River was Uptown Community. A Wolf River Harbor was at the location of the current North re-routed to meet the Mississippi further Phase I ESA was completed. Findings Second Street Trolley Garage from the north. Since the Wolf River does not have included: late 1890s to the early 1930s. through-flows of water, the water backs up “The Phase I ESA revealed a long Past releases of hazardous substances from the Mississippi to the south. These commercial and industrial history of and petroleum products to the Harbor hydraulics result in debris backing up in the properties that adjoin the Harbor, represent a historical recognized the Lagoon (particularly to the north) and with multiple releases to soil and environmental condition that remains a compromised water quality. There are boat groundwater at several surrounding recognized environmental condition based docks in the Lagoon with access to the area sites (within 1 mile) in Uptown and on its categorization as an Impaired Water Mississippi River. There is a proposal to Downtown Memphis. Contaminants are

Uptown Planning Aa re

mississippi river at flood stage Environmental 29

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Flood Zones

Legend

Study Area/TIF Boundary

Rail Lines 500-Year Flood Zone Floodway 100-Year Floodplain Protected By Levee Floodwall

Memphis uptown community plan 30 Environmental Draft June 21, 2018

with use restrictions established by the sewage with respect to the planned future Dumping State of Tennessee. use of the Harbor may be mitigated and/or addressed considering the following. Illegal dumping takes place in the northern Information from the City of Memphis part of the Uptown Community. This • Neither the Harbor nor the Mississippi Public Works Department indicates that the • includes construction materials, trash, and River is used as a drinking water source sanitary sewer system within Downtown dogs. These actions create unsafe and Memphis overflows multiple times each and there are no surface water intakes in the Memphis area that supply public unsanitary conditions. year. The Gayoso Bayou and Marble Bayou water. drainage basins collect sanitary sewer • Limiting recreational activities to meet Recommendations: overflow and discharges it (untreated) • to the Wolf River Harbor. The discharge restrictions established by the State of • A study to determine the extents of Tennessee. • of sanitary sewage (which may include isolated flooding and the causes should industrial process wastewater) or overflow • Establish actual site conditions through be undertaken • into the Harbor represents a recognized Phase II ESA surface water and sediment • A review to understand the likelihood of • environmental condition. sampling, followed by risk assessments the conversion of the Wolf River Lagoon to determine feasible uses and establish into a lake should be undertaken and The continued industrial uses of properties necessary precautions, limitations, and potential impacts documented along the east Wolf River Harbor shoreline response actions for each planned use/ activity/population.” • Portions of property along the Wolf and presence of vessels carrying bulk • River Lagoon should be acquired to quantities of hazardous substances and Additional information can be found at implement the waterfront trail petroleum products poses a material https://shelbycountytn.gov/1427/Wolf- • More detailed studies to assess threat of release to the Harbor via spills, River-Brownfields-Assessment-Grant. • environmental contamination of storm water discharge, and groundwater The Memphis Riverfront Development individual sites should be supported migration that is considered a recognized Corporation did not apply for Phase II environmental condition. In addition, barge • A review and/or study should be Environmental Site Assessments on the • loading and offloading at the grain and Harbor. The CRA approved funding of undertaken to understand if sanitary sewer overflows occur in the Gayoso concrete terminals may pose an inhalation an additional $2.9+ Million for future Bayou. If sanitary sewer overflows do risk from fugitive dust emissions. Uptown West related activities. See Wolf occur, a study should be undertake to The potential business environmental risk River Brownfields Assessment Project solve this problem associated with past releases and threat Area Grant, BF 95463110-0, Final Report of releases of hazardous substances, to EPA; https://shelbycountytn.gov/ petroleum products, and/or sanitary DocumentCenter/View/14252/Final-Grant- Report-Booklet?bidId

EPA Brownfield Study Area Environmental 31

identified Brownfields

Memphis uptown community plan 32 par ks, Recreation, and Open Space Draft June 21, 2018 P arks, Recreation, and open space

Wolf River Greenway but is comparatively underserved. It does R ole of Open Space not meet the goal of a park space within in the Community P ortions of the planned Wolf River a 5-minute walk of every home nor the Greenway are built and/or under Parks Department goal of a park within a P arks and open spaces play a critical role construction. This recreational path system 10-minute walk of every residence. in communities for active recreation, connects to the Mississippi Greenbelt Park passive recreation, community gathering and continues east along the Wolf River. Programming and interaction, community identity, and provision of nature. They also play a critical Chelsea Greenway S uccessful parks that are active and safe role in individual health. The chronic are designed and programmed to meet the The Chelsea Greenway is a planned disease crisis in America, which is worse needs of the community. Community input recreational path that connects from the in economically distressed communities, suggests: Wolf River Greenway through the Uptown can be prevented with increased physical • That additional grilling facilities are Community via a former rail line. There is a • activity. Studies have also shown that needed, since this is a popular activity, section that must run along a road due to communities with greater quantities of existing industrial uses. • That additional basketball facilities are open space within walking distance of • needed, homes have lower rates of anxiety and • That lighting is needed to provide safety depression. • at night, The City of Memphis Parks Department has Neighborhood Open • The parks department has the goal of the goal that every residence in Memphis • providing walking paths in all parks, should have a park within a 10-minute walk. Space Analysis • A low impact workout area is desired, However, it is preferable that there is a park • of some type located within a 55-minute • Spaces should be designed to be family- A ccessibility • walk of every home. The City of Memphis oriented, Parks Department will be developing a The adjacent diagram shows the existing • More programmed events are desired parks master plan in the near future. park, recreation, and open spaces (public • and private) within the Uptown Community • A basketball tournament is desired and • Plan area. A 5-minute walk radius is shown could help to change perceptions of the Regional Open for private open space that is within a area, gated community or within a master • Better maintenance at Greenlaw Park is • Space Analysis planned community – This space is private needed, or semi-private and access can be limited. • Greater use of the Bickforn Community The Mississippi Public open space that is accessible to all • and Aquatic Center should be promoted, Greenbelt Park of the public is also shown with a 5-minute walks radius. Harbortown and North Mud • Games such as chess, ping pong, • The Mississippi Greenbelt Park is located on Island are well served with significant should be added to parks (specifically the western side of the area and along the open space comprised of the Mississippi Washington Park). Mississippi River. It is a regional destination Greenbelt Park and several private or semi- and is used by residents of the Uptown private open spaces, including a greenway area and includes a recreational path, lawn along the Wolf River Lagoon. The area east space, views of the river, and some seating. of the Wolf River Lagoon has several parks

existing Open space in harbor town New public art feature in uptown par ks, Recreation, and Open Space 33

Mud Island Rd

Island Dr

2nd St

Thomas St

7th St Firestone Ave

iver

Ave ississippi

M Manassas St Chelsea

ers St

Island Dr

7th St

A.W. Willis Jackson Ave Ave

2nd St North 3rd St Parkway

Interstate 40 Interstate 240 Danny Thomas Blvd

Manassas St

ers St

eXISTING Open Space

Legend

Public Open Space Semi-Public Space Private Open Space 1/4 Mile Radius Neighborhood Greenway 5-Minute Walk Mississippi Greenway Wolf River Greenway

Memphis uptown community plan 34 par ks, Recreation, and Open Space Draft June 21, 2018 Greenlaw Park are coming to the realization that their R ecommendations: stormwater infrastructure can be turned This Park contains a community center into park spaces that are great activators Existing Open that is run by Memphis Athletic Ministries for the community. Cities are also learning Space that focuses on children from the local that well designed and well programmed schools (avg. 750 per day). They also run a park spaces can become economic Washington Park day care and summer programs. The park development projects that promote space includes a basketball court, tot-lot, additional development and increases in Washington Park is approximately 9 and parking. A block party takes place here rents. Examples include Fourth Ward Park acres (the largest park in the area) and in May and at the beginning of the school in Atlanta, Antelope Valley in Lincoln, NE, is comprised of a basketball court, picnic year. Recommendations: and Klyde Warren park in Dallas, TX. See p. shelter, tot-lot, walking path, lawn, and • Improve maintenance, 42 for a more detailed description of this parking. It feels remote since it is at the • park. Recommendations: edge of residential development, has • Infill homes on south side to provide for • • Commission a concept design for the vacant industrial on one side, a stormwater natural monitoring of the open space. • Gayoso Bayou Park that maintains storm pond and industrial on a second side, backs water functionality of single-family home lots on a third side, Guthrie Park • Acquire properties to implement plan for and Bunge grain elevator across the street • This space is contiguous with Guthrie residential facing park space on the fourth side. Recommendations: Elementary School and contains a tot-lot. • Park should be reconfigured to allow Recommendations: • homes to front the park and provide Wolf River Lagoon • Commission a design for the space for natural monitoring of space. This • Greenway requires: • Place a statue or other element that • One of the greatest Memphis open space ——Acquisition of vacant property to the highlights the history of Smokey City and acts as a marker/gateway for the assets is the Mississippi River Waterfront, east for park extension and new home of which the Wolf River Lagoon is a part. sites, neighborhood at the intersection of Chelsea and Decatur As proposed in the Uptown West Master ——A new street and house lots along Plan, the east side of the Wolf River Lagoon southern edge (park land is used Winchester Park should be developed as a waterfront here and added to east) to change park/trail. New development should from rear of lots to fronts of homes This park was established in 1931 over the face the waterfront and these facades allowing natural monitoring of space, Winchester Cemetery. The cemetery was should be designed with high quality • Additional grilling facilities should be larger, and there are now a city garage • materials and pedestrian scaled elements. provided here, (under which is the grave of one of the Recommendations: founders of Memphis – James Winchester) • The northern edge could accommodate • Acquire portions of lots to implement • and homes over portions of the cemetery. • an off-street section of the Chelsea the waterfront trail as described in the Greenway, This space is surrounded by industrial lands Uptown West Master Plan, on three sides and mostly vacant lots on • Formal playfields could be added, • Connect Riverfront Park to the south • the south side. It is comprised of a tot-lot • • Commission a park design to create new through the Pyramid site. • and a baseball field. Recommendations are: home opportunities and to improve the • Assess if baseball field is used (does not activity level of the park, • appear to be) and reprogram if not used Burkle Park • During the Parks Department Master • The reconfiguration of Second and Planning process consider the Third Streets requires the acquisition of addition of a skate park in the Uptown Morris Park several properties. This large investment Community – Expansion of the park This park is an approximately 4-acre urban to the west side of 2nd Street with a in infrastructure should be leveraged to park comprised of two basketball courts, skate park should be considered as an provide new development opportunities, alternative. a picnic shelter, tot-lot, and lawn space. but should also be leveraged to provide a There is high use of the two basketball new park space that functions to provide courts. There is also high crime in the new activity space, increases traffic Bickford Community park. In addition, there is a homeless Center calming, creates greater neighborhood population that occupies the park. A plan identity, and, paired with the Slave Haven This is the second largest park in the for park improvements was completed. Museum, highlights community history. community and is approximately 7.5 acres. Recommendations are: Recommendations: It is comprised of a community center, • Promote infill/redevelopment of the • Acquire parcels necessary to implement • • basketball court, picnic shelter, children’s properties around the park plan play area, parking lot, aquatic center, and • Promote increased programmed • • Coordinate with street design baseball field. This park is located in the activities in the park by others • middle of a block and has frontage on two • Commission the design of the park space • Promote implementation of already • streets on opposite sides (KIPP Memphis • designed park improvements by the City Collegiate Schools on one side) and backs P orter–Leath Park of single-family home lots on two sides. Half of the lots on the south side are This area lacks open space. vacant. Recommendations: R ecommendations: Recommendations: • Assess if baseball field is used (does not • Porter–Leath should be contacted to • New Open Space • appear to be) and reprogram if not used assess if the southern end of their property could be converted into a • Better communicate that there are free Gayoso Bayou Park • community park space, swim lessons for children The Gayoso Bayou is a storm water • If amenable, acquire land or develop • Promote development of homes on management system that occupies several • • agreement to utilize the open space, south side facing the park to provide for blocks between the Pinch District and the • This potential park space could serve as natural monitoring Uptown Community. It is currently fenced • a terminus for the historic Smokey City with a chain link fence and this “no-man’s- alleyway interpretative trails. land” separates, rather than integrates, the majority of the Uptown Community from the Pinch District. However, cities par ks, Recreation, and Open Space 35

Mud Island Rd

Island Dr

2nd St

Thomas St

7th St Firestone Ave

iver

Ave ississippi

M Manassas St Chelsea

ers St

Island Dr

7th St

A.W. Willis Jackson Ave Ave

2nd St North 3rd St Parkway

Interstate 40 Interstate 240 Danny Thomas Blvd

Manassas St

ers St

Proposed Open Space Analysis

Legend

Public Open Space Wolf River Lagoon Semi-Public Space Private Open Space 1/4 Mile Radius Neighborhood Greenway 5-Minute Walk Mississippi Greenway (Proposed in Pink) Wolf River Greenway Chelsea Greenway Smokey City Alley Trails

Memphis uptown community plan 36 framework Draft June 21, 2018 Community Framework and Anchors Community Framework The Uptown Community is a large area investments, as well as community social comprised of approximately 2,582 acres and economic patterns. (2,216 acres excluding the Mississippi The overall structure of the community is River), portions or all of 9-neighborhoods, defined by natural features, parks, paths, and measures approximately 2-miles east major streets, activity centers, residential to west and 3-miles north to south. Over neighborhoods, regional institutions, and centuries, humans have intuitively defined barriers. The adjacent diagram highlights neighborhoods as the area defined by a both of the existing and proposed 5-minute walk radius (1/2-mile across) since elements to provide an understanding of this is the area that is easily accessible the overall future community framework. by walking. People have also intuitively This framework provides the armature created activity centers where the for the definition of distinct Community community comes together for commerce, Anchors that are activity centers serving civic interaction, and recreation. Given the the community and are based on the very large area that comprises the Uptown neighborhood definition of a 5-minute walk Community, it is important to understand radius. The adjacent diagram illustrates this the scale and to reinforce and create an community framework and the following overall framework that leads to a cohesive page describes the community anchors. and focused approach that leverages both existing and proposed infrastructure framework 37

