CENTRALFRANKLINAREAPLAN
Franklin,Tennessee May2004
Central Franklin Area Plan FRANKLIN, TENNESSEE
Franklin Municipal Planning Commission Adopted May 20, 2004
TABLE OF CONTENTS i
STEERING COMMITTEE RESOLUTION...... 1 ACKNOWLEDGEMENTS...... 2 CHAPTER 1: INTRODUCTION...... 1 Planning Area ...... 1 Purpose of the Plan...... 2 Planning Process...... 2 Plan Overview...... 6 How the Plan is Implemented...... 6 CHAPTER 2: BACKGROUND AND TRENDS ...... 7 Land Use Characteristics ...... 7 Historic Trends ...... 8 Implications for Central Franklin...... 9 CHAPTER 3: SMALL-TOWN IDENTITY ...... 11 Introduction...... 11 Coordination...... 12 Historic Preservation ...... 12 Land Use Mix ...... 14 Community Character...... 16 Connections ...... 17 Parking ...... 18 CHAPTER 4: RESIDENTIAL NEIGHBORHOODS...... 21 Neighborhood Preservation and Protection...... 21 Neighborhoods of Special Significance...... 23 Residential Infill...... 24
CENTRAL FRANKLIN AREA PLAN May 2004 ii TABLE OF CONTENTS
CHAPTER 5: GATEWAYS AND CORRIDORS...... 27 Introduction...... 27 Columbia Avenue Corridor ...... 27 Murfreesboro Road ...... 29 Franklin Road ...... 30 West Main Street...... 31 Hillsboro Road...... 32 CHAPTER 6: BATTLEFIELD PRESERVATION ...... 35 Introduction...... 35 Actions...... 38 CHAPTER 7: RIVER ...... 43 Introduction...... 43 CHAPTER 8: LAND-USE STRATEGY ...... 45 Overview...... 45 Design Concepts ...... 46 Land-Use Matrix...... 53 Land-Use Status...... 56 Special Planning Areas...... 58 CHAPTER 9: IMPLEMENTATION TOOLS...... 69 Introduction...... 69 Implementation Tools...... 69 Action Plan Matrices...... 70 Zoning Tools...... 71 Non-Zoning Implementation Initiatives...... 74 APPENDIX ...... 77
May 2004 CENTRAL FRANKLIN AREA PLAN RESOLUTION iii
Franklin Association, Franklin Tomorrow, Save the Franklin Battlefield Association, Natchez Place, Inc., the Transportation Management Association, the Harpeth River Watershed Association, the Hincheyville Neighborhood Association, the Downtown Neighborhood Association Steering Committee Resolution and the African-American Heritage Society;
WHEREAS, the Members of the Central Franklin Area Plan WHEREAS, the Steering Committee has been ably assisted by Steering Committee (the “Steering Committee”) have engaged in the Bob Martin, City Planner; Erin Reinders, Planning Assistant; Shanon following efforts: Wasielewski, Preservation Planner; Kelly Dannenfelser, Senior Planner; • Over 14 months of detailed study and review and consultants from McBride Dale Clarion led by Greg Dale and • 23 public meetings Chris Duerksen; and • Bus trips and walking tours across the Central Franklin Area WHEREAS, subject to final review and comments to be held at a meeting of the Steering Committee at noon, April 2nd at City Hall, • Review of plans and guidelines affecting planning and the the Steering Committee has approved unanimously the Central quality of life in the Central Franklin Area Franklin Area Plan enclosed herewith;
WHEREAS, the Steering Committee appointed five separate NOW, THEREFORE, BE IT RESOLVED that the enclosed Central subcommittees to study specific areas and issues affecting the Central Franklin Area Plan is hereby approved and is to be submitted to the Franklin Area, these subcommittees being the Infill Subcommittee, the City of Franklin Planning Commission; and Hincheyville Subcommittee, the Redevelopment Subcommittee, the 15
Block Subcommittee, and the Battlefield Subcommittee; BE IT FURTHER RESOLVED that a copy of this Resolution shall be
attached to the Central Franklin Area Plan and made a part thereof. WHEREAS, the Steering Committee received reports and recommendations from each of the Subcommittees, all of which has This 16th day of March, 2004. been used in the preparation of the work of the Steering Committee;
By: Central Franklin Area Plan Steering Committee WHEREAS, the Steering Committee has received participation
by and input from approximately 250 citizens;
WHEREAS, the Steering Committee has received input from a number of community organizations, including The Heritage Foundation of Franklin and Williamson County, the Downtown
CENTRAL FRANKLIN AREA PLAN May 2004 iv ACKNOWLEDGEMENTS
Acknowledgements PROJECT STAFF CONSULTANTS Bob Martin, Planning Director Greg Dale, McBride Dale Clarion Shanon Peterson Wasielewski, Preservation Planner Christopher Duerksen, Clarion Associates Erin Williamson Reinders, Assistant Planner Darcie White, Clarion Associates Kelly Dannenfelser, Senior Planner Tina Axelrad, Clarion Associates Nedra Jones Tara Mielnick 15-BLOCK SUBCOMMITTEE Scott Harrison, Co-Chair CITY ADMINSTRATION Paul Arnold, Co-Chair Tom Miller, Mayor Linda Berry Jerry Sharber, former Mayor Karen Cochran Jay Johnson, City Administrator Gil Given Bob Haemmerlein STEERING COMMITTEE Robanne Legon Julian Bibb, Chairman Denise Klatt Dan Klatt, Alderman Margaret Martin Bob Barnwell, County Commissioner Mort Stein Pete Flaugher, Planning Commissioner Nancy Williams Paul Arnold Tommy Shell Pearl Bransford Tree Diffendal REDEVELOPMENT SUBCOMMITTEE Al Gregory, Jr. Julian Bibb, Chair Scott Harrison Peggy Dughman, Executive Director, Franklin Housing Authority Calvin Lehew Bob Martin, Planning Director, City of Franklin Susan Minor, Executive Director, Franklin Tomorrow
May 2004 CENTRAL FRANKLIN AREA PLAN v ACKNOWLEDGEMENTS
Nancy Williams, Executive Director, Downtown Franklin Association Marge Moore Scott Harrison, Planning Commissioner Dan Klatt, Alderman, City of Franklin BATTLEFIELD SUBCOMMITTEE Bob Barnwell, County Commissioner Bob Martin, Chairman Pearl Bransford, Executive Director, Natchez Place, Inc. Beth Adams Doug Hale, Attorney Paul Arnold Doug Berry, Attorney, City of Franklin Bob Barnwell C.D. Berry, General Counsel, Franklin Housing Authority Pearl Bransford Lela Denson, Manager, Carrie Wilson Project Tree Diffendal Stacey Watson McRight Jay Franks Paul Gaddis INFILL SUBCOMMITTEE Al Gregory, Jr. Phil Pace, Chairman Sam Huffman Thelma Battle Patty Kriebel Elbert Cox Mary Pearce Pete Flaugher Lillian Stewart Thelma Gosey Dan Klatt Calvin Malone Eddie Martin Lillian Stewart
HINCHEYVILLE SUBCOMMITTEE James A. Crutchfield Tina Jones Robert Kriebel Bob Poe Ann Little Howard Nixon Robanne Legan Randall Hawks Larry Westbrook
May 2004 CENTRAL FRANKLIN AREA PLAN
INTRODUCTION 1
plan for Central Franklin was also reinforced by the large number of stakeholders and organizations already focusing their efforts on various issues within the planning area. The Central Franklin Area Land Use Plan will function as an extension of the citywide plan, and, in fact, many of the overarching concepts used in the citywide plan Chapter 1: Introduction have been incorporated. Common concepts are described in more detail as appropriate throughout the chapters of this document, with a particular emphasis on Chapter 8, Land Use Strategy.
Planning Area The Central Franklin planning area encompasses nearly 4,000 of the BERRYS C H APEL City of Franklin’s 18,726 acres and includes the downtown, or 15- Block Area, as well as many of the City’s historic residential neighborhoods. The planning area is one of nine geographic areas, WEST HARPETH or “Character Areas”, that were identified during the development of CENTRAL FRANKLIN MCEWEN the Franklin Land Use Plan, adopted on February 19, 2004. The Character Areas were identified to allow for the development of a distinctive vision and community identity within each area, as well as to SEW ARD H ALL allow the application of specific policies and recommendations within SO UTHALL CARNTON each area to address unique issues and circumstances.
