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A ULI Advisory Services Panel Report Knoxville Tennessee Building on Momentum: Setting the Stage for Downtown Knoxville’s Future October 5–10, 2014 Advisory Services Panel Report A ULI A ULI About the Urban Land Institute THE MISSION OF THE URBAN LAND INSTITUTE is ■■ Sustaining a diverse global network of local practice to provide leadership in the responsible use of land and in and advisory efforts that address current and future creating and sustaining thriving communities worldwide. challenges. ULI is committed to Established in 1936, the Institute today has more than ■■ Bringing together leaders from across the fields of real 34,000 members worldwide, representing the entire spec- estate and land use policy to exchange best practices trum of the land use and development disciplines. Profes- and serve community needs; sionals represented include developers, builders, property owners, investors, architects, public officials, planners, ■■ Fostering collaboration within and beyond ULI’s real estate brokers, appraisers, attorneys, engineers, membership through mentoring, dialogue, and problem financiers, academics, students, and librarians. solving; ULI relies heavily on the experience of its members. It is ■■ Exploring issues of urbanization, conservation, regen- through member involvement and information resources eration, land use, capital formation, and sustainable that ULI has been able to set standards of excellence in development; development practice. The Institute has long been rec- ■■ Advancing land use policies and design practices that ognized as one of the world’s most respected and widely respect the uniqueness of both the built and natural quoted sources of objective information on urban planning, environments; growth, and development. ■■ Sharing knowledge through education, applied research, publishing, and electronic media; and Cover: City of Knoxville. © 2015 by the Urban Land Institute 1025 Thomas Jefferson Street, NW Suite 500 West Washington, DC 20007-5201 All rights reserved. Reproduction or use of the whole or any part of the contents without written permission of the copy- right holder is prohibited. 2 An Advisory Services Panel Report About ULI Advisory Services THE GOAL OF THE ULI ADVISORY SERVICES program A major strength of the program is ULI’s unique ability is to bring the finest expertise in the real estate field to bear to draw on the knowledge and expertise of its members, on complex land use planning and development projects, including land developers and owners, public officials, programs, and policies. Since 1947, this program has as- academics, representatives of financial institutions, and sembled well over 400 ULI-member teams to help spon- others. In fulfillment of the mission of the Urban Land sors find creative, practical solutions for issues such as Institute, this Advisory Services panel report is intended to downtown redevelopment, land management strategies, provide objective advice that will promote the responsible evaluation of development potential, growth management, use of land to enhance the environment. community revitalization, brownfield redevelopment, military ULI Program Staff base reuse, provision of low-cost and affordable housing, Gayle Berens and asset management strategies, among other matters. A Senior Vice President, Education and Advisory Group wide variety of public, private, and nonprofit organizations have contracted for ULI’s advisory services. Thomas W. Eitler Vice President, Advisory Services Each panel team is composed of highly qualified profession- Beth Silverman als who volunteer their time to ULI. They are chosen for their Director, Education and Advisory Group knowledge of the panel topic and screened to ensure their objectivity. ULI’s interdisciplinary panel teams provide a holis- Daniel Lobo tic look at development problems. A respected ULI member Manager, Awards and Publications who has previous panel experience chairs each panel. Caroline Dietrich The agenda for a five-day panel assignment is intensive. Logistics Manager, Education and Advisory Group It includes an in-depth briefing day composed of a tour of Kathryn Craig the site and meetings with sponsor representatives; a day Senior Associate, Education and Advisory Group of hour-long interviews of typically 50 to 75 key community Natasha Hilton representatives; and two days of formulating recommenda- Associate, Education and Advisory Group tions. Long nights of discussion precede the panel’s conclu- sions. On the final day on site, the panel makes an oral James A. Mulligan presentation of its findings and conclusions to the sponsor. Senior Editor A written report is prepared and published. Laura Glassman, Publications Professionals LLC Manuscript Editor Because the sponsoring entities are responsible for signifi- cant preparation before the panel’s visit, including sending Betsy Van Buskirk extensive briefing materials to each member and arranging Creative Director for the panel to meet with key local community members Deanna Pineda, Muse Advertising Design and stakeholders in the project under consideration, partici- Graphic Designer pants in ULI’s five-day panel assignments are able to make Craig Chapman accurate assessments of a sponsor’s issues and to provide Senior Director, Publishing Operations recommendations in a compressed amount of time. Knoxville, Tennessee, October 5–10, 2014 3 Acknowledgments ON BEHALF OF THE URBAN LAND INSTITUTE, the The panel would also like to thank Knoxville Knox County panel would like to thank the many individuals who assist- Planning Commission staff—Bryan Berry, Terry Gilhula, ed with this process. The team of sponsors from the city Tim Kuhn, Sarah Powell, Nick Schoenborn, Jo Ella Wash- of Knoxville included Rick Emmett, Dawn Michelle Foster, burn, and Alex Zendel—as well as the 140 leaders and William Lyons, Anne Wallace, and Bob Whetsel from the representatives from the community, local businesses, Department of Policy and Redevelopment, and Knoxville’s and organizations and others who agreed to be interviewed elected officials, including Mayor Madeline Rogero and and gave their time and energy to the panel process. the following Knoxville City Council members: Vice Mayor Nick Pavlis, Daniel Brown, Mark Campen, Nick Della Volpe, Duane Grieve, Brenda Palmer, Finbarr Saunders, Marshall Stair, and George Wallace. 4 An Advisory Services Panel Report Contents ULI Panel and Project Staff ...............................................................................................................................6 Background and the Panel’s Assignment ..........................................................................................................7 Study Area and Surrounding Context ...............................................................................................................10 Market Scan ..................................................................................................................................................12 Urban Design Framework ...............................................................................................................................16 Overall Vision .................................................................................................................................................21 Site-Specific Recommendations and Implementation Strategies .......................................................................25 Conclusion ....................................................................................................................................................32 About the Panel .............................................................................................................................................33 Knoxville, Tennessee, October 5–10, 2014 5 ULI Panel and Project Staff Panel Chair Ed Starzec Director, Land Entitlements and Master Planning Leigh Ferguson MassDevelopment Director of Economic Development Boston, Massachusetts Downtown Development District of New Orleans New Orleans, Louisiana Julie Underdahl President/Chief Executive Officer Panel Members Cherry Creek North Business Improvement District Denver, Colorado Angelo Carusi Principal Cooper Carry Inc. ULI Project Staff Atlanta, Georgia Beth Silverman Director, Education and Advisory Group Nick Egelanian President Caroline Dietrich SiteWorks Retail Real Estate Director of Operations, Education and Advisory Group Annapolis, Maryland Andrew Irvine Principal RNL Design Denver, Colorado Mary Konsoulis Consulting for Creative Community Alexandria, Virginia 6 An Advisory Services Panel Report Background and the Panel’s Assignment KNOXVILLE IS THE THIRD-LARGEST city in Tennes- that attracts both working-age and retired residents, see and comprises 104 square miles, or 20 percent of overall quality of life and cost of living, and access to Great Knox County. According to the U.S. Census Bureau’s 2013 Smoky Mountains National Park, the country’s most visited estimates, the population of the Knoxville metropolitan sta- national park. Both Knoxville and Knox County are major tistical area (MSA) is 852,715, making it the 64th-largest hubs for employment and commerce in the region, with MSA, with Knoxville accounting for about 183,270, or 21 major employers in the health care, social assistance, and percent of the total metro population. retail trade sectors. Notable local employers include the University of Tennessee, Knoxville; Oak Ridge National From 2000 to 2013, the population of the Knoxville Laboratory; the Tennessee
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