2nd St

Mississippi River N

7th St eCedar Av

arbor H

Ave Chelsea Wolf River

Thomas St

Chelsea Ave

A ers St

Manassas St

Front St N Main St

N 2nd St N

A.W. Willis Ave Ave Jackson

N orth Pkwy

Danny Thomas Blvd

I-40

e P oplar Av

ers St

I-240

framework diagram

Legend

Community Anchors Pinch District Major Framework Street Riverfront Multi-Use Trail Chelsea Greenline Connections

Memphis uptown community plan 38 framework Draft June 21, 2018 Community Anchors Community anchors are important defining The Memphis 3.0 process will result in the Not all Anchors are the same, and there are and organizing elements of neighborhoods creation of a Memphis-wide Comprehensive 4-Types, defined below. and are places where residents and Plan that establishes city policy, including It should be noted that St. Jude Hospital visitors come together. Sometimes these Land Use. A key approach in the Memphis and Le Bonheur, and the surrounding areas, are commercial centers, sometimes 3.0 process is to define City-wide Anchors are regional anchors, but since these areas recreational settings, and sometimes civic and Community Anchors that are place- are primarily inward facing, and even gated, gathering places. While the neighborhood based and define specific characters this diagram focuses on the key points of fabric (residences) are equally important, for each type of anchor. This is a good community interface. strong anchors support healthy approach that reflects the best planning communities; strengthening these anchors practices of today and these character There are 9-Anchors shown in the adjacent will serve to focus efforts in the places types can be readily understood by the map and listed below. Detailed descriptions that will have the greatest impact for the community. However, by necessity, this and recommendations are found on the entire community towards stabilization, large undertaking paints a broad brush. following pages: revitalization, community pride, identity, Conversely, this Uptown Community Plan 1. Pinch & Gayoso Bayou District safety, and additional investment. The focuses solely on the boundary illustrated adjacent diagram identifies both the in the adjacent plan, so can analyze and 2. Burkle Park existing and proposed key community define neighborhood anchors at a finer 3. Chelsea Neighborhood Center anchors in Uptown. These are reinforced grain based on community input, existing by the transportation network. While each conditions, city infrastructure proposals, 4. Washington Park Square of these are defined by a 5-minute walk, and proposed plans of property owners. 5. Smokey City Civic Center they are comprised of a variety of uses and Since the Uptown Community Plan will 6. Manassas Market a gradation of density moving from the be completed prior to the Memphis center. These anchors form the basis for 3.0 process, the adjacent diagram (as 7. Morris Park District recommendations in the following sections well as the proposed land use plan) can 8. Smokey City Market and are viewed as priorities for investment influence the final Comprehensive Plan of TIF funds and other funding. recommendations. 9. Harbor Town

Anchor Types

Regional Commercial Civic High Density, large proportion of office and retail, regional draw Civic uses at its core such as a school and community services

Neighborhood Recreational Small amount of commercial (primarily community serving), P ark and recreation space at its core, primarily residential primarily residential framework 39

2nd St

Washington Park

Mississippi River N Square 7th St

Ave

Thomas St arbor Chelsea H Smokey City Civic Center Wolf River Burkle Chelsea Park Neighborhood

Center A ers St Harbor Town Manassas St Front St N Main St

N 2nd St N

Pinch & Smokey City Ave Gayoso BayouA.W. Willis Danny Thomas Blvd Jackson District Ave Manassas Market

Market N orth Pkwy

I-40

e P oplar Av

ers St

Morris Park I-240 District

Neighborhood Anchors diagram

Legend

Regional Commercial Neighborhood Civic Recreational

Memphis uptown community plan 40 Neighborhood and District Anchors Draft June 21, 2018 Pinch and Gayoso Bayou District The City of Memphis Pinch District Concept Study from November 30, 2016 establishes a goal to create a mixed-use urban district that preserves historic buildings (mainly on Main Street), reinforces connections, is walkable, and adds significant amounts of development (supported by structured parking). The boundaries of that Concept Study are generally the St. Jude Campus to the east, Front Street to the West, I-40 to the South, and just beyond A.W. Willis to the north. The proposed vision for this study area is consistent with the goals of the Uptown Community plan. However, one key concern from residents is that the edge to the north does not address how this redevelopment will integrate, rather than turning its back on, the existing neighborhoods to the north. This area of transition is dominated by the Gayoso Bayou which is a multi-block storm water facility with chain link fencing. In its current configuration, this utilitarian facility prohibits an effective joining of the Pinch District with the remainder of the Uptown Community.

Gayoso Bayou

Greenlaw Ave

Gayoso Bayou Front St Front District 4th St

A.W. Willis Ave

Pinch

District St 3rd Front St Front

Jackson Ave

Key Plan Pinch District Concept Study, November 30, 2016 Neighborhood and District Anchors 41

Gayoso Bayou

Gayoso Bayou/Pinch District Interface

Memphis uptown community plan 42 Neighborhood and District Anchors Draft June 21, 2018 North Pinch Vision parking are desirable in this area since of A.W. Willis with Front Street, they are a transition between high Main Street, and 2nd Street should The vision for the area north of the Pinch density and single-family and because incorporate traffic calming through District is to transform the storm water they are a type that can accommodate painted intersections and crosswalk, facility into an active park, integrate new parking within their own footprint on the intersections should be reviewed these constrained sites, for other pedestrian improvements residential uses, and facilitate adaptive such as reduced curb return radii, and • The southern edge of the Gayoso Bayou reuse of existing buildings in order to • the intersection of A.W. Willis and Front provide a pedestrian activated environment between Main Street and 2nd Street Street should have the “free-rights” that joins the Pinch District and the should be reconfigured to allow for a row removed, of townhouses facing onto a plaza and remainder of the Uptown Community. This east-west pedestrian path. This will also • Adaptive reuse of the Greyhound • is accomplished through the following allow for the fronts of homes to face the building should be supported, recommendations. bayou, rather than the current service • Colonial Park (two squares on each side side of the gas station, • of A.W. Willis) are park spaces originally Recommendations • The eastern edge of the Gayoso Bayou platted as a part of the original Memphis • between Greenlaw Avenue and Mill city plan. Currently, these spaces are • Cities are coming to the realization that • Avenue should be designed to provide a just grass and on the non-street sides their storm water infrastructure can be hedge or similar element to screen the are parking lots or backs of buildings. turned into park spaces that are great alley and parking to the east, A concept design for these spaces has activators for the community and that been developed previously. This design are economic development projects • The edge of the gas station facing Main is certainly an improvement, but this that promote additional development • Street blends with the sidewalk, the plan suggests that a splash fountain and increases in rents. Fourth Ward care area is flush with the sidewalk, might be better located at the proposed Park in Atlanta is an example of this. A and creates an uncomfortable and Gayoso Bayou Park. The crosswalks design for the conversion of the Gayoso unsafe pedestrian environment. A low should be coordinated with the proposed Bayou into a park, while retaining the evergreen hedge or wall along the back intersection improvements. The unused functionality of the storm water system, of the sidewalk should be planted/ rail line could be used to located rail cars should be undertaken, built along the gas station edge facing with temporary or permanent uses such Main Street to improve the pedestrian • Medium density residential should be as a food “truck” or incubator office. • environment and safety, incorporated north of A.W. Willis along A.W. Willis, Main Street, and facing the • In order to provide for pedestrian safety • Gayoso Bayou. Townhouses, live-work and integration between the areas north townhouses, or lofts with tuck-under and south of A.W. Willis, the intersections

Historic Fourth Ward Park, Atlanta, Georgia

Union Plaza, Lincoln, Nebraska Neighborhood and District Anchors 43

Splash Pad Intersection Painting

Building Precedent Building Precedent

Phasing Diagram

Memphis uptown community plan 44 Neighborhood and District Anchors Draft June 21, 2018 Burkle Park District This area is located at the confluence of three major streets, 2nd Street, 3rd street, and Chelsea, as well as the proposed new roundabout, Slave Haven Museum, the Snuff Factory, and street access to the Wolf River Lagoon waterfront. This key location also currently has significant vacant parcels. In addition, several property owners have plans for adaptive reuse of former industrial buildings in this area. These factors present a significant opportunity to create a neighborhood anchor that can serve as a catalyst for revitalization. This anchor is primarily high, mid, and low density residential, but can also accommodate light industrial uses compatible with residential, such as a brewery and food services. In addition, the plan accommodates the continued functioning of the Lafarge facility with the opportunity to convert the use in the future.

Burkle park

tr S

N Front eet

N 2nd eet

N Main eet

Henry Ave Henry Ave

(New) Bickford Ave

Bickford Ave eet

tr tr S tr S S

S N Main N 2nd eet N Front eet

N 3rd eet

Keel Ave Chelsea Ave

C oncept Plan Neighborhood and District Anchors 45

Burkle park

Existing Conditions

Memphis uptown community plan 46 Neighborhood and District Anchors Draft June 21, 2018 Recommendations: Roundabout and 2nd Street and 3rd Street Improvements TDOT is finalizing the environmental review process for a new roundabout at the intersection of 2nd Street, 3rd Street, and Henry Avenue, a widened 2nd Street with a median north of the roundabout, and improvements to 2nd Street and 3rd Street south of the roundabout that adds bike lanes. Past experience has shown that major transportation projects can have detrimental effects on neighborhoods if the design is not carefully considered. As this project moves to the next phase (design) a dialogue should be opened prior to design beginning that addresses the following: • Integrate Henry Avenue and 3rd • Street at the north east corner of the roundabout in order to retain street connectivity and not isolate this area of the neighborhood, • Phase 1 is planned to extend from the • south to the roundabout. Phase 1 should Open Space extend 1-block north of the roundabout in order to leverage investment and to resolve street intersections, • Hickory Avenue west of 2nd Street • should be relocated slightly north to align with Sunflower Street where it will create an intersection with a median break and facilitate neighborhood connections and an interconnected street network, • The center of the roundabout should be • designed as a significant neighborhood marker reflective of the community identity and history. This could be a significant statue to a local historic figure. Minimize the radius to reduce takings by eminent domain.

Burkle Park Create a new park extending from the roundabout to Chelsea between 2nd and 3rd Streets. This achieves the following: • Creates a gateway and creates a strong • neighborhood identity, Building Type Precedents • Adds open space/recreational space, • • Makes a more legible neighborhood by • highlighting the key entries to Chelsea and to Henry which leads to Front Street • Brings the Slave Haven Museum to • greater prominence, • Creates an anchor for new residential. • Housing • Support conversion of industrial • buildings such as the Snuff Factory into residential, • Support higher density residential west • of 2nd Street, • Support medium density, such as • townhouses, as a transition to the single- family homes to the east, • Acquire properties in this area to • facilitate a larger scale revitalization and consider issuing an RFP after site control is attained, • Promote an architectural character Building Type Precedents • that is consistent with the best historic architecture of the area, Neighborhood and District Anchors 47

Industrial Uses • Permit and support existing and new • small scale industrial uses (these provide employment opportunities) – Retail is not a likely use in the short to medium term.

Waterfront Access • Acquire property for waterfront trail, • • Acquire property for public access right • of way at proposed street.

Plazas • Support the creation of an urban open • space at the terminus of Keel Avenue where a pedestrian underpass to the rail line exists, • Acquire a portion of the Lafarge NA • facility at 48 Henry Avenue to create the first phase of a future open space (while still accommodating continued operation of this construction materials production Roundabout facility).

Slave Haven Museum Public plaza

Uptown West Master Plan

Memphis uptown community plan 48 Neighborhood and District Anchors Draft June 21, 2018 W ashington Park District This area exists at the interface between single-family residential and the industrial uses to the north and west. The dominant element is the 9-acre Washington Park comprised of a basketball court, picnic shelter, tot-lot, walking path, lawn, and parking. This park is popular for picnicking and grilling. It feels remote since it is at the edge of residential development, has vacant industrial on one side, a storm water pond and industrial on a second side, backs of single-family home lots on a third side, and Bunge grain elevator across the street on the fourth side. There are several vacant parcels to the east and south. The recent Oasis of Hope and Uptown Manor Senior Developments are about 1-block away. One person recently acquired 16 parcels to re-subdivide and build homes. Interest has been expressed by one person to open a destination west of 2nd Street. While this area currently feels remote, the proposed redevelopment along the Wolf River Lagoon is projected to extend into the area West of 2nd Street in the long term. Recommendations: • Park should be reconfigured to allow • homes to front the park and provide for natural monitoring of space. Requires: ——Acquisition of vacant property to the east for park extension and new home sites, ——A new street and house lots along southern edge (park land is used here and added to east) to change from rear of lots to fronts of homes allowing natural monitoring of space, • Extension of Waterworks Avenue to • connect to a Front Street extension is consistent with the Uptown Community West Master Plan. Extension of Waterworks Avenue up to where it would meet Front Street should be supported, • The acquisition of the rail right-of-way • should be supported for a future road extension and recreational path, • See “Recommendations – Existing Open • Spaces” for specific recommendations for the park.

Housing Precedent Neighborhood and District Anchors 49

Housing Precedent Provide Additional Grilling and Gathering Facilities

Memphis uptown community plan 50 Neighborhood and District Anchors Draft June 21, 2018 Chelsea Neighborhood Center This area is located at the intersection of Chelsea and Thomas and is comprised of a small “main street” fragment at one corner of the intersection with two gas stations and a Family Dollar at the other corners. This is a convenient location for the neighborhoods to the north and south of this area, but vacant parcels (especially to the west) are reflective of the limited demand for retail. Recommendations • The areas extending from the • intersection (particularly the vacant parcels and buildings) should be promoted as higher density residential transitioning to single-family homes, • Façade improvements should be • supported for existing commercial buildings to retain existing successful businesses, • The intersection should incorporate • pedestrian improvements, • Sidewalks should be improved, • • Infill single-family to the north and south • of Chelsea should be supported, • Single-family façade improvements • should be supported to the north and south of Chelsea, • Preserve Old Brick Church (Third • Presbyterian), 299 Chelsea Ave.