During the development of the Franklin Land Use Plan, the importance of the Central Franklin Character Area as the “core” of the community GOOSE CREEK was recognized, and it was determined that a more detailed study would need to be conducted to adequately address specific issues MCLEMORE being faced. The character of Central Franklin is the model that should affect and influence the vision of the citywide plan and upon which Franklin’s future as a city should be based. The success of Central Franklin must be the first priority to ensure the vitality that Figure 1—“Character Areas” as defined by Franklin Land Use Plan. permeates the entire city. The need for a more strategic and cohesive
CENTRAL FRANKLIN AREA PLAN May 2004 2 INTRODUCTION
perhaps most importantly, identifies the necessary “next Purpose of the Plan steps” the community must take in order to achieve the Many of the issues identified and addressed by this plan are not new. implementation of its goals for Central Franklin. In some cases they overlap with those identified by the citywide Land Use Plan and are addressed in greater detail here; in other cases, they have been addressed at a broad level by one or all of three recent Planning Process planning efforts completed for areas within or relevant to Central The planning process was designed to provide opportunities for Franklin (Historic Preservation Plan, 2001; Downtown Franklin Retail community input at a variety of levels, ranging from community Strategy, 2001; and Parking Study, 1998) and have yet to be attendance and participation during regular steering committee adequately resolved in the eyes of the community. The intent of this meetings to one-on-one interviews with key project stakeholders. The plan is not to replace the recommendations of any of these tools or to following is a brief summary of each element of the process: downplay the ongoing efforts of the many stakeholders and organizations that have played a significant role in the progress that STEERING COMMITTEE has been made to date in achieving the community’s objectives for A twelve-member Steering Committee was formed to provide oversight Central Franklin. Nor is it intended to be a true “downtown plan” that to the planning process and was comprised of residents, elected and focuses solely on the downtown or historic core of the City. Rather, this appointed officials, property owners and local business representatives plan is intended to serve as a unified guide and central coordinating chosen to help guide the future direction of Franklin’s core. Steering mechanism for the future of Central Franklin that: Committee meetings were generally held monthly, from February emphasizes the interrelated nature of Central Franklin’s 2003 through March 2004, although meetings were not held from diverse neighborhoods and its historic commercial core as a July 2003 through September 2003 while a series of subcommittee key to its long-term success and vitality; meetings were held in which many Steering Committee members were involved. The meetings were open to the public and were regularly synthesizes and builds upon the previous work efforts and attended by many citizens. successes of the City, the stakeholders and numerous
organizations already active in Central Franklin; STAKEHOLDER INTERVIEWS complements the citywide recommendations of the Central Project team members conducted numerous one-on-one interviews as Franklin Area Plan; well as several group interviews with key project stakeholders during focuses on broad issues as they pertain to all of Central the initial phase of the planning process to gather background Franklin, not just specific geographic areas within it; and, information and to obtain a variety of perspectives on Central Franklin’s issues. The interviewees were identified by the City staff and included, among others, local business owners and representatives,
May 2004 CENTRAL FRANKLIN AREA PLAN INTRODUCTION 3
residents, property owners and elected and appointed officials. Many of the interviewees were selected for their previous or ongoing MARKET RECONNAISSANCE involvement in related planning efforts or in organizations active within Central Franklin. A targeted reconnaissance of Central Franklin’s market conditions was conducted during the first phase of the planning process. The result of this effort was not a full market study, but rather an analysis of general ISSUE IDENTIFICATION market trends in Central Franklin, as well as in the city as a whole. The As part of the project kickoff meeting held in February 2003, an Issues analysis provided insight into the potential impacts of current market workshop was held with the Steering Committee and with members of trends on future retail, office and residential opportunities. Existing the public. The purpose of the exercise was to identify the range of market data assembled for a 2001 Retail Strategy Report, prepared by issues to be addressed by the plan. Over 100 issues were identified as Economics Research Associates, was relied upon heavily for the retail part of the workshop. Based on a synthesis of the results of the analysis. Additional analysis was based largely on interviews with workshop, a recommended list of issues was developed by the individuals and organizations with knowledge of local market consultant and presented during the April 2003 Steering Committee conditions and activities. Meeting. The key issues recommended and approved by the Steering Committee included: STATUS REPORT FROM OTHER ORGANIZATIONS
Small-Town Identity To increase awareness and understanding of ongoing efforts by other organizations within Central Franklin, the April Steering Committee Neighborhood Preservation/Protection meeting was largely devoted to a series of presentations by Residential Infill representatives of these organizations. Presentations were given by representatives of the following: Gateways and Corridors Historic Preservation City of Franklin Park and Recreation Department Battlefield Preservation Franklin Housing Authority The Harpeth River Williamson County The early identification of these issues enabled the team to focus work City of Franklin completed during subsequent Phase I tasks in these key areas. Franklin Tomorrow Although a number of offshoot issues were identified during the course of the work effort, most were linked fairly closely to the initial list and Heritage Foundation of Franklin and Williamson County are addressed within the Plan as such. Downtown Neighborhood Association
CENTRAL FRANKLIN AREA PLAN May 2004 4 INTRODUCTION
Harpeth River Watershed Association Central Franklin has a strong Protection of these resources is Natchez Place, Inc. historic heritage—many historic spotty—still have critical mass, but structures have been retained and need to prevent future losses restored DIAGNOSIS NEIGHBORHOOD PRESERVATION/PROTECTION In order to summarize the Phase I analysis and issue identification Downtown residential Several outer neighborhoods in process, a diagnosis report was presented to the Steering Committee neighborhoods are attractive and Central Franklin are in need of at the May 8, 2003, meeting. The diagnosis provided a summary of stable attention existing conditions, trends and issues facing Central Franklin, as well Central Franklin has a strong Protection of these resources is as a diagnosis of each key issue, including the strengths and historic heritage—many historic spotty—still have critical mass, but weaknesses evident for each and a proposed policy direction that structures have been retained and need to prevent future losses could be incorporated into the completed Plan to address each issue. restored The conclusions or findings of the diagnosis provided an overview or RESIDENTIAL INFILL recent successes in key issue areas and identified the challenges yet to Market for residential infill is Need tools to ensure that infill is be faced. These conclusions are shown below and have been strong and can be used to help compatible—don’t put existing grouped according to their relevance to one or more issues. bolster downtown vitality stable neighborhoods at risk GATEWAYS AND CORRIDORS Conclusions/Findings Central Franklin has several Long-term protection needs to be SUCCESSES CHALLENGES scenic gateways—Franklin Road, secured, and other gateways and Columbia Avenue, Murfreesboro corridors are in serious need of SMALL TOWN IDENTITY Road, etc. improvement Great success in improving the Downtown businesses may be RIVER appearance of downtown “fragile” beneath the strong Have a scenic river, Pinkerton and Linkages/gathering places on the (streetscape improvements, appearance Fort Granger Park create access downtown side of the river needed, renovations) and in attracting new and amenities along the river river underused businesses GENERAL ISSUE City and County have been active Parking is still perceived to be a in addressing parking issues in major problem for many Main Numerous stakeholder groups Need to gain consensus on how to downtown Street businesses have made efforts or have combine/focus efforts and resources ongoing efforts underway in all for maximum impact—City role City has a “historic hook” for The historic experience is not well “issue” areas critical; County especially needs to tourists (Battlefield, etc.) organized be a major player
May 2004 CENTRAL FRANKLIN AREA PLAN INTRODUCTION 5
SUBCOMMITTEES development; overhead utilities; tree cutting; and transitional land uses As the Steering Committee began its work to address the five key along New Highway 96 West. issues identified during the first phase of the process, it was determined that a series of subcommittees would be formed. The intent of the Fifteen-Block Area (Downtown Core) subcommittees was to allow additional time and focus to be placed on The Fifteen-Block Area Subcommittee was asked to identify short- and specific aspects of the issues that had emerged from the Steering long-term issues that the fifteen-block area faces and to establish Committee’s ongoing discussions, as well as to respond to the high desired policies and actions for the area to be included in the Central level of interest demonstrated by members of the community and Franklin Area Plan. Although the area is clearly influenced by organizations active in Central Franklin wanting to play a more active adjacent areas and uses, the group’s efforts were focused solely on role in the development of the Plan. Five subcommittees were formed, the fifteen-block area to avoid duplicating the efforts of the Infill and comprised of project stakeholders and interested citizens recruited and Redevelopment Subcommittees. assigned by members of the Steering Committee. Infill A brief description of the goals assigned to each group is provided below. The Infill Subcommittee was formed to identify specific sites in Central Franklin that might offer opportunities for infill residential development and to identify areas where appropriate infill would be a positive Redevelopment contribution to the community and surrounding neighborhood. In The Redevelopment Subcommittee was asked to focus on the potential addition, the Subcommittee was asked to identify potential issues of use of a redevelopment authority in key areas of Central Franklin to compatibility that infill development would need to address in order to serve as a catalyst for improvement. The group’s efforts involved be compatible with the scale and character of the surrounding extensive research on existing State Legislation and an ongoing dialog neighborhood and the type of residential use or uses that would be with the Franklin Housing Authority and key City staff and elected most appropriate for each site. officials. Battlefield Hincheyville The Battlefield Subcommittee was asked to complete a number of The Hincheyville Subcommittee was asked to identify short- and long- tasks related to Battlefield interpretation and preservation within term issues that the Hincheyville neighborhood faces and to establish Central Franklin. These tasks included: desired policies to be included in the Central Franklin Area Plan. Discussions included ongoing property maintenance issues; the 1. the identification of key sites and pertinent background potential need for a historic overlay or other protection mechanism to information such as the current use of the site, surrounding protect against incompatible additions and potential new land uses and potential issues and concerns;
CENTRAL FRANKLIN AREA PLAN May 2004 6 INTRODUCTION
2. establishing a rank as to the relative importance and integrity The guiding principles outlined in Chapters 3 through 7 are the of the sites; highest statement of land-use policy for Central Franklin. They represent the values and attitudes of the community as reflected during 3. identification of possible linkages between sites, such as numerous one-on-one interviews conducted by the project team and those clustered in a localized area (the downtown core is an monthly meetings of the steering committee, which were open to and example), versus those scattered throughout the community have been attended by many members of the public. or those parts of a larger group of regional sites; 4. establishing a set of goals or guiding principles for Battlefield Preservation to be incorporated as policies into the Central How the Plan is Implemented Franklin Area Plan; and The Plan is implemented by the actions of the City and various 5. the definition of parameters of a Battlefield Preservation Plan community groups. The recommended actions contained in Chapters to be completed at a later date. 3 through 7 are of primary importance. They provide direction on specific actions that will be taken to address key issues. The implementation tools contained in the Action Plan support the Plan Overview identified actions. The guidelines outlined for each Design Concept in The Plan document is comprised of four key components that can be the Land Use Strategy in Chapter 8 are also important, since they will summarized as follows: be used as tools for the City when reviewing specific development projects within a Design Concept area in conjunction with more 1. a summary of Central Franklin’s existing land use traditional review mechanisms. characteristics, demographics and residential and market trends (Chapter 2); The planning process and the implementation of the Plan are dynamic and ongoing. This document should be reviewed periodically and 2. a detailed discussion and set of recommended actions revised as needed to reflect changing conditions and changes in the specific to each of the six key issues that emerged from the aspirations of the Central Franklin community. planning process (Chapters 3-7); 3. a discussion of the City’s approach in addressing future land use patterns in Central Franklin (Chapter 8); and 4. a discussion of specific implementation tools that will be used to implement the recommended actions of the Plan (Chapter 9).
May 2004 CENTRAL FRANKLIN AREA PLAN BACKGROUND AND TRENDS 7
major travel corridors, such as I-65, that tend to attract and have the capacity for high-intensity uses that are more typical of the Cool Springs area.
Table 1: Existing Land Use—Central Franklin LAND USE ACRES % TOTAL Chapter 2: Background and Trends Agricultural 302 8 Commercial 110 3 Industrial 133 3 Land Use Characteristics Mixed Nonresidential 17 0 The city of Franklin encompasses approximately thirty-three square Mixed Residential 7 0 miles, of which Central Franklin comprises six square miles. Its land- Mixed Use 46 1 use characteristics are largely defined by the presence of the historic Office 35 1 downtown commercial core and its surrounding historic residential Public 488 12 neighborhoods. The core area contains a fairly diverse mix of uses, including housing, retail and commercial services, offices and an array Duplex Residential 35 1 of institutional uses. Developable Residential 312 8 Recreation/Open Space 243 6 The residential neighborhoods surrounding the core area encompass Multifamily Residential 173 4 over forty percent of Central Franklin’s nearly 4,000 acres. The majority of these neighborhoods are comprised of single-family, Single-Family Residential 1178 30 detached homes, although a small number of duplexes and Vacant 406 10 multifamily dwellings exist in some of the planning area. Commercial Right-of-Way 475 12 and office uses in Central Franklin are concentrated in the downtown Total 3,960 100 core and along major corridors and comprise 145 acres (four percent) of the total land area. In contrast, the city of Franklin as a whole has 1,441 acres of commercial and office uses. This is indicative of Since much of Franklin’s growth in the past 50 years has radiated Central Franklin’s somewhat constrained setting in terms of land outwards from the original downtown core, Central Franklin’s land use availability and natural features, as well as its location away from pattern is much more established than that of the surrounding City. A
CENTRAL FRANKLIN AREA PLAN May 2004 8 BACKGROUND AND TRENDS
total of 1,000 acres (twenty-four percent) of Central Franklin’s total RESIDENTIAL MARKET TRENDS land area is potentially available for future development, as opposed The Franklin residential market has been and continues to be strong. to 6,300 acres in the citywide planning area. Vacant land represents, In recent years residential market trends have been moving towards a 400 acres (ten percent); developable residential land represents 300 mix of conventional subdivisions and more “neotraditional” acres (seven percent); and agricultural land represents 300 acres neighborhoods, with rear alleys, detached garages and smaller lots. (seven percent). The extent of the land that can actually be considered With many buyers “downsizing” from large, suburban/exurban estate for future development is heavily influenced by environmental factors homes on one-acre-plus lots in surrounding communities and an that include steep slopes and the extensive floodplain of the Harpeth increase in first-time home buyers, demand for smaller-lot single- River and its many tributaries. Approximately 33% of the total area of family and attached single-family dwellings has been high, as well as the Central Franklin area is in the 100-year or 500-year floodplain. for multifamily condominiums.
Historic Trends Central Franklin’s residential neighborhoods have traditionally consisted primarily of single-family dwellings, with a limited assortment POPULATION AND HOUSEHOLD INCOME of attached single-family and multifamily dwellings. The character of Although Franklin’s citywide population more than tripled between the neighborhoods ranges from stately Civil War-era homes in and 1980 and 2000, from 12,407 to 41,842, Central Franklin’s growth immediately surrounding the fifteen-block area, to small bungalows was less dramatic due to its age and distinct land-use characteristics. built during the 1940s and 1950s, to a variety of more traditional subdivisions constructed within the last fifty years. Although some Franklin boasts some of the highest household incomes in the state smaller vacant lots remain throughout the area, Central Franklin’s and region. In addition, average incomes have increased at a higher neighborhoods are largely developed. The predominance of single- rate than the national or statewide averages. The average household family detached dwellings and the limited availability of vacant land income for 1999 was $56,340 in Franklin, $41,995 in the nation and have contributed to an increased demand for diverse housing within $36,360 in Tennessee. In 1989 the average household income in Central Franklin, both in terms of the type of unit and in cost. Infill Franklin was $32,350 as compared to $30,055 in the nation and development has not yet caught on in Central Franklin’s $24,805 in Tennessee. Central Franklin, however, includes some of neighborhoods, although many who work in the real estate industry the City’s lowest income neighborhoods, alongside high income feel the opportunity is strong with the unique combination of amenities areas. available within the downtown core area.
May 2004 CENTRAL FRANKLIN AREA PLAN BACKGROUND AND TRENDS 9
RETAIL MARKET TRENDS neighborhoods must be stabilized to ensure their continued health and In recent years, the downtown core has maintained the appearance of longevity. In other cases, declining neighborhoods must be being relatively healthy, with the addition of several new shops, reinvigorated. The demand for alternatives to detached single-family restaurants, and a new City parking structure to support retailers. dwellings is not being met in Central Franklin. However, interviews with numerous downtown property owners and merchants indicate that, in reality, downtown’s health remains The limited variety and high cost of existing housing is also having an relatively fragile. impact on retail services in the downtown core. As discussed above, the downtown retail environment remains fragile, and increasing Recent efforts have focused heavily on the implementation of a 2001 housing opportunities in the core area can contribute to its long-term Downtown Retail Strategy prepared by Economics Research Associates stability. New house types would also diversify the pool of customers for the Heritage Foundation of Franklin and Williamson County and from which to draw retail business. Other avenues of strengthening Downtown Franklin. The areas of focus have included the expansion the downtown core will also need to continue to be pursued, including of downtown’s ability to meet the day-to-day needs of nearby residents the attraction of new businesses. and the need to attract and maintain a mix of local and national retailers. Starbucks Coffee, Chico’s, Ben and Jerry’s Ice Cream, Although some amount of growth will be necessary for Central Mellow Mushroom and Baskin Robbins are currently the only national Franklin to continue to thrive as the City’s core, change will, above all, retailers operating in downtown. However, several other national need to be sensitive to its historic character and small-town identity. specialty stores have expressed an interest in relocating to Central Franklin, but a lack of larger storefronts suitable for national retail tenants, as well as ongoing issues with the availability, distribution and management of parking have continued to plague efforts to attract them. Also a factor in the stability of downtown’s retail tenants has been an increase in rents driven by a high turnover of buildings along Main Street and Fourth Avenue. There were thirteen buildings sold or for sale in 2002. Implications for Central Franklin Although its rate of growth has languished in past decades, recent trends indicate a strong need to focus a percentage of the City’s future growth in targeted areas of Central Franklin. In many cases, existing
CENTRAL FRANKLIN AREA PLAN May 2004 10 BACKGROUND AND TRENDS Existing Land Use H atc her CENTRAL FRANKLIN Pa rkw ay
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May 2004 CENTRAL FRANKLIN AREA PLAN SMALL TOWN IDENTITY 11
identity. The City recognizes that the downtown core is very much a work in progress and that its continued health and viability should remain a high priority. It is critical that the City maintain downtown as the heart of the community—a civic and institutional center that provides an attractive and familiar place for residents to gather, to Chapter 3: Small-Town Identity recreate and to meet their day-to-day needs. The City also recognizes the need to expand and enhance marketing efforts for Central Franklin’s many historic resources in order to expand its tourism base; however, it also recognizes that an emphasis should be placed on preserving the “real town” characteristics of the downtown core in order to ensure that it remains first and foremost an area that serves Priority Actions to Protect Central Franklin’s Small-Town Identity Franklin residents. Assume a strong leadership role in the coordination and implementation of ongoing planning efforts Central Franklin’s small-town identity is comprised of a variety of Expand marketing of Franklin’s historic resources at a regional elements, each of which is related to the role and function of the and national level downtown core within the larger community. This chapter breaks Remove regulatory barriers to compatible infill and down the critical elements of “small-town identity” into a series of redevelopment within the downtown core discrete issues that must be addressed to ensure that Central Franklin’s Integrate the City’s existing trail network with the existing small-town identity and livability will be protected. A discussion of key pedestrian network in the downtown core issues relative to each element, and a set of recommended actions, Complete a Parking Master Plan to evaluate current and future are provided. Critical elements include: parking needs 1. Coordination; 2. Historic Preservation; 3. Land-Use Mix; Introduction 4. Community Character; One of Franklin’s most valuable assets is its “small-town identity”. 5. Connections; and While this is a difficult concept to define, the existence of a historic 6. Parking. core and a traditional downtown is a major part of that small-town
CENTRAL FRANKLIN AREA PLAN May 2004 12 SMALL TOWN IDENTITY
Coordination Historic Preservation Numerous individual stakeholders and public and private organizations are active in the day-to-day operations of and long- range planning for the downtown core. This type of commitment from the community at large has been a critical factor in the downtown core’s improvement over the past twenty years. However, one of the greatest issues to emerge from the planning process as a result of this broad level of interest and involvement is a general frustration regarding the lack of a unified leadership to oversee the coordination of these many autonomous groups and individuals. Therefore the following actions will be pursued:
ACTIONS 1. The City will assume a strong leadership role in the coordination and implementation of the many recent and continuing planning efforts in Central Franklin. 2. The City will continue to work with downtown businesses, churches and other institutions and interest groups to Historic preservation has had a formal role in Franklin’s day-to-day facilitate parking and to address other continuing concerns existence for nearly forty years, beginning with the formation of the related to the overall health and viability of the core. Heritage Foundation of Franklin and Williamson County in 1967 to perform activities such as surveying historic resources, nominating 3. The City will work to engage Williamson County in properties to the National Register of Historic Places, sponsoring collaborative planning, which is particularly important since educational programs and buying and selling historic buildings. In the County has a major physical presence in Central Franklin 1972 the Franklin Historic District, encompassing the original fifteen- through its many facilities and property holdings. block town plat, was listed on the National Register of Historic Places. A survey of the City’s architectural resources was completed in 1986 and was resurveyed in 1999, resulting in the expansion of the Franklin Historic District and the addition of several other properties to the National Register. The formation of the Franklin Main Street Program
May 2004 CENTRAL FRANKLIN AREA PLAN SMALL TOWN IDENTITY 13
in 1978 also played a significant role in the preservation of Central Franklin’s historic resources. Started by the Heritage Foundation of Franklin and Williamson County, the program began in response to a pattern of economic decline in the downtown area and has had dramatic results, including the rehabilitation of twenty-eight buildings and a general improvement of downtown’s pedestrian environment. These efforts were recognized in 1984 when the City became an official Tennessee Main Street City.
Despite these significant successes there is still much work to be done. The historic preservation overlay districts in Central Franklin are designed to ensure the compatibility and appropriateness of any proposed changes. However, according to current City policy, the districts can only be designated at the request of property owners and by approval of the Board of Mayor and Aldermen, leaving some areas vulnerable. Pressure for infill and redevelopment has also been a concern within the downtown core, because it has resulted in the loss of numerous unprotected historic structures in order to make room for 2. The City will continue to work with the above-mentioned surface parking or other support uses. This reality has proved groups to expand marketing of Franklin’s many historic challenging to many, since infill and redevelopment are acknowledged resources at a regional and national level with an expanded as desirable and even critical to the long-term health of the area. visitor’s center, Civil War battle interpretation and promotional material, recognizing that much of the original The City will take the following actions to advance historic preservation battlefield is now developed. efforts in Central Franklin: 3. The City will regularly update and maintain a database and map of identified historic resources in Central Franklin. ACTIONS 4. The City will encourage compatible infill and redevelopment 1. The City will continue to coordinate its historic preservation within the downtown core through the development and efforts with the Heritage Foundation and other groups to implementation of a new zoning district that encourages work towards the implementation of the strategies set forth in ground-floor retail, tailors setbacks and other dimensional the Historic Preservation Plan. regulations to the historic character of the core, improves
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pedestrian and vehicular circulation standards and to try to maintain a downtown comprised of only local businesses or to establishes high standards for the design of new structures allow—or even encourage—national chains to locate in the and parking areas. downtown. On the one hand, smaller independent stores allow the 5. The City acknowledges the importance of the West Main Street corridor as a critical connection to the fifteen-block area. Ongoing efforts will be placed on program-oriented improvements and on the preservation of historic structures. 6. The City will strongly discourage the demolition of additional structures within the downtown core to create surface parking. Interim revisions to existing parking standards will be developed to address shared parking, demolition for parking and structured parking design until a formal parking study can be conducted following the opening of the Fourth Avenue parking structure in 2004. 7. The City will pursue the development of a neighborhood conservation program to promote the stabilization and preservation of neighborhoods that, although important from a heritage resource standpoint, may lack the architectural integrity or other characteristics that would make them eligible for inclusion as part of a National Register District. City to retain its unique identity and to support the local economy Land Use Mix while, on the other hand, national stores attract a broader segment of Central Franklin has traditionally been a true mixed-use neighborhood the population, they can pay higher rents, and they are generally less that included homes and businesses, as well as churches and other likely to falter during economic downturns. institutional uses. As is the case with many smaller cities around the country with historic downtowns, Franklin has struggled to identify the A 2001 Downtown Retail Strategy (see Appendix), prepared for the “ideal” mix of uses that will help to ensure the long-term health and Heritage Foundation of Franklin and Williamson County, strongly vitality of its core—as a neighborhood, a government center and a encouraged the expansion of the retail base within the core to include commercial district. At the crux of the issue is the dilemma of whether a broader mix of uses, such as additional “sit-down” restaurants, an
May 2004 CENTRAL FRANKLIN AREA PLAN SMALL TOWN IDENTITY 15
upscale food market, a local hardware store to serve nearby residents downtown core is also acknowledged as an important factor in and additional home furnishing retailers. A targeted list of national creating additional market support for existing and future businesses. retailers to potentially pursue was also suggested to draw on the Townhouses and accessory and loft apartments above retail shops are several of the housing concepts being discussed for the area. This issue is addressed in greater detail in Chapter 4: Residential Neighborhoods and in Chapter 7: Land Use Strategy.
An important component of the downtown core’s land-use mix is also the continued presence of the Williamson County courthouse and offices, the City of Franklin offices and numerous historic churches. In addition to their symbolic value to the Central Franklin community, each of these institutional uses contributes significantly to the vitality of the core through the day-to-day presence of their employees, visitors and members. The presence of the City and County facilities is likely to remain downtown for the time being, given the recent investment by both agencies in parking structures for their facilities, but these should be monitored for any change in status. Several churches are in danger of being relocated to “greenfield” sites outside of Central Franklin due to large increases in their congregations that strain the limits of their downtown sites. This presents a critical dilemma for the downtown core. The churches have demonstrated a long-term investment and commitment to the Central Franklin area, and they area’s excellent demographics. Based on the Retail Strategy’s continue to attract thousands of people to the area each week, which recommendations, a great deal of discussion and effort has been adds liveliness to the downtown and to the potential customer base. focused on this issue by the Downtown Franklin Association, working However, growing congregations can present expansion pressure that in conjunction with downtown merchants and property owners. As a can have negative impacts on surrounding neighborhoods and lead to result of these efforts, several new home furnishing stores, an upscale the disintegration of historic fabric for parking and larger facilities if food market and several restaurants have opened since 2001. they are not properly designed and managed.
The use of residential infill as a means of broadening the range of housing types available in the traditionally single-family-dominated
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The following actions will be taken to ensure the retention of critical character and its attractive pedestrian environment that allows them to existing uses and the attraction of desirable new uses within the stroll downtown streets and frequent the area’s shops and restaurants. downtown core: Since the designation of downtown as an official Tennessee Main ACTIONS Street Town in 1994, significant improvements have been made. The 1. The City recognizes that, while great strides have been made in attracting new, desirable tenants and uses to the downtown area, this success is recent and is still fragile, and its long-term sustainability is not guaranteed. To promote the long-term stability of the downtown core, a mix of local and national retail users will continue to be targeted, based upon the recommendations of the Downtown Retail Strategy. 2. The City will continue to coordinate its ongoing planning efforts within the downtown core with the efforts of the Downtown Franklin Association, Franklin Tomorrow and other organizations actively working in the area. 3. The City will support efforts to maintain ground-floor storefronts for retail and restaurant uses through the development and implementation of a new zoning district that encourages such use. 4. The City will continue to work closely with existing churches in the downtown core to address long-term planning issues and support their continued presence in Central Franklin. renovation of nearly thirty buildings was enhanced by major streetscape improvements completed along Main Street in 1991 that Community Character included street-tree plantings, brick sidewalk treatments and pedestrian The appearance and character of the downtown core’s public spaces crosswalks and parking improvements. Additional desired plays an important role in its continued health and vitality. Visitors and improvements included the extension of streetscape improvements in residents alike are drawn to Central Franklin because of its historic key areas and the relocation of all overhead utilities underground.