Intersection Treatment Neighborhood and District Anchors 51

Housing Precedent

Memphis uptown community plan 52 Neighborhood and District Anchors Draft June 21, 2018 Manassas Market The Manassas Market area bounded by Jackson Avenue to the north, A.W. Willis to the south, Seventh Street to the west, and mid-way to Manassas Street to the east was originally envisioned as a retail center. Even though a bank located in the area, limited market demand means that parcels and buildings have remained vacant. Multiple land owners and legal encumbrances also complicate a cohesive development. A grocery store (Kroger then Chism Market) was previously located here, but has sat vacant for many years. This area is currently a food desert and residents desire to have a grocery within the community. While the desire is to have a national chain with a larger selection of foods (50,000- 55,000 SF), it is typical that a community with the current population density and economic demographics can support a smaller chain grocery (approximately up to 35,000 SF). Even the smaller grocer may require significant subsidy. A pharmacy is also desired and, given the adjacency to St. Jude Hospital, would provide for beneficial co-location. Although the area is located along major transportation routes, the narrow dimensions north-to-south limit the possible configurations and the ability to create a fully walkable area. The attached

Concept Site Plan: Scenario 1 Neighborhood and District Anchors 53

two concept plans illustrate potential development scenarios: Scenario 1 This scenario assumes a 50,000 SF grocery and a pharmacy with drive-thru and illustrates what would be needed to accommodate this size. Because of the large footprint and amount of required parking, the grocery is located to the east and requires additional property acquisition and exposing the parking to the street to the north. Given the low demand for retail in the area and the Pinch District Master Plan’s proposed retail, limited additional retail is proposed. It is recommended that the majority of the land be dedicated to residential. These homes would be convenient for hospital employees. Given the dimensional constraints of the site, it is proposed that a building type that “parks itself” rather than having exposed surface parking facing the streets would create an urban walkable area that is consistent with the Uptown Community vision and the existing design guidelines for the area west of the grocery. The residential type shown is a townhouse with garage parking on the ground floor. This unit type would also have a roof

Memphis uptown community plan 54 Neighborhood and District Anchors Draft June 21, 2018

Concept Site Plan: Scenario 2

C oncept Site Plan: Scenario 3 Neighborhood and District Anchors 55

terrace for outdoor living space. This unit type could be a for-sale product or a rental product. Scenario 2 This scenario assumes a 30,000 SF grocery and a drive-thru pharmacy. Since the building footprint is smaller and the amount of required parking is less, this scenario does not require acquisition of as many properties to the east. However, property acquisition extending to Manassas Street would allow for a more cohesive development opportunity that could attract a larger developer. The parking demands require exposing parking to the streets, but locates the pharmacy at a key corner. This scenario assumes that updating the existing grocery building would be more expensive and less desirable to a potential grocer so demolishes the existing building and builds a new building. The same as Scenario 1, it is recommended that the majority of the land be dedicated to residential. These homes would be convenient for hospital employees. Given the dimensional constraints of the site, it is proposed that a building type that “parks itself” rather than having exposed surface parking facing the streets would create an urban walkable area that is consistent with the Uptown Community vision and the existing design guidelines for the area west of the grocery. The residential type shown is a townhouse with garage parking on the ground floor. This unit type would also have a roof terrace for outdoor living space. This unit type could be a for-sale product or a rental product. Scenario 3 This scenario assumes that a traditional chain grocery store is not attained, so seeks a non-traditional small format grocer to occupy all or a portion of the This unit type would also have a roof existing building. This scenario can also terrace for outdoor living space. This unit accommodate a pharmacy at the corner type could be a for-sale product or a rental of Danny Thomas Blvd and A.W. Willis. This product. scenario proposes acquiring the vacant parcels to the east to develop a small Recommendations: multi-family building. However, additional • Consolidate properties or enter into property acquisition extending to Manassas • an agreement to develop properties Street would allow for a more cohesive as a whole for St. Jude, CRA, and City development opportunity that seeks to properties, transform the area. The parking demands • Obtain Letters-of-Intent (LOIs) from require exposing parking to the streets, but • property-owners to the east to facilitate locates the pharmacy at a key corner. acquisition of additional land for The same as Scenario 1, it is recommended redevelopment, that the majority of the land to the west of • Develop and issue a developer RFP for • Danny Thomas be dedicated to residential. the entirety of the area that is consistent These homes would be convenient for with the vision and Uptown Design hospital employees. Given the dimensional Guidelines, constraints of the site, it is proposed that • Develop detailed study to add medians • a building type that “parks itself” rather along A.W. Willis, than having exposed surface parking facing • Add intersection painting/artwork • the streets would create an urban walkable to create safer pedestrian crossings, area that is consistent with the Uptown community identity, and traffic calming Community vision and the existing design to A.W. Willis and Jackson, guidelines for the area west of the grocery. • Add time controlled on-street parking • The residential type shown is a townhouse along A.W. Willis. with garage parking on the ground floor.

Memphis uptown community plan 56 Neighborhood and District Anchors Draft June 21, 2018 Morris Park Neighborhood Concept Plan The district lies along the southern Recommendations edge of the Uptown Planning Area, • Study opportunities to improve intersecting with the norther edge of • commercial and retail prospects the Victorian Village historic district. along Poplar Ave through lot infill and North of the park are significant religious renovating existing establishments, institutions, including St. Mary’s Episcopal • Support implementation of current Cathedral and Lake Grove Missionary • proposed improvements to Morris Park, Baptist Church. In addition, there are a number of commercial establishments • Promote programs to preserve and • and health-related institutional facilities improve the character and appearance located along Poplar Ave, but north of of the existing neighborhood, Poplar Ave, one finds a mostly low-density • Promote additional exterior façade • residential neighborhood bordered by improvement grants for existing I-40 on its norther edge. On the eastern residential units in poor condition, edge is Legends Park, an affordable- • Promote infill of vacant lots with new • housing neighborhood currently under single-family units, construction, with a substantial number • Discourage infill by small, multifamily of completed and occupied units. In the • buildings adjacent to single-family units, district itself, a large number of lots are • Promote improvements to existing street vacant. Many existing housing structures • appear occupied, with exterior conditions and sidewalk conditions as detailed in ranging between fair and poor. the Transportation Section. • Support implementation of the April • 2017 North Medical District Charrette plan (infill development) for this area.

April 2017 North Medical District Charrette plan Neighborhood and District Anchors 57

Proposed Plan for Morris Park, City of memphis

Housing Precedents

Memphis uptown community plan 58 Neighborhood and District Anchors Draft June 21, 2018 Smokey City Civic Center Concept Plan This neighborhood node is located at the furthest northeast corner of the Uptown Planning Area, focused on the Guthrie Elementary School and surrounding neighborhoods. The area serves as a portal for the Planning Area, so its appearance affects perceptions when approaching the area from the north and east along Chelsea Avenue. The uses on Chelsea Avenue are a mix of residential, commercial, and civic/religious. The dominate institution in this node is the Memphis Scholars Caldwell-Guthrie Elementary School, a public charter school. On the northeast corner of the school block is Guthrie Park, a City facility, but its appearance has no distinct identity separate from the school yard. Immediately west of the school is the Dave Wells Community Center, which provides a number of recreational and educational services for the neighborhood. The occupancy of the retail buildings on pARK the north side of Chelsea Ave varies, with the buildings between Pearce and Ayers Streets appearing currently unoccupied and dilapidated. A large vacant lot (approx. 3+ ac.) on the south side of Chelsea, across Ayers Street from the community center is currently for sale and under study by the Klondike-Smokey City CDC as the possible site for a future senior living facility. Recommendations • Promote improvements to Guthrie Park • to give it a separate civic identity and a program of park facilities, • Study opportunities to improve the • prospects, occupancy, and appearance of commercial establishments along Chelsea Ave, • Promote residential infill on vacant lots • along Chelsea and surrounding streets within the Planning Area, • Support the Klondike-Smokey City • CDC in their efforts to study the pAINTED iNTERSECTION feasibility of a senior living facility in the neighborhood • Support alleyway trail improvements • (see p. 68), • Address crime concerns holistically, • • Utilize single-family home rehab grants • extensively.

sINGLE-fAMILY hOUSING Neighborhood and District Anchors 59

mULTIFAMILY hOUSING sTATUE iN pARK

Memphis uptown community plan 60 Housing and Neighborhood Fabric Draft June 21, 2018 Smokey City Market This area is located at the eastern-most side of the Community along Jackson close to Highway 240. This area is comprised of a small grocer, Smoky City Bar-B- Que, Family Dollar, car repair, and other neighborhood serving commercial uses. However, there are many vacant lots and vacant buildings in this area. This is a convenient location for the neighborhoods to the north and south of this area, but vacant parcels are reflective of the limited demand for retail. Recommendations: • The area should define an anchor/node • of more intense development, rather than a commercial corridor, • The area west of Ayers should be • promoted as residential, • The vacant parcels within the anchor • should be promoted as mid to high- density residential, • Façade and parking lot improvements • should be supported for existing commercial buildings, • The intersections with Jackson at • Ayers, Hastings, and Decatur, should incorporate pedestrian intersection improvements, • Sidewalks repairs and improvements • should be made (including the reconfiguration of the west sidewalk of Decatur south of Jackson where a tree lawn should be provided and a hedge along the existing parking lot, • Infill single-family to the north and south • of Jackson should be supported, • Single-family façade improvements • should be supported to the north and south of Jackson, • Façade improvements should also be • targeted along North Parkway. concept plan

Existing restaurant Housing and Neighborhood Fabric 61

Existing grocer Existing retail

Memphis uptown community plan 62 Housing and Neighborhood Fabric Draft June 21, 2018 Housing

be acquired to create contiguous can, or should, be ignored. In fact, the Existing Conditions areas that are more attractive to Uptown Community should be proactive individual homeowner purchases, can in promoting and supporting policies that The Uptown Community housing stock has attract larger investments, can attract historically been primarily single-family larger developers who can build more preserve housing affordability. homes with some duplex homes (side-by- homes, and can make programs such side). Most of the housing stock is pre- as Live Local (St. Jude employees) Recommendations World War II. Since WWII small multi-family more attractive, • The Uptown Community is primarily • buildings from 4-6 units have been built ——Complications with titles can single-family homes, and larger as infill. Some infill single-family homes be an impediment to rehab developers often want to develop larger (primarily in Uptown proper) have been and redevelopment. Friendly multi-family buildings. This results in built in the past couple of decades. There condemnations should be used to communities that serve the extreme provide a clean title that will attract were four public housing sites within the ends of the spectrum in terms of price investors or purchasers, Uptown Community, but two have been and in terms of lifestyle. This result has • A commercial property rehab program come to be called the “missing middle” redeveloped as mixed-income communities • (grants) should be implemented, – Communities that are missing mid- under the Hope VI program. level prices and missing housing types • A multi-family rehab program (grants) for those that have different needs or A significant number of single-family • should be implemented, desires than a single-family home with homes are in poor condition and need a large yard or an apartment. The CRA • Preservation of single-family homes repairs. A significant number of the multi- • should support and promote “missing family properties are poorly maintained should be supported, middle” types such as townhomes, and also need repairs. A conditions • Locating multi-family only within the carriage houses (alley homes), duplexes, • assessment (Map H-1) and a vacant anchors and along the Wolf River bungalow courts, and other similar buildings/parcels (Map H-2) is found on the Lagoon should be supported, housing types, following pages. • An increase of market-rate housing • Assist in establishing CDCs (Community • • should be supported through Development Corporations) which are property acquisition/disposition and focused on revitalization and affordable Existing Programs infrastructure investments, housing, among other goals, • Intermediate housing types (ex. • Capacity building through supporting • • The Uptown Memphis townhouses and stacked townhouses) and promoting the education and Existing Structure Rehab should be supported in the community assistance of local small developers, anchors and as transitions between • Supporting land trusts whose goal • Program anchors and single-family homes, is typically to facilitate affordable The Uptown Memphis Existing Structure • Homeownership should take priority housing by owning land, leasing it, and • maintaining it for affordable housing in Rehab Program was used to improve over rental investments, perpetuity, historic rehab properties, commercial • Work together with Housing and • • Promoting market rate projects that properties, single-family homes, and to Community Development Department to • create new public housing and market rate leverage their Down Payment Assistance have a percentage of affordable and work-force housing units, homes. Programs and other programs (use multiple programs to facilitate rehab of • Reducing development costs through • homes). property acquisition and consolidation, The Uptown Single Family providing “clean title”, and rehabilitating Rehabilitation Program physical infrastructure. The Uptown Single Family Rehabilitation Preserving Housing Program recently requested applications Affordability that are being reviewed. The CRA will Property approve grants of up to $30,000 per single- When communities are broadly successful Acquisition family home. in community revitalization there is the potential to see significant increases in Site control and consolidation are Land Bank Properties residential sales prices and rents over the critical elements to facilitate and make long term. On the one hand, homeowners implementation possible. Since this is The CRA and other agencies own and can can see their significant investment in their something that can take a significant acquire properties (Map H-3). home resulting in increased household amount of time, acquisition should be wealth. On the other hand, new residents focused on both short term and long term Recommendations and renters can see greater housing needs. It is important to highlight that the burdens resulting from higher prices, and acquisition process should not displace Recommendations follow: can even be priced out of a neighborhood. owners. The diagram (Map H-4) is a high • Multiple rounds of Single Family A fear of this is often expressed within level analysis of properties that should be • Rehabilitation Grants should be communities who seek to become a acquired, as well as properties currently undertaken, community of choice. The reality, however, in the land bank. A more detailed analysis • Establish a program to provide rehab is that the most rapid and extreme price should be undertaken • funds at time of purchase, increases usually only occur in the hottest national markets. As an example, Harbor • Properties should be acquired: • Town and Mud Island have developed, ——Individual vacant homes and but price increases in the remainder of properties should be acquired to the existing Uptown Community have not facilitate infill housing by making been extensive. At this time, the Uptown them available to individuals or developers, Community would benefit significantly from an increase in market-rate homes. This ——Difficulty in acquiring property of does not mean, however, that long-term larger areas can be an impediment strategies to provide and preserve housing to larger redevelopment efforts. Targeted groups of properties should affordability, as well as improved quality, Housing and Neighborhood Fabric 63

Existing Vacant Home

Existing Vacant Home i NFILL tOwnhoME pRECEDENT

multifamily housing pRECEDENT

Memphis uptown community plan 64 Housing and Neighborhood Fabric Draft June 21, 2018

Mud Island Rd

2nd St

Island Dr

7th St

Thomas St

iver

Ave Chelsea

ississippi

Manassas St

ers St

A 7th St

Island Dr

A .W. Willis Jackson Ave Ave

North 2nd St Park 3rd St way

Interstate 40

Interstate 240 Danny Thomas Blvd

ers St

H-1: conditions assessment map

Legend

Noticeable Evidence of VAD Minor Evidence of VAD Minor Evidence of VAD

Source: Uptown TIF Property Survey, NPI Inc. Housing and Neighborhood Fabric 65

Mud Island Rd

2nd St

Island Dr

7th St

Thomas St

iver

Ave Chelsea

ississippi

Manassas St

ers St

A 7th St

Island Dr

A .W. Willis Jackson Ave Ave

North 2nd St Park 3rd St way

Interstate 40

Interstate 240 Danny Thomas Blvd

ers St

H-2: vacancy/occupancy map

Legend

V acant Unoccupied Possibly Occupied Occupied

Source: Uptown TIF Property Survey, NPI Inc.

Memphis uptown community plan 66 Housing and Neighborhood Fabric Draft June 21, 2018

Mud Island Rd

2nd St

Island Dr

7th St

Thomas St

iver

Ave Chelsea

ississippi

Manassas St

ers St

A 7th St

Island Dr

A .W. Willis Jackson Ave Ave

North 2nd St Park 3rd St way

Interstate 40

Interstate 240 Danny Thomas Blvd

ers St

H-3: landbank properties map

Legend

Shelby County Land Bank Properties Memphis Land Bank Properties - CRA Housing and Neighborhood Fabric 67

Mud Island Rd

2nd St

Island Dr

7th St

Thomas St

iver

Ave Chelsea

ississippi

Manassas St

ers St

A 7th St

Island Dr

A .W. Willis Jackson Ave Ave

North 2nd St Park 3rd St way

Interstate 40

Interstate 240 Danny Thomas Blvd

ers St

H-4: Acquisition strategy map Legend Properties to be Targeted for Acquisition V acant Lots within Anchor Areas Vacant Structures within Anchor Areas Vacant Lots outside Anchor Areas Vacant Structures outside Anchor Areas

Properties Currently Held Shelby County Land Bank Properties Memphis Land Bank Properties - CRA

Memphis uptown community plan 68 Housing Draft June 21, 2018 Smokey City athter-P Historic Alley or Le Restoration Concept Plan The Smokey City alley system is an integral part of the neighborhood’s historic legacy from the segregation era, when they functioned as a primary pedestrian circulation network for the African- American residents of the neighborhood. In their current state, the alleys are overgrown and in disrepair. They also represent an opportunity for interactive historic interpretation and to play a role in the revitalization of the area. Renovating and building new alley homes serves three purposes: 1) it can create additional housing and income opportunities for the existing homeowners in the neighborhood; 2) provide housing opportunities for the “Missing Middle,” and 3), it can also enhance the safety of the existing alley network by providing “eyes on the street” and vitality in previously abandoned places. Recommendations • Restore and utilize existing alleys to • support rear-loading of existing and proposed single-family units, for those alleys that possess a minimum 16 ft of width, • For existing alleys less than 16 ft in • width, restore and refurbish into a pedestrian path network for the neighborhood with appropriate surface materials, landscaping, and lighting, • Establish a maintenance program for • restored alleys, • Work with the Memphis Police • Department to establish a policing program for the restored alleys to promote their safe and proper use, • Select and fund a trial restoration of an • alley in the Smokey City neighborhood to assess needs, requirements, and costs of a typical effort, as well as gaging acceptance and use by adjacent residents and the community, • Develop alleys into an interpretive • historic trail network that tells the story of the neighborhood and its history, • Allow the construction of Accessory • Dwelling Units and/or Alley Houses, • Ensure utility as safe routes to and from • schools, • Leverage single-family home rehab and • infill programs to promote alley-unit investments and improvements in high- crime areas, • Additional alley-specific • recommendations can be found in the Infrastrcture section of this book.

Jackson Avenue

C oncept Plan Housing 69

Street and Alley Section

potential Accessory Dwelling Unit on Alley

eXAMPLE OF eXISTING hOMES

Memphis uptown community plan 70 land use Draft June 21, 2018 land use Existing Generalized Land Use Analysis Mud Island vacant lots) The Pyramid comprises a large Healthcare portion of this land area. There is another Mud Island has been fully developed, is large grouping along Exchange Avenue to Within the area, St. Jude comprises a large relatively new, and is stable. It is made up the south that is comprised of primarily area of land to the south and continues to of primarily multi-family land uses and bail bonds, law office, churches, and acquire properties to meet their needs. single-family land uses. There is extensive surface parking. There is also a commercial open space along the Mississippi River and corridor along Jackson Avenue to the east Gayoso Bayou along the Wolf River Lagoon. (although many are vacant). There is a S everal urban blocks north of the Pinch small commercial node at the intersection District comprise the Gayoso Bayou which of Chelsea and Jackson. In addition, there Residential are blocks that serve as storm water are other scattered commercial parcels The majority of residential land is single- management. with a small grouping along 2nd and 3rd. family, which includes some duplex units. Throughout the noted commercial area, There is some multi-family land, but with there are small vestiges of an urban Wolf River Lagoon Edge the exception of a few parcels, most character, but they have been significantly are smaller parcels. Larger multi-family This edge is primarily vacant industrial eroded away with parking lots and removed parcels are located in the southern half land, but also includes the Coast Guard buildings. However, the most intact urban of the area and are comprised mostly of facility and Pyramid to the south. character is along Main Street in the Pinch affordable housing or are in the northern District part of Mud Island. Small multi-family V acancy parcels are interspersed in the single-family Vacant land without structures is neighborhoods and many of those are in Industrial interspersed throughout, but is in large poor condition. The majority of the industrial land is found part small single-family parcels with some in three groupings – To the north along in commercial and industrial areas. Commercial 2nd, to the west along the Wolf River Lagoon, and to the east of St. Jude. With The largest commercial land area is found the exception of the parcels east of St. in the Pinch District and immediately Jude, there is a mix of occupied and vacant adjacent to the north, south, and west industrial land. (although many are vacant buildings or

d d R lan Is ud M Mississippi N River

N 7 t h S

Legend

CRA Study Area Uptown West Boundary Public Transit Loop Ave sea

r Chel

d Rail Lines

St lan

s s

oma

agoon

L Single Family & Historic Rehabilitation

Chel sea Ave

Wolf River Uptown Commerial Center Hurt Village Initiative St Jude Initiative Gayoso Bayou Greenway Caldwell Elementary Initiative

SJa ck on Ave

AW Willis Ave 5th/6th Street Demonstration Area

S t d S Chelsea Ave Residential Demonstration Area 2n No rd rth N Parkw 3 ay

t t

S S

a rs

s ye

A Lauderdale Courts

Mana

Ns Int Scattered Site Homes - Phase III e e 240 rsta te 40 t

a D LV B rst s e a t North Second Parkway m In

Danny Tho Danny Thomas Realignment N North Parkway Realignment Exchange Street Improvement Multifamily Rehabilitation Commerial Rehabilitation land use 71

Land Use

Psark

Open Space

Transportation

Utilities

Fire/Police

Industrial

Healthcare

Educational

Religious

Mixed Use

Institutional

Commercial

Multifamily

Single Family

Vacant

2nd St

Mississippi River N

7th St eCedar Av

arbor H

Ave Chelsea Wolf River

Thomas St

Chelsea Ave

A ers St

Manassas St

Front St N Main St

N 2nd St N

I-240

A.W. Willis Ave Ave Jackson

N orth Pkwy

Danny Thomas Blvd

I-40

Single Family & Historic Rehabilitation e P oplar Uptown Commerial Center Av

ers St Hurt Village Initiative y A St Jude Initiative I-240 Poplar Gayoso Bayou Greenway Ave Caldwell Elementary Initiative 5th/6th Street Demonstration Area eXISTING gENERALIZED lAND uSE Chelsea Ave Residential Demonstration Area

Memphis uptown community plan 72 lAND uSE Draft June 21, 2018

Proposed Land Use Recommendations The community vision, Community Only if land is immediately adjacent and The Land Use Categories used in the Anchors, major transportation network, contiguous to these land designations Uptown Community Plan are listed below existing land uses, land owner plans, and should they be considered for commercial and a more detailed description can be revitalization strategy are the key drivers uses. found in the Comprehensive Plan and a for the proposed land uses. The Memphis summary chart in the Appendix: 3.0 process will result in the creation of Industrial a Memphis-wide Comprehensive Plan Citywide Anchors that establishes land use policy. Since the Existing Industrial uses should be permitted • Medical Districts and Institutional • Uptown Community Plan will be completed to remain. New industrial uses should be Campuses prior to the Memphis 3.0 process designed in an urban form and compatible completion, the Uptown Community Plan with adjacent building forms. Community Anchors (walkable proposed land uses can influence the final mixed-use) • Neighborhood Crossings Comprehensive Plan recommendations. Institutional/Healthcare • The proposed land uses in this Plan should Institutional uses are important elements • Neighborhood Main Streets inform the focus and prioritization of TIF • of the community. These should be located funds and community investment. The Land • Urban Main Streets at the Community Anchors, where possible. • Use principles follow: Their design should reflect the best Communities architectural character of the community (in the uptown Community Plan these are Anchors and Density and should relegate parking to the rear residential only, except as noted in the of the buildings. The largest institutional The center of Community Anchors should Proposed Land Use Recommendations) be the location where the greatest density uses are the hospitals. Because of their • Anchor Neighborhood: Primarily Single- and more dense housing types are found. large size, they have significant positive • Unit For some this is a core area, for others and negative impacts. Unfortunately, they are very inward facing and relegate the • Anchor Neighborhood: Mix of Building this is along a corridor. However, there is • a gradation of density within an Anchor service uses to the perimeter where those Types blank walls, loading, large garages, etc. where the center is the most dense and • Anchor Neighborhood: Urban the perimeter is the least dense, and where interface with the community. This has a • • Primarily Single-Unit Neighborhoods commercial is most appropriate at the negative impact on the adjacent properties. • center of an anchor or along a corridor. A conversation about the interface with • Primarily Multi-Unit Neighborhoods the community should be had with those • Residential institutions to discuss how they can Special Use and Employment better contribute to the betterment of the Areas The Uptown Community is one of the few surrounding community. • Industrial areas adjacent to downtown where single- • • Industrial Flex family homes are located. It is also one Memphis 3.0 • of the areas where land and homes are affordable. There is a very strong desire In order to correlate the Memphis 3.0 P arks and Civic Spaces by the community to keep the single- Comprehensive Plan process and this • Open Spaces and Natural Features process, the same character types used in • family areas as single-family homes. There • Public and Quasi-Public Buildings and the Memphis 3.0 process are used in the • has been encroachment into the single- Uses family home areas by small multi-family Uptown Community Plan, but are developed • Parks and Recreation Facilities buildings and this should not be permitted at the parcel level based on existing land • in the future. Multi-family is appropriate use, properties, community input, property immediately adjacent to the hospitals, owner plans, economics, transportation along the Wolf River Lagoon, and at the plans, and specific Uptown Community Plan centers of the Community Anchors. A high proposals. This results in a more refined proportion of affordable housing has been set of proposed land use recommendations developed in the community and there that are a finer grain than those found should be a focus on providing a balance of in the Memphis 3.0 Plan. The major both market rate rental and ownership. differences between the Memphis 3.0 plan and this plan are: Commercial 1. Additional Anchors have been added to reflect the existing assets/ Retail is most often successful when it gathering places and proposed new is immediately adjacent to other retail, Anchors. without gaps, and when grouped in nodes 2. The Anchors are smaller (5-minute versus corridors. Proposed land uses walk from center of anchor versus should create contiguous retail nodes 10-minute walk) to reflect the scale and prohibit them from becoming long of the existing anchors, walkability, commercial corridors. Similar to retail, proposed redevelopment, and to other commercial uses should be located reflect the existing and projected market/economic conditions of the within the nodes. Commercial should only areas. be located within areas designated as “Neighborhood Crossings”, “Neighborhood 3. The extent of Anchor Land Use Main Streets”, “Urban Main Streets”, designations are smaller/more limited to reflect the existing and projected or “Anchor Neighborhood: Urban” – market/economic conditions of the Vacant commercial outside of the nodes areas and to reflect the desire to and outside of these land designations protect the single-family areas. should be converted to residential uses. lAND uSE 73

Legend

Medical Districts/Institutional Campuses

Open Space

Urban Core

Urban Main Streets

Neighborhood Main Streets

Neighborhood Crossing

Parks and Recreation

Public and Quasi-Public Buildings & Uses

Open Spaces and Natural Features

Anchor Neighborhood: Urban

Anchor Neighborhood: Mix of Building Types

Anchor Neighborhood: Primarily Single-Unit

High Intensity Commercial and Services

Low Intensity Commercial and Services

Industrial

Industrial Flex

Primarily Multi-Unit Neighborhoods

Primarily Single-Unit Neighborhoods

2nd St

Mississippi River N

7th St eCedar Av

arbor H

Ave Chelsea Wolf River

Thomas St

Chelsea Ave

A ers St

Manassas St

Front St N Main St

N 2nd St N

A.W. Willis Ave Ave Jackson

N orth Pkwy

Danny Thomas Blvd

I-40

e P oplar Av

ers St

I-240

pROPOSED lAND uSE

Memphis uptown community plan 74 dESIGN AND zONING Draft June 21, 2018 Design and Zoning