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residents to walk less and to rely much more heavily on the use of the The following actions will guide future streetscape planning efforts in car to meet their basic daily needs. the downtown core:
ACTIONS 1. The City will develop and adopt streetscape standards for streets in the downtown core to establish a uniform appearance and to ensure the continuity of planting strips and sidewalk treatments. 2. The City will employ a cooperative approach with developers to ensure that, as redevelopment occurs, all utilities are ultimately placed underground. Connections In its early days, Central Franklin was a very “walkable” community. Narrow streets lined with street trees and detached sidewalks encouraged residents living in neighborhoods surrounding the downtown core to easily walk to most everything they needed—shops, restaurants municipal services and places of employment. During the past century Franklin expanded outward from the core to accommodate the needs of a rapidly growing population. The result of this outward expansion was a less-accessible, less-unified A continuous, well-defined network of sidewalks, trails and other community. New neighborhoods were often inwardly oriented and pedestrian connections helps to ensure that downtown businesses and lacked the core’s successful framework of interconnected streets and services are easily accessible to visitors and residents and that sidewalks, as well as connections to the broader community. Over important linkages to nearby parks, open spaces and residential time, this pattern of development has resulted in a compact neighborhoods are established. Alternative connections to the community comprised of a series of neighborhoods that are detached downtown core must also be provided from other active centers within from one another, as well as the downtown core. This has forced the City and region. Franklin and Williamson County have been active in pursuing this goal, working with the Franklin Transit Authority
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and the Transportation Management Association. In the spring of 5. The City will continue to coordinate ongoing planning efforts 2003, trolley service began, providing important linkages for residents with those of the Franklin Transit Authority and the and visitors between the downtown core, the Factory, Cool Springs Transportation Management Association to ensure that Galleria, the Marriott Conference Center, Franklin and Centennial Central Franklin continues to be served by a variety of modes High Schools, Williamson Medical Center, the County Administration of transportation. Complex and the Community Services Complex. The commencement 6. The City will work to implement the recommendations of any of this service represents an important step in reconnecting the current or future park or walkability master plans. downtown core to Franklin as a whole.
The City will take the following actions to begin to establish a more integrated and continuous network of sidewalks, trails and bike paths within Central Franklin:
ACTIONS 1. The City planning department will continue to coordinate its ongoing efforts with other City departments to identify and implement opportunities to integrate the existing trail system with the existing pedestrian network in the downtown core. A particular emphasis will be placed on opportunities to connect the Harpeth River to the downtown core and the outlying neighborhoods. 2. The City will pursue the implementation of the Major Thoroughfare Plan’s recommendation to extend First Avenue North to the north from its present terminus. 3. The City will continue to coordinate the maintenance of existing sidewalks and trails and work to identify and Parking establish new connections as opportunities arise. The provision of an adequate amount of parking in convenient 4. The City will work to implement the recommendations of the locations continues to be a concern of local businesses striving to 2003 Bicycle and Pedestrian Master Plan. achieve and to maintain vitality in the downtown core. In particular,
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an increase in retail uses is needed to achieve a successful critical 2. The City will work with the Downtown Franklin Association mass, and current parking deficiencies will become more acute as and other organizations to develop a coordinated parking additional retail is targeted. The parking needs of downtown’s retail management strategy to better serve all downtown tenants. businesses also must be balanced with those of the many public and The strategy will focus on monitoring parking demands and institutional uses in the core that must provide parking for their many availability on an ongoing basis, and will allow specific employees and visitors. The Downtown Franklin Association plays a needs to be identified and addressed in a systematic way. major role in the day-to-day coordination and management of existing 3. The City will continue to encourage and facilitate shared parking supplies, leasing and maintaining church parking lots on the parking as a means of addressing peak/off-peak parking north side of Main Street for employee parking and issuing permits for demands. Shared parking potential exists when businesses all-day parking. In addition, the City has collaborated with Williamson or other uses have little overlap in their peak hours of County and has made substantial investments to address this problem, operation. Previous partnerships have been formed between including the construction of a 302-space public parking structure downtown churches and businesses. near City hall (completed in 2002) and the construction of a 302- space parking structure at the County office complex that will be 4. The City will review existing parking regulations within the completed in 2004. Despite these efforts the issue continues to be a downtown core and develop a set of interim revisions to the long-term need that will require attention from the City. standards to remove potential barriers to infill and redevelopment. Interim regulations will be designed to The following actions will be taken with respect to the supply and address shared parking, demolition for parking, parking-lot management of parking in the downtown core: screening and structured parking design until a formal parking master plan can be conducted following the opening ACTIONS of the County’s parking structure. The demolition of additional structures within the downtown core to create 1. The City will work with the County and other organizations to surface parking will be strongly discouraged. prepare a Parking Master Plan. The plan will evaluate current and future parking needs and availability with the 5. The City will continue to work closely with existing churches broader retail goals of the downtown core in mind, ensuring in the downtown core, the Downtown Franklin Association adequate capacity to allow for future growth, the attraction and the Transportation Management Agency to address of national tenants and high retail visibility. The location and short- and long-term parking needs and alternative accessibility of future parking structures within the downtown transportation opportunities, such as a potential shuttle core will also be evaluated. service to serve downtown churches during peak hours on Sundays or carpool incentives for church members.
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and maintenance. Other neighborhoods outside of the historic district are becoming vulnerable to development pressures and in some cases are beginning to show signs of disinvestment and neglect. In some of these neighborhoods, residents feel disconnected from the rest of the Chapter 4: Residential Neighborhoods community.
The City has made efforts to protect many of the historic areas through the use of historic zoning. However, the application of this zoning is at Priority Actions to Protect Central Franklin’s Neighborhoods the election of the property owner only, which has resulted in a spotty and inconsistent pattern that is only moderately successful. Expand and strengthen Historic Preservation Overlay Districts to ensure that core historic neighborhoods are protected The quality, health and continued viability of these neighborhoods are Develop conservation districts as a voluntary protective measure important components of the Central Franklin Area Plan and the City for neighborhoods not eligible for protection under the Historic Preservation Overlay Districts as a whole. Maintaining—and in some cases rebuilding—community Establish neighborhood revitalization programs targeted towards involvement and pride in Central Franklin’s neighborhoods is also an increasing home ownership and improvement opportunities and important component. This is of particular concern in two of Central addressing aging public housing Franklin’s oldest neighborhoods: Natchez and Hard Bargain. As Encourage compatible infill development in targeted areas mentioned in the 2001 Historic Preservation Plan, these within Central Franklin’s Special Planning Areas neighborhoods represent important aspects of Central Franklin’s history and need further attention, but they would not necessarily benefit from stringent historic-preservation guidelines applied in other historic neighborhoods within the community.
Neighborhood Preservation and Protection The City recognizes the important role Central Franklin’s residential Central Franklin is home to a variety of neighborhoods, ranging from neighborhoods play in the health and vitality of the downtown core those in the historic core to the post-World War II era suburbs that and will work to strengthen this role by taking the following actions: surround downtown. The health and stability of these neighborhoods also vary dramatically. Many core-area historic neighborhoods are in excellent condition and relatively stable, due to continued reinvestment
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ACTIONS 1. The City will expand and strengthen the Historic Preservation Overlay District to ensure that core historic neighborhoods are adequately protected from development pressures. 2. The City will explore the use of conservation districts and design standards to protect Central Franklin neighborhoods that are not eligible or appropriate for designation under the Historic Preservation Overlay District and that desire additional protection. Conservation districts will be crafted to ensure that infill development is compatible with a neighborhood’s key defining characteristics. 3. The City will continue to work with residents of the Hincheyville neighborhood to ensure that current zoning designations and the integrity of the High Residential (HR) District are maintained. Specifically, the area on the south side of New Highway 96 West should not be changed from HR to Office Residential (OR). Additionally, neither commercial zoning nor additional OR District zoning should be allowed to invade the HR District of Hincheyville. 6. The City will work with Middle Tennessee Electric 4. The City will establish neighborhood revitalization programs Membership Corporation to address severe tree-trimming to support and engage residents in the long-term health and practices that have a long-term impact on neighborhood appearance of their community. Specifically, such programs appearance and detract from Central Franklin’s character. will be targeted towards improving home ownership and improvement opportunities, making creative financing tools 7. The City will ensure that special area plans along major available and addressing aging public-housing issues. corridors, such as Columbia Avenue, address the transition of land uses between commercial and single-family areas in 5. To support neighborhood stability and revitalization efforts, order to mitigate the impacts of incompatible land uses. the City will continue to respond promptly to and enforce reported code violations in Central Franklin’s neighborhoods.
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Neighborhoods of Special Significance All of Central Franklin’s neighborhoods are important, from the standpoint of the homes and sense of community they provide, for their rich architectural character and history, and for the role they play in supporting the downtown core. However, two of Central Franklin’s neighborhoods in particular face unique issues that warrant additional discussion: Natchez and Hard Bargain.
NATCHEZ The Natchez neighborhood has its roots deeply embedded in Central Franklin’s earliest days, having been settled by freed slaves following emancipation. Natchez Street was one of the main roads that comprised the Natchez Trace as it passed through the area. According to neighborhood residents, Natchez in its prime was a diverse neighborhood of residential homes and businesses, including grocery stores, nightclubs, theaters and other local services. During the past century, many of the original homes have been demolished and reconstructed or have had new “shells” built around existing buildings. As a result, the neighborhood includes a mix of structures The following actions will be taken specific to the Natchez and Hard ranging in condition from well maintained and viable to severely Bargain neighborhoods in conjunction with those outlined for deteriorated. Homes in the neighborhood remain largely occupied by neighborhood preservation and protection above: direct descendants of its original settlers, and many of the homes are passed down to family members, which result in a high owner- occupancy rate. Much of the concern for the future of Natchez, as ACTIONS described by members of Natchez Place, Inc., and residents of the 1. The City will provide staff representation at organized neighborhood stems from a sense of detachment from the rest of the neighborhood meetings on an as-needed basis to provide City and a general decline in the level of maintenance of homes in the assistance with specific neighborhood issues. area that some fear will lead to wholesale redevelopment.
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Since the writing of this Plan in 2004, the Hard Bargain Mount Hope Redevelopment non-profit has worked with the neighborhood and an 2. The City will work with interested property and business urban design consultant to create a vision for the future of Hard owners to identify appropriate locations for and facilitate Bargain. This process spanned several years, and efforts included the reintroduction of small-scale neighborhood services holding multiple community meetings and hosting a community design into the neighborhood through necessary zoning changes mini- charrette. The resulting master plan and corresponding and incentives as they become available. documents were amended into the Central Franklin Area Plan on 3. The City will continue to work with the Franklin Housing October 25, 2007 by the Franklin Municipal Planning Commission. Authority to develop plans for the improvement of existing public housing within the Natchez neighborhood. The amendment, including pages 23.1 to 23.7, refines and defines 4. The City will engage residents of the Natchez and Hard the future land use of the Hard Bargain neighborhood with a Bargain neighborhoods in ongoing and future planning prescriptive physical and illustrative plan along with images and efforts adjacent to their neighborhoods. graphics that will serve as the protective measures needed in the area as well as a guide for future change, when it comes, according to a traditional neighborhood development pattern. HARD BARGAIN Hard Bargain is a small, traditionally African-American neighborhood The following actions will be taken specific to the Hard Bargain located just west of the downtown core. It lies across from the neighborhood: Toussaint L'Overture Cemetery, which was started for Franklin’s ACTIONS African-American community in 1864, and was added to the National 1. Traditional Neighborhood Development is acknowledged Register of Historic Places in 1995. The neighborhood is as the pattern for redevelopment and infill development in characterized by its modest homes, one of which is a home built by the Hard Bargain neighborhood and adjacent parcels. Harvey McLemore, a former slave, and is now a neighborhood landmark. The home has been renovated and restored as a museum highlighting African-American heritage in Franklin. Hard Bargain residents have many of the same concerns for the future of their neighborhood as do residents of the Natchez neighborhood: a sense of detachment from the rest of the City and a general decline in the level of maintenance of homes in the area that some fear will lead to wholesale redevelopment.
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2. Redevelopment and infill development should proceed according to the master plan for the Hard Bargain Mt. Hope Redevelopment. 3. Mixed uses in the form of live-work units and comparable scale mixed-use buildings are encouraged along 11th Avenue, with a concentration at the intersections with Mt Hope Street and New Highway 96 West as prescribed in the master plan. 4. Johnson Alley should be extended to become Johnson Lane and intersect with a new street that connects Glass St and Mt. Hope Street as prescribed in the master plan. 5. Streets should be designed for slower speeds to allow for mixing of vehicular and pedestrian traffic. New street sections should match that of Glass Street, while new one- way streets and shared driveways should be designed to be even more considerate of the pedestrian. 6. Sites should be reserved for churches, parks, businesses, and other public gathering places as prescribed in the master plan. 7. A broad range of housing types, including accessory dwelling units, should be permitted and encouraged as prescribed in the master plan. However, individual architectural projects should be seamlessly linked to their surroundings. 8. The design of streets and buildings should reinforce safe environments, but not at the expense of accessibility and openness.
CENTRAL FRANKLIN AREA PLAN May 2004 23.3 RESIDENTIAL NEIGHBORHOODS
9. All buildings should relate to and address the street. The The plan improves efficiency of land use, reinforces the grid street main entrance of buildings (not the garage) should be network already established in the neighborhood and adds a mix of oriented to the street. uses within and adjacent to the original development of Hard Bargain. In addition the plan foresees the future elimination of existing 10. A transit stop should be located in Hard Bargain, possibly incompatible uses adjacent to Hard Bargain and establishes at the intersection of 11th Avenue and Mt. Hope Street. neighborhood retail and other compatible uses that will make it a more walk-able community. HARD BARGAIN MASTER PLAN The master plan is depicted on the following page. The building footprints shown in black are existing homes that are expected to remain, some possibly benefiting from some rehabilitation. The building footprints shown in orange are proposed new buildings, some being multifamily townhouses, others being mixed-use or live-work arrangements, but most being single-family homes. The reddish building footprints depict civic uses such as churches, museums, and community centers; some are existing, while some are proposed new additions to the neighborhood.
Note the extension of Johnson Alley to continue to the existing, organic pattern by which some homes currently face the alley. Homeowners along Glass and Mt. Hope Streets will have the opportunity to build accessory dwelling units with access from the extended alley (which would become a front lane), or they could sell the back portions of their lots to the Hard Bargain Mt. Hope Redevelopment or another entity who would in turn build a home fronting on the alley-turned front lane. Note the community gardens, the basketball court, the opportunities for residents to operate neighborhood businesses, and the overall compatibility with existing homes as well as the small town character of the whole of Franklin.
May 2004 CENTRAL FRANKLIN AREA PLAN RESIDENTIAL NEIGHBORHOODS 23.4
HARD BARGAIN MASTER PLAN
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A VIEW OF GREEN STREET LOOKING EAST: EXISTING AND FUTURE
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HARD BARGAIN FUTURE BUNGALOW COURT CONCEPT
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HARD BARGAIN PROTOTYPICAL ARCHITECTURE
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ACTIONS Residential Infill 1. Infill development is acknowledged as an effective means of increasing the variety of housing types and price ranges Although many of Central Franklin’s neighborhoods are stable and available within Central Franklin and ensuring the continued largely built out, there are a number of opportunities for residential vitality of the downtown core. Encouraging infill infill. Further, there appears to be a strong market demand for this development on targeted sites provides an opportunity to type of development. When infill opportunities arise, green space incorporate housing alternatives into Central Franklin’s should be considered as a viable option. Opportunities occur where existing fabric while reducing the need for outward expansion vacant sites remain within established neighborhoods, where existing of the community. A variety of housing types, such as uses have become obsolete or underused in their current location, townhouses, accessory apartments and small-lot single- where the addition of an accessory apartment can be accommodated family on infill development sites, will be accommodated, over the garage of an existing home, or where residential units can be provided they do not negatively impact existing accommodated over commercial uses in downtown. neighborhoods.
Residential infill is desirable in Central Franklin for several reasons. 2. In acknowledging the potential advantages of infill First, it addresses market demand for a greater variety of housing types development, the need to ensure its compatibility with the and densities within proximity to downtown. Second, it can inject new surrounding context must be addressed. Compatibility with vitality into existing neighborhoods, thereby discouraging disinvestment the surrounding context can be achieved by ensuring that the and deterioration. Third, it increases the number of residents and overall scale and design of infill development does not potential customers within proximity to the downtown core, thereby overwhelm or otherwise detract from the established increasing its vitality. However, poorly designed residential infill can character of the neighborhood. Although the City recently detract from a neighborhood and potentially damage the very qualities completed a set of citywide design standards, they were that make it an attractive area for new residents. Negative impacts targeted primarily towards “greenfield” development and can include visual and aesthetic factors, such as architectural design, should be expanded to address issues related specifically to materials, scale, setback and size. It can also include physical impacts, infill development, including: such as parking, storm-water runoff, traffic circulation, waste storage - scale of development (building height and and pick up, and others. Therefore, the following actions will be mass); taken: - neighborhood character (historic or other); - lot coverage;
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- setbacks; 5. identified on a site-by-site basis to ensure that new development is compatible with the surrounding context of - relationship to surrounding development; the neighborhood. Maintaining the many historic sites - neighborhood-specific design characteristics; located in Central Franklin is a priority for the community. and 6. Infill development must be sensitive to historic landmarks and - relationship to historic landmarks. their surrounding context to ensure that their integrity is preserved. The Franklin Historic Preservation Plan (see 3. Infill development that is compatible with and builds upon Appendix) will continue to be referred to for guidance on the best characteristics of Central Franklin’s established specific landmarks and their related issues. neighborhoods will be encouraged. Infill development will Infill development should be integrated with Central be focused on opportunity sites identified as part of the Franklin’s fabric and not designed as isolated islands of 4. Central Franklin planning effort and will be expected to development. As detailed plans are prepared for each infill address each of the issues, or “critical success factors”, development site, pedestrian and vehicular circulation routes that link the new development to the established neighborhood must be defined. It is acknowledged that vehicular access to some infill sites, particularly those located on “flag” lots, may require special consideration during the City’s review process.