• Elevated Highway 240 is a visual and • Natural Surveillance – offenders prefer • • Community Design psychological barrier, locations where they are not visible and people feel safer when they are visible • Properties along Poplar have • to others – physical features, activities, Walkable Mixed Use redeveloped in a suburban format and people are organized to maximize that create large parking lots that visibility, Communities face the street with buildings set back. This creates a hostile environment for • Natural Access Control – opportunities Design and form are far more than • aesthetics. Significant research has pedestrians and detaches these areas for crime are reduced by denying or from the surrounding neighborhoods, restricting access to targets – design shown that urban walkable mixed-use clearly differentiates between public and communities have a significant impact • Properties along A.W. Willis west • private space through the use of doors, on the environmental sustainability(less of Manassas have redeveloped in a landscaping, fencing, gates, and lighting. emissions), economics (greater fiscal suburban format that creates large parking lots that face the street or stability and higher property values), health large blank garages that face the street. 2nd Generation CPTED (fewer chronic diseases and depression), This creates a hostile environment for and safety (lower crime) of a community. pedestrians and detaches these areas Strategies (encourages While clearly there are other significant from the surrounding neighborhoods, the community to care contributing factors, an urban walkable • Vacant properties create discontinuity. about what they are mixed-use community performs better than • a comparable suburban development. A watching) CPTED (Crime Prevention • Social Cohesion – encourages brief list of the characteristics of this type • of community are listed below: Through Environmental development of a common vision, sense of belonging, and positive relationships, • Fronts of buildings (windows and doors) Design) • • Community Connectivity – required to face the street and are human scaled, • There is significant crime within the create partnerships and connections • Parking lots are located behind Uptown Community. The CRA regularly • within the community, buildings and screened from the view meets with the Police Department for • Community Culture – residents coming of pedestrians to create a walkable updates, reporting community insight, and • environment, together and sharing a sense of place coordinating efforts. In addition to policing through activities, • Has an interconnected grid of streets efforts, there are physical design and • • Threshold Capacity – promoting human- to promote walking and distribution of community strategies that can be employed • scale functions rather than sizes traffic, and are a part of the CPTED strategy. Crime or densities that may inadvertently • Streets are as narrow as possible to Prevention Through Environmental Design • promote anonymity (ex. Too many bars promote safe driving speeds, (CPTED) is defined as a multi-disciplinary in a single area or dereliction and lack of approach to deterring criminal behavior maintenance). • Sidewalks are present on streets to • promote safe walking, through environmental design. CPTED Strategies are broken into 2-categories: Recommendations • Street trees are present to provide • shade, pedestrian scale and a barrier • Preserve existing walkable urban pattern • between autos and pedestrians, 1st Generation – Natural were it exists, • On-street parking is present and CPTED Strategies • Ensure that new development is • • acts as a barrier between traffic and (focuses largely on consistent with urban pattern of pedestrians, in addition to providing development, convenient parking, physical design) • Repair existing urban infrastructure, • Open space is provided with buildings • Territorial Reinforcement – configuration • • • that front the spaces. influenced by architecture and design • Incorporate missing urban elements, that promotes feelings of pride and • • Work to convert areas that follow a The Uptown Community is primarily a pre- ownership that encourages individuals • WWII community, so meets many of the to take control of the environment suburban development pattern to an urban pattern, characteristics above. However, some of the and defend it – maintenance is also an important aspect of territoriality • Preserve historic architecture, issues include: •

police engagement in the planning effort community outreach Design and Zoning 75

• Carefully review new architecture to • ensure that it is consistent with the best historic architecture of the area, • Adopt implementation tools (such as • zoning and design guidelines) that promote urban walkable mixed use neighborhoods, • Incorporate CPTED Strategies in all • existing and new development. Zoning Analysis Zoning can serve to either facilitate or impede development/redevelopment. While the CRA does not control the zoning of the individual parcels, the CRA should review and recommend changes that will ensure the implementation of the vision and at the same time facilitate development/redevelopment. It should support the Land Use policies discussed in the Land Use section. The adjacent map shows the existing zoning for the Uptown Community. While some districts support the recommended land uses, there are several areas where this is not the case. At a high level, the land along the east side of the Wolf River Lagoon should be changed to a zone that supports uses other than industrial. In addition, the general pattern of zoning districts promotes corridor based commercial/retail, but should be focused instead on nodes/anchors and land area should be “right-sized” to both reflect what can be supported by the community and to promote success of commercial. Existing Special Districts Existing special districts within the Uptown existing zoning map Community are (see Existing Zoning Map): 1. Medical Overlay District, 2. The Uptown Special Purpose District (U) (include map of area) • Existing land use/zoning districts along • A further vetting of the zoning at a more – This district is further broken • • down into sub-districts and these the Wolf River Lagoon (IH) should be detailed scale should be undertaken and zoning districts have accompanying changed to reflect the proposed vision a new zoning map for this area should be regulations and design guidelines and permit uses other than industrial, developed, that promote an urban walkable • Mixed-Use designations (MU) along • It is recommended that an architectural • • community. the Chelsea Avenue corridor, Jackson review process be established to Avenue corridor, Thomas Avenue ensure that the design of the facades Recommendations corridor north of Chelsea, and 2nd of new buildings are appropriate to Street north of Looney Avenue, as the neighborhood and are reflective of • The Uptown Special Purpose District • well as the MU(NC) designation along the best historical architecture of the and its sub-districts are generally Chelsea should be changed and should neighborhood. consistent with the intent of the Uptown reflect the Anchor/node strategy Community Plan. The existing boundary proposed in the Uptown Community of the Uptown Special Purpose District Plan, should be expanded to include all of the • The Medical Overlay (MO) district should Uptown Community and the existing sub- • districts should be applied/designated be expanded to reflect St. Jude property for parcels/areas, ownership, current uses, and future uses, • It is important to ensure that industrial • The mixed-use neighborhood center • • and light industrial uses be permitted MU(NC) designation at the A.W. in the mixed-use areas, as well as along Willis and Thomas area should be the Wolf River Lagoon, as long as the reconsidered – The parcel size is not buildings are urban in nature, have conducive of the extent of retail or windows to the street, and contribute office that would be required on the first to a pedestrian environment – This will floor of buildings while accommodating require determining the best way to parking and creating an urban walkable implement this in the zoning ordinance, neighborhood,

Memphis uptown community plan 76 Retail and Services Draft June 21, 2018 Retail and Services Introduction Much like a number of urban store or pharmacy. Typically, community- creating well-placed and accessible parking neighborhoods throughout the country supported retail is smaller in scale, such will be necessary. that have suffered from decades of as corner convenience stores, cafes, or disinvestment, setting the stage for barber shops, since there is not enough V isitors/Tourists future prosperity and equitable growth household buying power to support a in neighborhoods like Uptown require a larger-scale development. For example, The Memphis Cook Convention Center broader framework that incorporates not based on household spending behaviors, provides a considerable market for only investments in real estate, but people, the spending of 4,000 households (with an tourism/visitor spending that could support places, and community-based services. It income of $35,000) on groceries annually bars, restaurants, entertainment, and other is critical that planning for future retail and can support approximately 35,000 square hospitality related uses. The Pinch District commercial development is aligned with feet of grocery store and food-related retail would be ideal for this type of development, a comprehensive strategy that focuses space, or the size of a mid-sized grocery although the presence of Interstate 40 on targeted and incremental investment store. creates a considerable perceived barrier. throughout the community. Generally, visitors and tourists will seek A residential retail gap analysis was out experiential or niche retail, which conducted for Uptown and there is emphasizes the need for placemaking Retail Trends currently little or no excess demand elements and district strategy. Tourists Retail development generates activity for most retail categories, including would likely be drawn to the pinch District and vibrancy, adds value to surrounding grocery stores. This does not mean there or to any niche uses on Front Street just development, and enhances the overall are no potential opportunities for new north of A.W. Willis, but less supportive of desirability of a neighborhood. Retail is also retail development, but it does indicate community-based or daily needs retail in perhaps the most competitive of the real there is a need to draw from a broader the other nodes. estate industries; products and retailers area and leverage a diverse range of are constantly evolving to meet changing demand segments. This includes local consumer demands, often replacing residents, workers and visitors to St. S trategic Location/ outdated products (be it shopping centers Jude Children’s Research Hospital, and or competitive retailers) in what is often residents and workers in adjacent or nearby Development referred to as “Retail Darwinism.” neighborhoods such as Harbor Town, Downtown, North Memphis, and Medical Nodes Despite the rise of online retail sales, District. Therefore, accessibility, visibility, Due to its location just north of Downtown opportunities remain for various types and product offerings will be critical. and adjacent to St. Jude Children’s of retail development. Americans report Hospital, the Pinch District represents one dining out more than ever, with households of the neighborhood’s best opportunities spending seven percent more at L ocal Residents for mixed-use residential and commercial restaurants than grocery stores, a reverse Residents of the core areas of Uptown have development, while new retail development, from previous decades. The effects of the most demand for daily needs retail in particular, should be sited along A.W. technological changes are less pronounced such as a grocery store, pharmacy, barber Willis Avenue to provide increased visibility in communities with higher proportions of shop/salon, and affordable dining options and enhanced opportunities for employees low-income households due to lower rates such as coffee shops and cafes. Support at the hospital, commuters from Harbor of internet usage and access to computers. for a mid-sized grocery store would require Town, and residents to the north, and Retail also serves as essential employment drawing from a broader customer base. northwest. The following districts or nodes options and provides valuable starting have been identified as having the most points for upward economic mobility, Workforce market potential: making it clear that brick and mortar retail stores continue to be an important element Typically, the local workforce has North of Willis Avenue (“Neighborhood of many low– and moderate-income considerable buying power for coffee/cafes, Core”) – Given limited visibility, there would communities. lunch spots, and other daily needs retail be less of a “draw” from other customer such as dry cleaners, tailors, barbers, and segments. The area is primarily residential Given these trends, urban retail in places pharmacies. Assuming an average daily with limited pass-through traffic, so any such as Uptown must focus on smaller- spending of $20 per week per worker, St. uses would have to be fully supported by scale spaces and tenants with a focus Jude’s workforce alone could support more local residents. These types of uses include on niche markets, workforce needs, than 10,000 square feet of retail space corner markets, cafes, and services such as neighborhood services, and day-to-day [3,700 workers * $20 per week * 52 weeks dry cleaners or barber shops. convenience shopping. Studies have ÷ $350 sales per square foot]. Pedestrian shown that consumers spend more when enhancements and place making elements Danny Thomas Boulevard/A.W. Willis public spaces are more inviting. In many will be critical for making any future retail Avenue – This is a highly visible and cases, this indicates that investments in nodes attractive and accessible. accessible location with high volumes of place and creating a unique experience for vehicular traffic. There is also access via nearby residents, employees, and visitors is Nearby Residents public transportation with a number of critical for neighborhood-scale retail to be bus lines along A.W. Willis Avenue and successful. Residents living in nearby neighborhoods Jackson Avenue. This area could support such as Harbor Town, Downtown, Medical medium-scale retail with parking including District, North Memphis, and areas further a grocery store, pharmacy, restaurants, R etail Demand west would seek out new retail if it were and/or general merchandise store given convenient and/or a business or service vehicular access. The success of this Overview otherwise unavailable in the market. This site will be dependent on creating sound Retail is the most successful when it includes grocery stores, convenience pedestrian enhancements and “softening can attract a broad customer base, shopping, restaurants, and niche/specialty the edges” to draw workers and visitors at especially for a larger-scale retail retail. Since the majority of these potential St. Jude Children’s Research Hospital and development or use such as a grocery customers would be arriving by automobile, residents to the north. Future development Retail and Services 77

in this node will have minimal impacts, and potentially adverse impacts, on the local Legend community if it is strictly an automobile- Promote New Retail / Mixed Use centric area. Promote New Light Manufacturing / Mixed Use The Pinch District – Given its location, Existing Retail / Mixed Use street network, and site capacity, this area Support Existing Retail / Sevices has the greatest potential for mixed-use and Encourage Residential Use on Vacant Commercial Properties development, commercial development (office), and entertainment-related uses such as bars and restaurants. Given St. Judes immediately to the west, there is potential to draw workers and visitors into the district for lunch and daily needs retail as well as drawing Memphis Cook Convention Center activity from the south. There is also a potential market opportunity to provide housing attractive to urban professionals. Given the barrier of A.W. Willis Avenue, the development of the Pinch District would likely have minimal impacts on the core residential areas of Uptown. It would also minimize the potential draw of the Thomas Boulevard/A.W. Willis Avenue node for St. Jude workers and visitors. Front Street/A.W. Willis Avenue – Given proximity to the riverfront, Harbor Town, and accessibility from Downtown Memphis, this area has the potential for niche/ destination retail and craft or small- scale manufacturing such as breweries, woodworking, and artist studios. The existing industrial building stock is less conducive to residential rehabilitation (aka loft conversion) given the size and scale of the buildings, but they could be viable as flex creative space. Future residential development would likely require the demolition of any existing structures. Though the current market for new high- end residential construction is limited, given the location, this area could be highly marketable in the future and potentially unlocked by significant development Retail Strategy momentum in the Pinch District. North Front Street – The riverfront location gives this area market potential, be mutually beneficial, as it would increase • Community gardens, • although attracting significant private the community’s access to healthy foods • Food pantries. investment would likely require continued and improve the health of area residents. In • development efforts in the core areas of most cases, the hospital will provide upfront Uptown and ongoing development activity capital to help fund development of the Recommendations in the Pinch District and areas along Front store, but in other instances the hospital • New retail should be supported at the • Street just north of A.W. Willis Avenue. In provides ongoing financial assistance or Pinch District and Manassas Market, other words, the development potential even operates the store itself. This scenario • Existing retail at the Pinch District and • of this area for market rate residential is occurred in the Uptown neighborhood of Manassas Market should be supported , likely dependent on the build out of the central Toledo, Ohio, where ProMedica • Partnerships should be explored to aid in areas to the south. Site control and land Health provided partial funding for the • the provision of a mid-size grocery store, acquisition strategies such as land banking acquisition and rehabilitation of a vacant will be critical to ensure that when the area building now called the Ebid Institute • Existing retail at anchors other than • reaches its market potential, controls are that also included a 6,500 square foot the Pinch District and Manassas Market in place to ensure that future development grocery store called Market on the Green. should be supported, but new retail should be limited, has the greatest impact on the local Initially, ProMedica sought to partner with community. a local grocery operator, but none were • At anchors other than the Pinch District • willing due to perceived risks. Therefore, and Manassas Market, vacant parcels and ProMedica owns and operates the grocery buildings should generally be promoted Alternative Grocery/ as residential land uses, Food Strategies - store itself, while prioritizing products from local vendors and hiring local at-risk • New residential should be promoted • Key Partnerships residents. If operating or providing funding throughout and will support retail and services, In the absence of a private-sector grocery for a full-fledged grocery store is not feasible, hospitals have utilized other ways • Small scale manufacturing should be developer or tenant, other partnerships • may be established that could benefit the to improve access to nutritious foods in supported in Anchors, communities of need, including: community and help resolve the issue of • Land acquisition should be prioritized • food deserts. For example, a partnership • Farmers markets, in the Anchors to facilitate current and with the neighboring St. Jude Children’s • future development. • Mobile food markets or stores on wheels, Hospital to develop a grocery store would •