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7. To encourage quality infill development, the City will develop an infill development handbook, or “pattern book”, that illustrates appropriate infill development scenarios for a variety of types of sites. The handbook will illustrate how the design standards could be applied within a variety of neighborhood contexts. The intent of the handbook would be to provide guidance for developers on the types of projects that would be embraced by the City and residents, thereby increasing the predictability of infill development and reducing the need for extensive negotiations and community outreach. 8. Without effective community involvement, infill development can often become controversial. In order to be most effective, the development of tools such as an infill development handbook or area specific design standards will need to involve a broad cross-section of the community. Key stakeholders would include neighborhood residents and representatives, local architects and developers, City staff and members of the historic-preservation community. Taking a cooperative approach and involving a variety of participants would help to ensure that ideas endorsed by the group adequately address issues of compatibility, yet are not so restrictive that they serve as a disincentive to developers and property owners. 9. The City will undertake targeted revisions to existing development regulations that focus on removing potential barriers to infill development, while minimizing adverse impacts on existing neighborhoods.
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residents and visitors with a clear glimpse of some of Franklin’s best— and worst—features. Rolling hills and broad valleys provide striking rural vistas in some areas, while others are distinguished only by strip malls and haphazard development that provide no indication of the history and character so evident in the downtown area.
Chapter 5: Gateways and Corridors The significance of this issue within the community is evidenced by the tremendous outpouring of discussion that has emerged from a host of public and private organizations during recent years. These discussions have resulted in a number of plans, many of which have yet to be realized. Development along these corridors should be Priority Actions to Improve and Protect Central Franklin’s Gateways planned for and managed to protect and improve their quality. and Corridors Ambitious strategies are needed where positive change is desired, and Develop a Special Area Plan for the Columbia Avenue Corridor protections are needed for exemplary existing conditions. that synthesizes the efforts of the many participating groups and agencies and defines a coordinated approach for Five primary corridors were identified as part of the planning process: implementation Columbia Avenue, Murfreesboro Road, Hillsboro Road, Franklin Protect key properties along the Murfreesboro and Franklin Road, and West Main Street. A discussion of key issues and actions Road Gateways through the implementation of overlay districts, specific to each corridor follows. conservation districts, or the transfer or purchase of development rights Develop and implement unified design and streetscape Columbia Avenue Corridor standards to improve the appearance of the West Main Street and Hillsboro Road Corridors The Columbia Avenue Corridor serves as the primary entrance into Downtown Franklin from the south. Originally used as a link between Nashville and Columbia (U.S. Highway 31), the corridor is rich with history. Both armies used the corridor for troop movements and Introduction military campaigns during the Civil War, and The Battle of Franklin, one of the bloodiest battles of the War, was fought in the area. Most A community’s gateways and corridors are often its most visible remnants of the battlefield have been built upon, but several other features and create an important first impression for visitors. As they significant historic sites can still be found in the corridor. These exist today, Central Franklin’s gateways and corridors provide
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include the Lotz House, the Carter Cotton Gin site, the Carter House, Carnton, the McGavock Confederate Cemetery and Winstead Hill.
Over time, development pressures combined with a lack of design and development standards have resulted in a patchwork of strip commercial and institutional uses, interspersed with remaining historic homes. While some of these homes have been converted to office or commercial uses, others continue to be used as residences. The corridor’s commercial uses are primarily auto-oriented “strips” and feature buildings set back behind stark parking areas, little landscaping, and a jumble of overhead power lines and signs. In addition, vehicular circulation to and between businesses in the corridor is hindered by multiple curb cuts and driveways, all accessed from the corridor. As a result, one of the most common issues raised regarding the Columbia Avenue Corridor, both as part of the Central Franklin planning effort and during previous efforts, is a general dissatisfaction with its appearance. Concerns stem from the current appearance of the corridor and from a fear that, left to its devices, future development will further degrade its visual quality and further Franklin and Natchez Place, Inc. The results of earlier impact the remaining historic sites and homes. Various organizations planning efforts will be revisited and used as appropriate to and groups have worked to address these challenges in recent years; “jump start” a coordinated approach towards however, consensus on the implementation of these efforts has yet to implementation. be achieved. The City will lead future efforts with the following 2. Building on earlier planning efforts and coordination, a actions: cohesive strategy for the corridor’s improvement will be developed in the form of a City- and County-led Special ACTIONS Area Plan that addresses a diverse group of interests and 1. The City will spearhead coordination efforts among the many identifies an incremental approach towards implementation. groups and agencies with ongoing interests in the Columbia At a minimum, the strategy will include: Avenue Corridor, including Franklin Tomorrow, the Heritage - the implementation of existing design standards Foundation, Save the Franklin Battlefield, Inc., Leadership to ensure that future development and
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redevelopment will be of a high quality and compatible with remaining historic structures; - a streetscape plan that, when implemented, will improve the overall appearance of the corridor as a gateway to downtown; - the identification of long-term uses for key properties currently undergoing, or anticipated to undergo, a transition in use during the next one to three years; - consideration of the U.S. Hwy. 31 South Design Guidelines report (see Appendix); - the identification of desired uses for potential redevelopment sites or underused parcels as market forces dictate; and - incentives for the incremental redevelopment of key sites. Although much of the corridor’s character-defining residential development is relatively stable, and the corridor is largely built out, the size of existing lots, coupled with the proximity of downtown’s Murfreesboro Road amenities, may result in pressure for infill development. This is Murfreesboro Road serves as the primary entrance to downtown from particularly of concern for those lots that front on Murfreesboro Road, the east and is characterized by its attractive, rural character. Homes where lot splits and the intensification of existing residential densities are sited on large lots and set back from the street behind broad, could significantly detract from the rural character of the corridor. The shady lawns. Much of the corridor is zoned for medium-density, City will work to protect the rural character of the corridor by taking single-family residential development on lots of one-half acre or the following actions: larger. However, east of Ralston Lane and north of Murfreesboro Road, zoning permits high-density single-family development up to a ACTIONS maximum of three dwelling units per gross acre. West of Yorktown 1. The scenic quality and rural character of the Murfreesboro Subdivision, most parcels are impacted by the floodplain of the Road gateway is exemplary and will be protected. Key Harpeth River and the north and south branches of Ewingville Creek.
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properties will be protected or maintained to the extent feasible. The City will review and revise existing development regulations to establish a development setback for future subdivision and development of lots between Murfreesboro Road and North Ewingville Creek to the north, as well as along the south side of Murfreesboro Road. Franklin Road As they enter Central Franklin from the northeast, visitors are greeted with the inviting rural character of Franklin Road. Views of wooded hillsides are abundant, and several large parcels of farmland remain, including Harlinsdale Farm, which includes approximately 200 acres south of Mack Hatcher Parkway at the northern gateway to Central Franklin. Also contributing to the scenic quality of the northern gateway is Roper’s Knob, east of Franklin Road, an approximately 100 acre site distinguished by its dramatic, wooded hillsides.
Increased development pressures have placed the scenic quality of the National Register of Historic Places. The City will take the following Franklin Road gateway at risk. Not surprisingly, much of the actions to protect the scenic quality of Franklin Road: development pressure has fallen on Harlinsdale Farm, which is one of the largest contiguous development parcels remaining in the Central Franklin Planning Area. The farm, best known as the home of the ACTIONS great Midnight Sun, a famous Tennessee Walking Horse, is an asset to 1. The exemplary scenic quality and rural character of Franklin the community, not only because of the scenic value it provides, but Road will be protected to the extent feasible. The City will also because it serves as an icon of Tennessee’s longstanding history encourage the protection or maintenance of key properties, and contribution to the equestrian business. The farm has been such as Harlinsdale Farm and Roper’s Knob, through the use evaluated and determined to be eligible for designation to the of appropriate preventive strategies such as the implementation of conservation districts, overlay districts or the transfer or purchase of development rights.
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2. The City acknowledges the significant role the Harlinsdale Farm and Roper’s Knob properties play in protecting Franklin West Main Street Road as a scenic gateway into the community and its historic significance to the larger community. The long-term preservation of the properties is desirable and preferable. However, should all or a portion of the property be developed, the design and layout of such development will be carefully considered to preserve the rural character of the gateway. Key factors for consideration would include, among others: - protection of the 100-year floodplain of the Harpeth River which encompasses a significant portion of the property’s western edge; - broad development setbacks and open-space buffers to preserve views from Franklin Road; - preservation of existing vegetation; - maintenance of a development setback from Franklin Road and Mack Hatcher Parkway; - creation of a Special Area Plan for the quadrant The West Main Street Corridor serves as the primary entrance into at the intersection of Franklin Road and Mack downtown from the southwest. The corridor contains an assortment of Hatcher Parkway; small-scale commercial uses that line the roadway. Outside of - restriction of over-lot grading techniques that downtown, most are located in linear strip-style centers. West Main dramatically alter site vegetation and Street also passes through two of Franklin’s most historic residential topography; and areas, the Natchez and Hincheyville neighborhoods. Closer to downtown, many historic homes have been converted to professional - careful consideration and use of each site’s offices or commercial uses, but most retain their residential character. topography to minimize the visual impact of The corridor also includes the Five Points intersection at the entrance future development when viewed from both to the fifteen-block area. One of the largest properties in the corridor Franklin Road and Mack Hatcher Parkway.