Memphis uptown community plan 78 infrastructure and Utilities Draft June 21, 2018 Infrastructure and Utilities Older historic neighborhoods often face a single family infill home, which makes In 2014, the City of Memphis initiated an challenge with aging infrastructure. The initial costs more predictable reducing effort to study the entire drainage system Uptown Planning Area certainly faces investment risk, to reduce flooding conditions. Each study this problem. Portions of the utilities and • Conduct future utility and infrastructure includes a survey of the drainage system, a • infrastructure within the Planning Area assessment and provide regional utility computer model and proposed alternatives have been updated as part of previous upgrades if necessary to support to reduce drainage issues within the area. revitalization efforts, principally associated infrastructure needs for small scale and The City has completed one study of incremental developments for investors with master developer efforts in selected flooding, with the study of eighteen other and developers, areas. Future utility and infrastructure basins in progress. The basins within the • Support infill and incremental upgrades are currently being planned for • Uptown Planning Area boundaries are the Pinch District. Overhead utilities are development by developing a currently not active study areas. During an comprehensive solution for storm present in most of the public rights-of- onsite visit by the Uptown Planning Team, water in Emerging and Rapid areas. The ways and alleys and provide services to solution should address both onsite local residents informed the consultant residential homes either from the front measures along with a multiblock team of flooding issues in the Smoky City / or rear property line of the lots. Per the system to address quality and quantity Klondike neighborhoods. Flood complaint provider’s website, broadband appears to needs. Example solutions include green data was obtained from the City of be available in most neighborhoods within infrastructure and neighborhood level Memphis and is shown in Figure U-1. Close detention to serve residential infill. the Uptown Planning Area. coordination with City efforts to study The solution needs to be adopted and accepted by City Engineering this problem will be needed as additional and remove the need for detention analysis may be required to determine the Infill and requirements for future small-scale infill risks of flooding in the Planning Area. Redevelopment developments, • Provide environmental remediation, and • Recommendations: Infill developments can bring many support through grants to developers • Inform Residents to report drainage infrastructure challenges and uncertainties. and professional services to undertake • such efforts, issues to the Division of Public Works’ Current policies put the cost burden of Drain Maintenance Department at (901) relocations, upgrades, and new service • Provide infrastructure-related grants 357-0100 or by calling 311. Drainage • connections on the developer. or funds for project-specific needs issues include, but are not limited to: including predevelopment and site flooding from clogged inlets, missing Potential barriers to infill and acquisition to help offset cost, storm grates, and failing drainage redevelopment can include, but are not infrastructure. The information will • Provide funds and assistance for limited to: • assist the City of Memphis to address underpass lighting and infrastructure both isolated incidents, as well as collect • Storm water detention requirements, to improve connectivity including public • data to support long term solutions, art. • Utility availability, capacity, and • Partner with the City of Memphis to • • connection configuration, The recommendations should be developer commission Uptown Planning Area and project driven with priority given to • Undocumented or unknown drainage studies. The studies will identify • infrastructure or utilities with emerging and rapid areas to facilitate and recommend any infrastructure prescriptive easements, capital investment and economic growth. improvement projects needed to address flooding and drainage issues, • Underground utilities in old street and • • Partner with the City of Memphis alley right-of-ways which have been • realigned, closed, or repurposed, Drainage to conduct further investigation of the condition and reliability for • Environmental and brownfield issues, The CRA boundaries are composed of three both pumping stations and ancillary • drainage basins: Marble, Madison Heights structures within Planning Area basins • Soil and site conditions on vacant lots • and the Gayoso Basin. Major drainage due to the age of the infrastructure. where previously buildings have been facilities include the Gayoso Bayou, the Further investigations include, but not demolished. Marble Street pumping station, and the limited to: commissioning a condition assessment of the existing equipment, The following are recommended to Mississippi River floodwall. The flood wall asset management plan, and reliability encourage, incentivize, and support infill system includes concrete walls, a pumping study of overall system to improve the development: station, and flood gates which protects resiliency of the drainage system. • Restore and make improvements to most of the Uptown area from high flood • existing sidewalks and streetscapes levels of the Mississippi River. During throughout the Planning Area, ordinary times, the flow of the bayou will Alley Maintenance • Relocate utilities in catalytic areas that • cut through buildable sites, particularly and Restoration in abandoned rights-of-way and easements, into current street and alley in the Uptown rights-of-ways, Planning Area • Relocate or bury utility lines in areas • The street and block framework of the which have a potential for mid to high- Uptown Planning Area was laid out almost rise development to allow for block frontage with minimal building setbacks, in its entirety before World War II, a time when blocks were typically serviced by • Re-subdivide and repurpose vacant • an alley system. Indeed, this is one of lots to maximize land use and create the unique legacies of the Planning Area. desirable lot widths and sizes. For single family areas, install future stormwater facility maintenance However, the use and condition of extant utility connections for vacant lots to discharge into the river by gravity. As alleys varies considerably, with many being promote redevelopment. These utility the river rises, the gate is closed, and the unused, abandoned, and overgrown. connections will allow the builder to pay a fixed connection fee to build a drainage is pumped. infrastructure and Utilities 79

Legend

No Drain Cause Unknown Private Property Private Property Sewer Manhole Responsibility of Sewer Department Referred - Status Unknown Undersize Pipe

preserve historic fabric

Most of the blocks to the west retain their alleys in their original four-square configuration, are in service, have been renovated as blocks redevelop and provide rear-loading for parking as is optimal in an urban setting. These alleys were platted with a 20 ft width, which is quite adequate for contemporary use. North of Chelsea Ave., blocks no longer possess a four-square configuration, but when provided with alleys, they are laid out in a longitudinal direction. Almost all these alleys are in a state of abandonment, and are often substantially overgrown. Between N. 7th and Manassas Streets, the blocks assume irregular shapes, and many have a single longitudinal alleys. The alleys are typically narrower that the blocks to the west (16 ft vs. 20 ft, respectively), but their 16 ft dimension is probably the minimum required for automobile access, which some do provide. Others appear abandoned and overgrown. Smokey City was also laid out with an alley system, which created an important historic legacy during the segregation era, wherein it became a principal pedestrian circulation network for the neighborhood’s African- American residents. At one time, several residential units actually fronted on the alleys, reinforcing a sense of a secondary U-1: flooding incident map ‘street’; a few of those structures survived. The alleys themselves are quite narrow • Establish, in conjunction with the City (typically between 14 to 16 ft), which makes Recommendations: • of Memphis, a maintenance program for them unsuitable for vehicular access. • Restore and utilize existing alleys to restored alleys, • Some still provide rear-service for parking, support rear-loading of existing and • Work with the Memphis Police but most are abandoned and overgrown. proposed single-family units, for alleys • that possess a minimum 16 ft of width, Department to establish a policing program for the restored alleys to • For alleys restored for vehicular access, promote their safe and proper use, • restore paving (retaining and restoring • Select and fund a trial restoration of an historic paving fabric where it exists), • provide lighting fixtures and landscaping, alley in the Smokey City neighborhood to assess needs, requirements, and • For alleys whose width makes them costs of a typical effort, as well as • unsuitable for restored or continued gaging acceptance and use by adjacent vehicular access, restore the alleys residents and the community. as part of a larger pedestrian/bicycle circulation network by providing suitable surfacing, and provide lighting fixtures and landscaping, • In all restoration efforts, retaining • and restoring historic paving fabric (principally pavers such as brick or stone) where it exists to preserve the historic character and legacy of the alleys,

restore the alleys

Memphis uptown community plan 80 Implementation Draft June 21, 2018 Implementation: Discover Demand, Shape Supply Understanding Where You Are Long term visions are only as good as how calibrated set of tools to reactivate market and where you start. Uptown has a diverse demand and shape the supply that follows. set of neighborhoods and districts with a A place with virtually no market interest diverse set of starting points. should not be given the same tools as one with emerging development interests. While The Uptown focus area is large and one community might need to just figure diverse with several neighborhoods and out where to focus neighborhood safety districts that consist of a variety of land and clean up efforts, the other might need uses and building types in varying states to develop a loan product for large-scale of disinvestment and reinvestment. mixed-use development projects. Whether it be the Pinch District and its prime location near downtown and the The CRA funding toolkit will allow it to Pyramid, the Warehouse District around the smartly and inclusively work with their former Snuff Factory near the Wolf River unique mix of community partners by Harbor, or the quiet but growing single meeting them where they are, providing family housing market around the Office them with the tools they need when they @Uptown, the focus area has distinctly need them, and ensuring that funded different and unique places around every projects induce market growth and positive corner. change in an inclusive and transparent fashion. These implementation tools in the The mixture of market conditions means following pages include: that one-size fits all approaches to • A Market-Based Funding Toolkit, neighborhood growth will not work for • the CRA and the communities of Uptown. • A TIF Project Scorecard, Each place has its own unique story and • • An Implementation Matrix. starting point. Each place will need its own • Implementation 81

Uptown tif boundary Thomas street Thomas

Harbor town

2nd street

Manassas street

7th street

sissippi river arbor Mis H

Chelsea avenue

Wolf river

aw willis avenue

Jackson avenue

North parkway

St. Jude hospital i-69

i-40 A labama avenue

Front street

Main street

Downtown Memphis venueP oplar a

Aerial Photograph of Existing Conditions

Memphis uptown community plan 82 Implementation Draft June 21, 2018 Market-Based Funding Toolkit

Uptown tif boundary Thomas street Thomas

Harbor town

2nd street

Manassas street

7th street

sissippi river arbor Mis H

Chelsea avenue

Wolf river

venueA w willis a

Jackson avenue

North parkway

St. Jude hospital i-69

i-40 A N labama avenue

Front street Legend Main street SLUGGISH GROWTH SLOW GROWTH MODERATE GROWTH STABLE GROWTH Downtown Memphis venueP oplar a

MARKET CONDITIONS The Uptown TIF Boundary (in red) comprises several neighborhoods that exhibit several different starting points for investment. S ome areas within the Uptown TIF tools that can help shape inclusive and Moderate boundary have seen positive change in sustained growth in these places. Lack of investment for several years but recent years that have since slowed, some The four market conditions, their developers and investors are interested in are seeing relative active developer and definitions and some of the essential tools working with the community, the CRA, and institutional interest, and others haven’t are as follows: other partners to reinvest seen positive change in decades and are suffering from deep disinvestment. Sluggish Rapid For the CRA is to be successful in using Lack of investment for several years and Investment is occurring and market the TIF dollars to grow Uptown over the little or no current market interest in demand is growing with multiple developers next decade, understanding the market reinvestment and investors interested in participating conditions and how to invest in each area on day one will be essential. Four Slow market condition types were identified and Lack of investment for several years but matched to a set of demand and supply some reinvestment activity that is currently slow or stalled. Implementation 83

MARKET CONTEXT sluggish STABLE

Explorers + Creatives + Builders + Influencers + Tools Connectors Experimenters Strategists Shapers

Activation and demand creating Mini/nano grants Events & programming grants Programming toolkit Public art grants Small business development grants Social media strategies and campaigns Storytelling/branding grants Minority business incubation

Planning and design Predevelopment grant Strategic property acquisition Master planning and strategic investment plans

Construction and development Residential facade grants Small developer financing Historic preservation fund Commercial facade grants Large developer financing Real estate crowdfunding

Operations and management Clean ups Targeted police enforcement Targeted code enforcement Pink zoning Zoning variances Public asset management & programming Design-based zoning code Equity toolkit to protect long-term residents/business owners

THE MEMPHIS CRA TOOLKIT

Clean Ups Events & Master Planning Pre-Development Small Business Strategic Property Often already Programming & Strategic Grants Development Acquisition a tradition in Grants Investment Plans These grants will help Grants As the market slowly neighborhoods, these These are small grants As places begin to grow alleviate some risk and These should be heats up it may become should be done more that help alleviate costs rapidly road maps are costs for a developer designed to attract important for CRA and/ strategically based on of neighborhood-led needed for what growth in the pre-development in new businesses by or partners to secure the goals in the plan events looks like on a block by period providing money for certain properties block scale start up costs to ensure positive Commercial Facade Historic Programming outcomes Grants Preservation Fund Minority Business Toolkit Small Developer Often facades in urban Historic buildings are Incubation Created in partnership Financing Targeted Code neighborhoods have often very expensive to This will help to with the City, this This financing can Enforcement been boarded up or save This fund would maintain racial diversity toolkit will help come in the form Targeted code are in disrepair These help with the financing among business owners alleviate the red tape of infrastructure enforcement is a grants act as incentives of historic rehab while creating a steady involved with holding improvements, pre- valuable tool for for property owners to projects pipeline of new minority neighborhood events development grants mitigating blight and make repairs entrepreneurs or low-cost loans improving the livability Large Developer Public Art Grants depending on the of the neighborhood Design-based Financing Pink Zoning for local artists to project zoning code This is typically gap This flexible type of install public art Targeted Police When a market begins financing or financing zoning helps eliminate that helps tell the Social Media Enforcement to rapidly changing a for infrastructure or some of the red tape story of the Uptown Strategies & Strategic and targeted design-based overlay other public assets and bureaucratic neighborhoods Campaigns police enforcement can help ensure (for example, parking barriers that can often Social media outlets paired with other tools quality urban infill garages, streetscapes) stop a small project Residential Facade are valuable tools when can yield powerful development before it begins Grants trying to change the results in struggling Mini/Nano Grants These are already perception of places neighborhoods Equity Toolkit As small as $250, Public Asset being administered by This toolkit should these grants are for Management & the CRA and should Storytelling/ Zoning Variances focus on inclusive residents who have an Programming continue to be used Branding Grants Amendments to the development policy idea for how to bring The number of parking proactively in the These should be used zoning code often need that protects long-term people together and garages, parks and slower markets to tell new stories about to occur early on in a residents add vibrancy to their transit stops will expand Uptown Neighborhoods changing neighborhood neighborhood in growing areas and they will need to be managed appropriately

Memphis uptown community plan 84 Implementation Draft June 21, 2018 The Uptown Growth Strategy The CRA intends to leverage its resources stages allows the target market, character, in Uptown to get its neighborhoods and scale of the development may to growing once again. Its growth strategy be discovered with the neighborhoods' acknowledges that the neighborhoods of existing residents and businesses, not to Uptown are not all at the same starting them in the third stage. point and that, without exception, the The three stages of the growth strategy are neighborhoods need to increase the calibrated to the particular market context number and diversity of households to of each Uptown neighborhood. For instance, sustain the longterm, sustained growth of the Discovery and Activation stage as part Memphis. The new strategy will balance of the first stage might be heavily event the historic focus on the delivery of focused in sluggish neighborhoods but, low-income and affordable housing to in the relatively stronger neighborhoods, unlock a pent up market demand for well- this work may come in the form of a semi- amenitized, walkable, diverse, and mixed- permanent pop up park and retail kiosks. use neighborhoods in Memphis. Each are performing the same action but At the core of this strategy is the in such a way that is cognizant of each principle that rooftops follow places. place's starting point. Similarly, the CRA's Uptown's neighborhoods have a number funding and partnership strategy will align of fallow structures, blocks, and spaces with these stages to ensure that high- that can individually act as catalysts impact small projects, incremental infill for their neighborhood and, in concert development projects, and transformative with one another, create a powerful large-scale development are each given engine for attracting investment in the due importance and receive the support neighborhoods. Identifying and activating they need to achieve the overarching goal these spaces through a process of of growing Uptown. Discovery and Activation is the first stage of the growth strategy. These reimagined places will be anchors for the second stage Growth strategy of growth where Smart Small Development stages is pursued within walking distance of The Uptown Growth Strategy consists each of these amenities. Smart Small of three primary stages: Development includes infill and restored 1. Discovery + Activation houses, retail and third places, and small (uncover the market) office spaces or services. These first two stages help reestablish a functioning 2. Smart Small Development market, build wealth in the community, and (create the market) dramatically increase the viability of larger, 3. Sustained Growth riskier projects in a third stage of Sustained (shape the market) Growth. The pace of change in the first two Implementation 85

Uptown Growth Stages Sat ge 1: Discovery + Activation [0-2 years] Our neighborhoods have a number of over- looked spaces, nooks, and crannies that can be transformed into places that attract people, even if just for a weekend. We can go beyond just a cleanup or even community festival and use temporary programming and events to discover new neighborhood assets, test ideas about future uses, and uncover pent up local demand or interest from outsiders that might be interested in spending time or money in the neighborhood. Discovery and Activation can be used to test the viability of a retail location, reuse of existing buildings, the alignment of new bicycle or pedestrian infrastructure, or the location and function of an outdoor public space. The cumulative effect of this stage is to inspire and inform through action initial investments in buildings and infrastructure while tapping into the personality, voice, and character of the neighborhood.

Sat ge 2: Smart Small Development [1-3 years] While the Discovery and Activation work is underway, properties surrounding the spaces and ideas being tested should be acquired (if necessary), stabilized, and made available to house the uses and end users attracted to the neighborhood in its current state. This stage is best leveraged when used to build capacity and wealth of new businesses, small developers, and residents while providing experiences, services, and housing that meets current demand that often flies under the radar of traditional high level market analysis. A critical mass of adapted buildings and new infill will positively affect market behavior to improve the livability for current residents and business owners while lowering the risk for new investment coming in from outside the neighborhood.

Sat ge 3: Sustained Growth [3-10 years] The previous two stages serve to get the market working such that larger, more sustained investment might be made in the neighborhood in the third stage. The outcomes of this stage can come in the form of accelerated new housing starts in new build and renovation projects, infill multi-family and commercial buildings, and larger developments that may house residents, employers, institutions, and light manufactur- ers. Because this larger development is attracted and informed by the incremental, perhaps quirkier Smart Small Development, it typically occurs at a pace and in a form that better reflects the priorities, character, and aspirations of the neighborhoods in which it locates.

From planning to development The Growth Strategy focuses on implementing the Uptown development vision through building demand to create opportunities for smart, small interventions while pursuing larger, more visible and time intensive investments in real estate and infrastructure PLAN DISCOVERY + SMART SMALL SUSTAINED development. ACTIVATION DEVELOPMENT GROWTH

Memphis uptown community plan 86 Implementation Draft June 21, 2018 Discovery + Activation [0-2 years]

2nd street Thomas street Thomas

7th street

Harbor town

arbor H 2 Chelsea avenue 11

Wolf river

4 Manassas street aw willis avenue

Jackson avenue 1

6 North parkway

St. Jude hospital

i-69

8 i-40 A labama avenue

Front street 9 Main street 10

venueP oplar a Legend 3 Public art/mural Programmed space 1/8 mile walk radius Downtown Memphis Medical district

Discovery + activation opportunities

Upon acceptance of the Uptown Master Plan, the To guide this work, the Public Engagement and CRA will begin implementation along two over- Discovery phase of work uncovered a number Sat ge goals arching paths. The first path will focus on build- of underutilized spaces in the Uptown neighboring up its capacity, establishing its protocols and hoods that have the potential to be repositioned 1. Build on current momentum and interest procedures, confirming necessary infrastructure as assets for the community. The process also in Uptown. improvements, securing property, brownfield re- identified a number of potential partners that mediation, and actively receive and pursue ap- could participate and lead in the transformation 2. Create and demonstrate the demand for plications for grant and TIF funding. These activ- of these spaces. growth at high-impact, high-potential ities will largely be invisible as they are primarily locations through active programming, administrative and do not directly lead to physi- While the activation work is scaling up, ongoing use testing, and marketing/storytelling. cal change. The concurrent path will build on the work such as infrastructure evaluations and up- energy and current opportunities uncovered in grades, facade grants, enhanced code enforce- 3. Build up CRA operational procedures the design charrette to create and understand ment, and targeted property acquisition can all and capacity to serve as a partner and demand for Uptown. This will be largely physi- happen. Property-specific investments should standard bearer for Uptown. cal and outward facing as "proof" that what was focus within 1/8-1/4 mile of the activation points started in early 2018 is steadily moving forward while infrastructure upgrades for sewer, wa- 4. Understand and make necessary with the community. ter, and surface-level mobility (bikes, peds, etc) infrastructure and regulatory changes to should be oriented to connect these emerging alleviate unnecessary development risks. places to each other and their relatively stronger neighbors outside the Uptown area. Implementation 87

Priority initiatives

1 Dunscomb Alley 2 Pop up Park + Market Street 4 Lunch on Leath

4 Back at Front 5 The Office @Uptown Pop up Courtyard 6 Main Street Pocket Park

7 Silo mural 8 Underpass public art 9 Neighborhood Café

10 Inspection Station YP Pop up Sports Field 11 7th + Chelsea Church Makeover 12 Alley block events

Memphis uptown community plan 88 Implementation Draft June 21, 2018 Smart Small Development [1-3 years]

2nd street Thomas street Thomas

7th street

Harbor town 11

arbor H 2 10 Chelsea avenue

Wolf river

Manassas street aw willis avenue

Jackson avenue 1

8 North parkway

St. Jude hospital

i-69

i-40 A labama avenue

Front street

Main street

6 n 4 9 venueP Legend oplar a Opec n spa e Commercial amenity Infill Development 1/8 mile walk radius Downtown Memphis Medical district

Focus areas for smart small development As the Activation and Discovery efforts the neighborhood and the goal of the Midtown, the Medical District, and between are maturing and the CRA procedures and activation and small development wins will points within Uptown will compound the protocols become known and established, be to convert these try ons to committed cumulative effect of these investments. a number of Smart Small developments residents, business owners, and investors. The Smart Small Development Stage allows will come online. The first six of the eleven During this stage, the CRA will focus on change to happen incrementally without shown here currently have interested recruiting new services, entertainment, creating a cataclysmic jolt to existing parties that are actively putting together food and beverage, and other commercial residents and business. It allows them, actionable development proposals. and public space amenities while in fact, to be part of the change and the The purpose of this stage is to create supporting incremental residential infill wealth that it can create. This work will viable amenities that will improve the development and restoration projects then help lower the risk and shape the quality of life of current residents and within walking distance of these amenities. supply of larger developments that will businesses while actively drawing in new Infrastructure upgrades may be executed want to be near what is created during this market participants. The newcomers at during this stage. Improved connections stage. first may be guests who wish to "try on" to the Wolf River Harbor, downtown, Implementation 89

Priority initiatives

1 Manassas Market 2 Warehouse Redevelopment 3 Greyhound Redevelopment

4 OffPop Retail District 5 2nd Street Adaptive Reuse and Infill 6 Winchester Infill

7 Main Street Retail 8 Manassas + North Parkway 10 Inspection Station Sports Club

Sat ge goals 1. Convert "test" uses from the Activation and Discovery stage into permanent Uptown establishments. 2. Support new infill and adaptive reuse projects in close proximity to newly emerging centers. 3. Attract potential residents to "try on" the neighborhood and create incentives and supply of housing to retain them. 4. Continue to lay the groundwork for a pipeline of larger projects.

10 7th and Chelsea Performance Hall 11 Chelsea Park Development

Memphis uptown community plan 90 Implementation Draft June 21, 2018 S ustained Growth [3-10 years]

2nd street Thomas street Thomas

7th street

2 Harbor town arbor 5 H

Chelsea avenue

Wolf river

Manassas street aw willis avenue

1 Jackson avenue

North parkway 3 St. Jude hospital

i-69

6 i-40 A labama avenue

Front street

Main street

venueP Legend 7 oplar a LeOpecgendn spa e Commercial amenity Public art/mural Infill Development (sm) Programmed space Infill Development (LG) Downtown Memphis Medical district 1/8 mmileile walk walk radius radius

Opportunities for sustained uptown growth

The third stage of growth is where the creation can be met and responded to head proportionate to the location's starting leveraged value created through earlier on. point and the incremental progress investments are harvested through made during the previous two stages. A Sustained growth does not exclusively higher profile real estate and public good significant development in the far north entail mega projects. In fact, much of development projects. And because this of the study area or in Smoky City, for the urban fabric within Uptown can large scale work is shaped by active testing instance, might be a remade street with absorb much walkable density within (Stage One) and incremental investments detached homes and small retail on a the current scale of detached houses, (Stage Two) the sophistication, priorities, prominent corner whereas a signature single story commercial buildings, and and function of Stage Three investment development from this stage in the Front moderately scaled multi-family and will be informed and intentional such Street Warehouse District or in the Pinch institutional buildings. Further, the scale that issues around displacement, over will likely be large undertakings of regional and sophistication of development will be gentrification, design, access, and wealth importance. Similarly, public amenity Implementation 91

Priority initiatives

1 Manassas Market District 2 Warehouse District

3 Pinch District 4 Bayou + Mill Development and Park

5 Chelsea 6 Carnes Redevelopment 7 Morris Park

improvements may be fundamental Sat ge goals improvements to safe walkability in one area and a regionally serving greenway 1. Execute relatively large and along Wolf River Harbor to the west. complex development projects. One of the CRA's primary objectives 2. Make signature investments in the stage will be to ensure that the in public assets such as parks, investments made during this stage, greenways, parking (if necessary), regardless of location, raise the investment schools, etc. grade of Uptown while maximizing the benefit for all Memphians. 3. Update Strategic Investment Plan for next phase of investment based on changed context.

Memphis uptown community plan 92 Implementation Draft June 21, 2018 Priority Project Implementation Matrix

Character + Plan(s) in Market 0-2 Year 1-5 Year 10 Year Focus Area Position Place? Condition work Work Impact

Retail daily needs core XX Slow Acquire and activate Redevelop former Retail hub that serves and third place for garage b/t former Kroger building; daily needs of all of Uptown neighborhoods Kroger and strip center study area; grocery; along North Parkway; drugs; amazon locker; assemble properties, Develop garage into etc; third places where begin pre-development food/beverage neighborhoods and of former Kroger, mural St. Jude can mix; new side of kroger; extend housing cluster, better real bike infrastructure gateway through better to 2nd Street along Mill intersections/streets and AW Willis Manassas Market Mixed-use destination XX Moderate Work with key property Complete phase Warehouse district retail core that owners on plans one construction of development; Wolf connects Uptown for redevelopment, warehouses, begin River Harbor trail/ neighborhoods to Wolf activate Front Street planning development greenway River Harborfront around warehouses, of waterfront, potential partner with silo owner tenants/uses: Wise for signature mural Acre; Industrial Kitchen Incubator; Wholesale Food Outlet

Warehouse District Destination Food Hub Slow/Moderate Activate Front Street Develop former Bayou project; infill that anchors Bayou- frontage/side; Work Greyhound building; development; regional oriented neighborhood with private developers begin pre-development destination development to acquire and finance of park, develop infill the renovation of the on Front Greyhound building

Bayou + Mill Neighborhood retail Slow Activate Office side lot; Develop infill housing, Relocated chemical street help finance permanent rehab horse stable company to north improvements of Office building, develop Thomas; fantastic side lot; Purchase chemical building site neighborhood retail chemical building, core purchase or work with property owner of horse stable building, financially assist small housing developers 2Nd Street Row Joint center of amenity xx Slow Activate Auto Develop infill housing Increased number of for institutions and Inspection and (70 lots); Develop b/t viable housing options neighborhoods Legend's Point, assess Washington + Poplar within short distance infrastructure for around Auto Inspection of institutions and single family home amenities development

Morris Park Entertainment x Moderate Activate empty lot Develop large scale Turn synagogue into destination for on regular basis with infill mixed use sites venue; 2-3 more Memphians that also entertainment/music bars/clubs; 2-3 more happens to attract with emphasis on boutique offices; loft conventioneers Main between Overton housing and Jackson; develop brand for Pinch with a focus on Main, use small business grants to strategically recruit The Pinch retailers to Main S econdary Uptown In progress Sluggish Activate garage on Redevelop church, Chelsea and Thomas neighborhood service NE corner of 7th + develop infill housing, as a significant retail retail core Chelsea; paint tower complete new fire center of church; acquire station; install church, use tactical permanent ped approach to improve friendly infrastructure pedestrian friendliness improvements on of intersection Chelsea from Thomas to 2nd, develop garage on NE Corner into food/ Chelsea beverage Neighborhood center Sluggish Ensure community led Develop walkable Stabilization of housing; activation with focus amenities on Jackson increased safety; on changing story/ between Pearce and Jackson Commercial perception of place and Leath, begin developing district influencing outcomes infill housing on Jackson between Pearce and Leath, develop strategic code enforcement and safety plans, market resident Klondike facade program Smokey City Implementation 93

Top Potential Operations Tools Precedent Scorecard Notes Partners Strategy points MMDC, St. Jude, Bill Property Acquisition; 5 Points, Nashville CRA acquires property; Community is engaged Move food distribution here when grocery and Ganus; Salvation Pre-Development CRA facilitates in project planning delivery services go live and more space is Army, CRA, Land Bank; Grants (up to $50k); pre-development and decision-making; needed at former Greyhound for Food Hall National Small Grocery Public Art Grants; Turnip Truck, Nashville grants, public art Projects make best group (from BG), Developer Financing Bell Street, Seattle grants & events and efforts to hire from Epicenter; Grizzlies; (create a package programming grants; the neighborhood and Pyramid specific to former CRA assembles to work with minority Kroger); Events & financing for the owned companies; Programming Grants redevelopment of the Projects include public former Kroger site space with culturally relevant programming Billy Orgel; Bill Ganus; Pre-Development City Flea; Town Branch CRA works in Community is engaged Eligible for DMC Economic Development Wise Acre; Austin Grants (up to $50k); – Lexington, KY, Taxi partnership with private in project planning Incentives Rowing Club; Public Art Grants; – Denver, The Source – owners to redevelop and decision-making; Storytelling/Branding Denver, American Can properties; CRA Projects make best Grant; Events & Building – Cincinnati, facilitates connections efforts to hire from Programming Grants; Clipper Mill – Baltimore, to DMC incentives; CRA the neighborhood and Developer Financing Bakery Square – manages applications to work with minority (Acquisition & Pittsburgh, Produce for programming owned companies; Development) Terminal / Strip and public art; CRA Projects promote District / Cork Factory manages branding/ traffic calming and bike – Pittsburgh, Eastern storytelling strategy friendliness Market – Detroit Bill Ganus; Group out of Property Acquisition; Source Denver CRA works in Community is engaged Eligible for DMC Economic Development Little Rock; Pre-Development partnership with private in project planning Incentives Grants (up to $50k); owners to redevelop and decision-making; Storytelling/Branding properties; CRA Projects make best Grant; Developer facilitates connections efforts to hire from Financing (create a to DMC incentives; CRA the neighborhood and package specific to the manages applications to work with minority Greyhound); Events & for programming; CRA owned companies; Programming Grants manages branding/ Projects include public storytelling strategy space with culturally relevant programming Office; Andre; Tommy Property Acquisition; CRA explores possible Community is engaged Eligible for DMC Economic Development Pacello Pre-Development acquisition of chemical in project planning Incentives Grants (up to $30k); company building; CRA and decision-making; Storytelling/Branding develops financing Projects make best Grant; Small Developer tools to help small efforts to hire from Financing; Events & developers; CRA the neighborhood and Programming Grants manages events & to work with minority programming grants owned companies; & pre-development Project diversifies grants; CRA manages current housing type branding/storytelling strategy Incremental Developers; Property Acquisition; Norfolk Arts District; CRA facilitates Projects make best This could be an alternate for Wise Acre and/or River City Capital; Pre-Development Lawrenceville Art developer financing and efforts to hire from Food hall; In MMDC Focus Area MMDC, Grants (up to $30k); all Night; Fowling pre-development grants the neighborhood and Small Business Warehouse with MMDC; CRA works to work with minority Development Grants with MMDC on Small owned companies; (up to $15k); Small Business Development Project diversifies Developer Financing; Grants and Events & current housing type Events & Programming Programming Grants Grants

Harvest; St. Jude Pre-Development Covington Madlot; 5 CRA manages events Community is engaged Consider building to south of Cafe Francisco for Grants (up to $50k); Points; Chattanooga & programming in project planning BG Food Hall alternate; Eligible for DMC Economic Storytelling/Branding entertainment district grants, CRA facilitates and decision-making; Development Incentives Grant; Events & connections to DMC Projects make best Programming Grants; incentives, CRA efforts to hire from Small Business manages branding/ the neighborhood and Development Grants storytelling strategy to work with minority (up to $15k) owned companies; Projects include public space with culturally relevant programming Artists, etc Events & Programming NuLu Louisville CRA works facilitates Projects are initiated Fire station in progress on 5th/Chelsea; Eligible Grants; Programming Events & Programming by the community; for DMC Economic Development Incentives Toolkit; Public Art grants, Public Art projects promote Grants; Tactical Street Grants; CRA develops traffic calming and bike Re-design programming toolkit friendliness with City; CRA secures partner for Tactical Street Project

KSC CDC; Memphis Community Vibrancy Heidelberg Project – CRA manages mini- Projects are initiated by This likely needs more code enforcement etc as Police; Memphis Code/ Mini-Grants; Strategic Detroit grants, CRA works the community part of first 24 months building enforcement Code Enforcement; with the community to Residential Facade facilitate partnerships Grants; Clean Ups, with the City and Strategic Police partners around code Partnerships enforcement, safety and clean ups; CRA manages residential facade grants

Memphis uptown community plan 94 Implementation Draft June 21, 2018 The Uptown TIF Scorecard With $95 million to spend in Uptown Transportation over the next 14 years, the CRA will be challenged with a multitude of applications With Uptown’s proximity to Downtown for project funding in the focus area. Memphis and other job centers the While this plan will help guide the Uptown enhancement of public transit, walkability, Neighborhood Advisory Committee’s and bikeability will need to be a central part (UNAC) decision making, the decision of the reinvestment strategy in Uptown. makers require an open and transparent This section of the scorecard will help process for how and where they determine ensure that developers include features allocation of public dollars. The TIF that improve the pedestrian and transit Scorecard outlined here is a tool that experience in and around their projects. ensures the CRA measures projects based on five guiding principles: Design/Preservation As revitalization takes hold in Uptown Community Engagement/ it is critical that the history and culture Planning of the communities is reflected in the design of projects. This may include The TIF funding will spur large scale building in programmable public space, change in the Uptown neighborhoods over preserving historic structures, development time and with that there will be hope and programming, or working with local artists excitement, but also fear and concern. to design elements of the project. It will be essential that as developers/ investors enter these new markets they engage with community stakeholders Next Steps to Implement throughout the development process and This draft Scorecard will need to be ensure that the community has a seat at integrated into the already existing CRA the table when it comes to shaping what TIF guidelines in a way that streamlines gets built in their community. the process for applicants to move projects through the process. Next steps include: E conomic Development • Integrating this Scorecard into the • Growth and development bring jobs, small already existing CRA TIF guidelines, businesses, and increased prosperity. With procedures, and protocols high rates of unemployment and poverty • Working with CRA staff and UNAC to • in several pockets of the focus area, it is finalize the details and functionality of important that CRA and its partners work the Scorecard to ensure that these newly created jobs • Creating a Streamlined application • are connected to those who need them process that includes an online portal, the most in the community, thus creating interaction with CRA staff, and in-person a scenario where development and growth interview process with UNAC. It is lifts many, not just a few. important that this process is iterative and allows changes to the project application as feedback is provided. Housing The diversification of housing will be a critical component to the success of How to use Uptown in the coming years. In this scoring The Scorecard will be used by both the process housing and mixed-use developers project applicant and UNAC. It will be will need to prove that their projects are made publicly available via the Inter- diversifying the current housing markets net so that when a developer/investor as outlined in this plan, thus securing a begins pursuing a project in Uptown they can access the Scorecard early future for Uptown that does not include the in the pre-development process and segregation of housing or the clustering of take the necessary steps to ensure a particular housing type based on tenure they reach a high score in advance or income. of formally preparing an application for CRA funding. Once the application is submitted, UNAC will also use the Scorecard to assess the project and to make a recommendation to the Board to approve or deny the application. Implementation 95

Uptown Memphis TIF Scorecard

Purpose To ensure that the distribution of the CRA TIF dollars is transparent, meets the needs of the existing community and furthers the goals outlined in the CRA plan.

When to use the Scorecard

When approving Policy Changes When approving funding for Real Estate Projects When approving funding for Infrastructure Projects

Applicant Info

Applicant Contact Info: Public Investment Request (Check One) Project Name: TIF $$$ Site Location: Tax Abatement Project Description: Land Acquisition Zone Change Infrastructure Improvements

Project scoring

Community Engagement/Planning Score: 0/20 Notes

Project was initiated by the community 0/4 Project furthers goals outlined in the CRA plan 0/4 Community has authority in the decision-making process, such as community representation on a project 0/4 committee of task force Significant changes to the scope of the project triggers more community engagement 0/4 Community was engaged within the first six months of the planning process 0/4

Economic Development Score: 0/20

Project uses local workforce programs to connect residents to construction jobs and long-term employment 0/4 within the project Project pays a livable wage 0/4 Project makes best effort to attract minority-owned businesses, women-owned businesses and small 0/4 businesses Local and minority-owned businesses are given preference when hiring consultants and contractors 0/4

Housing Score: 0/20

Project diversifies current housing type (design and income) in neighborhood 0/10 Project is built with energy efficiency to reduce utilities for residents 0/10

Transportation Score: 0/20

Project infrastructure provides safe, attractive and convenient access to pedestrian, bicycle and transit 0/5 systems (when possible) Project includes bike parking and storage 0/5 Project incorporates Universal Design 0/5 Project promotes traffic calming and pedestrian safety 0/5

Design/Preservation Score: 0/20

Project includes environmentally responsible materials 0/5 Project design reflects history and culture of the neighborhood, this can be achieved by working with local 0/5 artists to design key aspects of the building/public space Project includes public space and plan for programming 0/5 Project preserves historically significant structures 0/5

Total

Memphis uptown community plan 96 Implementation Draft June 21, 2018

The Memphis CRA: Built to Grow Uptown

The CRA was chartered to review Build Capacity applications for TIF districts and the expenditure of TIF funds. The CRA The CRA must consider whether or not currently manages three TIF districts they have sufficient staff in place to handle across the City of Memphis. We the workload that will come in front of recommend three areas of implementation them once this plan is adopted. Some key consideration be prioritized in the next responsibilities that will likely emerge are phase of work in Uptown: as follows: • Responding to and vetting TIF • Be Proactive applications • Working with partners to make proactive It will be important that the CRA be as • proactive as possible when distributing the investments with the TIF funds they have at their disposal. This plan • Convening partners around • should act as a guide that will help them development/growth incentives for both determine where and how they should the slow market conditions and the sponsor investment. With interest and emerging market conditions momentum in several areas, the CRA will • Organizing institutional, nonprofit, • act as a convener, facilitator, planner, and and government entities around plan investor in the immediate months following objectives the incorporation of the plan. This might include purchasing property, assessing Management Models and building out critical infrastructure, Two management models exist for the CRA partnering with other public/private to consider in guiding TIF deployment and agencies, loaning money into deals, and Uptown growth: other actions as outlined in the plan and • CRA Builds The CRA acts as the the ‘Market-Based Funding Toolkit’. • lead agency and would make direct investments in projects acting as the React Smartly and Master Developer, and Organizer for all Transparently of Uptown. Over time, this would likely entail a dramatic increase to the number While it is critical that the CRA be a of CRA staff assigned to Uptown. proactive doer after the plan is adopted, • CRA Convenes & Creates The CRA acts they will also need to be smart about how • as a lead funder, convener, and master they react to applications that come in planner while assisting in both the front of them to capitalize on the energy creation of new community development and creativity of other institutions and the corporations and the growth of existing private sector. The Uptown TIF Scorecard entities. This approach would require and a process for how it is used should be significant convening and consensus building among multiple parties. finalized in the immediate months following the adoption of the plan. UNAC will play a critical role in scoring applications, but as applicants score their own projects many questions will need to be answered and it will be important that the CRA have the staff capacity to respond to applicants questions about projects and the application process. Implementation 97

Uptown tif boundary Thomas street Thomas

Harbor town

2nd street

Manassas street

7th street

sissippi river arbor Mis H

Chelsea avenue

Wolf river

venueA w willis a

Jackson avenue

North parkway

St. Jude hospital i-69

i-40 A labama avenue

Front street

Main street

Downtown Memphis venueP oplar a

INITIAL focus areas

Memphis uptown community plan Memphis uptown Community plan