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is the Williamson County Administrative Complex, located at the ACTIONS intersection of Brookwood Avenue and West Main Street. The 1. The City will pursue an extensive multi-organizational effort in complex, located in an old hospital facility, houses a mix of the form of a Special Area Plan to address the collective administration, land records, planning and zoning, health and vehicle problems and opportunities along the West Main Street registration services. It is anticipated that this use will remain in place corridor. A key outcome of the effort will be a set of indefinitely. aggressive policies and strategies that focuses on the implementation of streetscape improvements and Many of the challenges for the West Main Street Corridor are similar redevelopment incentives, as well as on the reuse of key to those of the Columbia Avenue Corridor, although somewhat less properties. pronounced. For instance, despite the fact that development along 2. The City will pursue the development and implementation of West Main Street is generally less intense than that along Columbia a unified set of design and streetscape standards to ensure Avenue, improving the overall appearance of the corridor’s that future development and redevelopment will be of a high streetscape is a priority. The area has a varied appearance that does quality and compatible with remaining historic structures. little to support the corridor’s role as a gateway into downtown. Uses Existing design standards for the Columbia Avenue Corridor range from fast-food restaurants to historic homes that have been will be reviewed for overlap on common issues and will be converted to nonresidential uses. The conversion of homes can result used as a starting point. in the loss of “green space” when front yards become parking areas and auto-oriented signage is added. Without guidelines for the design and placement of signage, it can be out of scale with the Hillsboro Road residential character of certain areas of the corridor and the adjoining The Hillsboro Road Corridor is home to Franklin’s high school neighborhoods. complex, as well as many homes and businesses. As it enters Central Franklin from the northwest, development patterns transition from Also an important consideration for the corridor is the reuse of the primarily single-family residential to a more diverse mix of highway- vacant Williamson County Library site. The site’s location at the Five oriented commercial uses, including a large assortment of automobile Points intersection makes it a highly visible component of the dealerships, fast food establishments and banks. This pattern extends downtown core, and its future use must be carefully considered to nearly all the way to the intersection of North Margin Street at the ensure that it enhances the downtown and the larger community. The edge of the downtown core. As with several of the corridors development quality of the West Main Street corridor will be improved mentioned previously, improving the overall appearance of the through the following actions: corridor is a primary concern. To improve the development quality of the Hillsboro Road corridor, the City will pursue the following actions:
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ACTIONS 1. The City will pursue the development and implementation of a unified set of design and streetscape standards to ensure that future development and redevelopment will be of a high quality. Existing design standards for the Columbia Avenue Corridor will be reviewed for overlap on common issues and will be used as a starting point. 2. The City will explore opportunities to provide redevelopment incentives to promote the redevelopment of key properties.
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May 2004 CENTRAL FRANKLIN AREA PLAN BATTLEFIELD PRESERVATION 35
Army; the Carter House, which was used as Federal Headquarters during the Battle; and the Courthouse, Historic Franklin First Presbyterian Church, and St. Paul’s Episcopal Church which all served as hospitals used to treat the wounded (Historic Preservation Plan, 2001). Chapter 6: Battlefield Preservation Although all of the properties mentioned above still stand in Central Franklin—most within the fifteen-block area—very little of the actual Battlefield site remains untouched by the City’s growth and expansion Priority Actions to Protect Central Franklin’s Battlefield over the past 140 years. Most battles that occurred during the Civil War, both in Tennessee and throughout the south, occurred in the Develop an organizational strategy to place Battlefield preservation efforts under a single coordinating entity, led by the rural countryside surrounding communities. In contrast, the Battle of City of Franklin in partnership with Williamson County, that is Franklin occurred within the confines of what was, at the time, or coordinated with other Central Franklin revitalization and would become, the City’s urbanized area. The loss of much of this marketing efforts historic resource and its lack of visibility in terms of interpretation has Identify funding sources for the preservation of key sites been a source of contention within the community, particularly during associated with the Battle of Franklin, and work to establish a recent years. coherent network of sites and resources that tell a logical story of the Battle and its place in local and national history The first comprehensive Battlefield Preservation Plan is underway with Develop and implement a Battlefield Preservation Plan to a grant to the Heritage Foundation from the American Battlefield establish a long-range vision for Battlefield preservation Protection Program. Despite the lack to date of a Battlefield Preservation Plan to guide the community on the most appropriate and effective means of interpreting the Battle and its related historic sites, numerous organizations within the community have been involved in Introduction efforts to preserve the remaining fragments of the Battlefield and to In November of 1864 one of the bloodiest battles of the Civil War develop interpretive information on the Battle. These organizations occurred in Central Franklin. Lasting approximately five hours, the include, among others: Save the Franklin Battlefield, Inc., The Battle of Franklin resulted in 2,500 Federal casualties and 7,000 Heritage Foundation of Franklin and Williamson County, the Carnton Confederate casualties. Several structures within Central Franklin Association, Inc., the Carter House, and the Williamson County were used both during and after the Battle, including Carnton Historical Society. One of the challenges associated with such a Plantation, which was used as a field hospital by the Confederate diverse group has been that, without a Battlefield Preservation Plan to
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The City acknowledges the importance of historic preservation and Battlefield preservation as a key component of its ongoing planning efforts. The completion of a Historic Preservation Plan in 2001 and the recent addition of a full-time Preservation Planner to the City’s staff is evidence of this commitment. The Historic Preservation Plan identified seven primary goals for historic preservation, several of which include specific strategies related to battlefield preservation. This chapter is intended to build on the recommendations of the Historic Preservation Plan and on other work that has been accomplished relative to the identification of key sites and the creation of alliances within the network of regional, state and national Civil War organizations. Included are:
1. A series of actions that will direct efforts on ongoing Battlefield preservation issues. 2. Guidance for the preparation and implementation of a Battlefield Preservation Plan to establish a long-range vision for Battlefield preservation. 3. A summary of prior studies of Civil War sites as prepared by serve as a guide, the efforts of most of the organizations have been Save the Franklin Battlefield, Inc. relatively targeted towards particular properties or areas of interest. Also challenging has been the lack of a central clearinghouse of 4. A summary of organizations that can assist in the acquisition information on what has been accomplished and by what and interpretation of local Civil War sites as prepared by organizations. The result of this information gap has been Save the Franklin Battlefield, Inc. occasionally duplicative work efforts and a general lack of clarity among the various groups and the community in general as to the progress that has been made. To this effect, Save the Franklin Battlefield, Inc., recently prepared a summary of prior studies and events related to the preservation of the Battle and other Civil War sites, provided on the following page.
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Columbia Avenue Design Guidelines—1999 Also sponsored by the Heritage Foundation with a grant from the ABPP, the document Prior Studies of Civil War Sites establishes design guidelines for development along US Highway 31. (As summarized by Save the Franklin Battlefield, Inc): Winstead Hill Park and Fort Granger Study—1995 Franklin Battlefield Conferences—1992, 1993, 1994 A study sponsored by the City of Franklin that resulted in land being purchased on the north face of Winstead Hill. Fort Granger had been purchased by the City in the mid These three conferences were sponsored by the City of Franklin, Williamson 1970s, and the Winstead Hill acreage was purchased by the City for a park. County, the Heritage Foundation and other local groups to bring together Interpretive signs were placed at both of these passive Park, which are open to the business and historical groups to discuss methods of preserving local historical public. resources and of establishing heritage tourism in Williamson County. Speakers came from national preservation organizations, the Tennessee Historical Commission and other groups. The conferences generated much interest in the Preservation and Interpretation Plan Summary for Civil War Resources in general public for preserving some of our local Civil War sites. Original research Tennessee—2000 produced battlefield maps and a Battle of Franklin Driving Tour Map. Sponsored by the Tennessee Wars Commission, this summary is a "how-to" preservation guide for local governments and organizations that can produce a Profiles of America's Most Threatened Civil War Battlefields—1993 (revised statewide Interpretation Plan for Civil War sites. These plans define five regional 1998) themes and six statewide themes. The regional theme for Williamson County is "Hood's Tennessee Campaign". The second revision of companion booklet, “A Path National Park Service—American Battlefield Protection Program—a survey of the Divided”, is a statewide driving tour guide that was developed in cooperation with the April 10, 1863 and November 30, 1864, battlefields in Williamson County. The Center for Historic Preservation. maps define the area that was studied and the boundaries of the "core battlefield” areas. This study encompassed dozens of Civil War Battlefields in several states, and is planned to be updated. Tennessee Historical Quarterly: A Master Plan for the Tennessee Civil War National Heritage Area—2002 US Highway 31 Battlefield Corridor Protection Plan—1996 Prepared by the Center for Historic Preservation, Middle Tennessee State University Sponsored by the Heritage Foundation with a grant from the American (MTSU), for the Board of Advisors of the Tennessee Civil War National Heritage Area. Battlefield Protection Program to identify all historic sites, including battlefield In 1995, Congress established the National Heritage Areas program as part of its parcels, along US Highway 31 from Mack Hatcher Parkway north of Franklin to National Park Service. Forty-one states submitted proposals, and Tennessee, with the Saturn Parkway, near Spring Hill. The study addressed preservation priorities for assistance of Congressman Bart Gordon, was one of the eight states chosen. In 1996 the identified resources, land use and zoning, highway frontage, setback Congress funded the Tennessee Civil War National Heritage program at MTSU with requirements and other characteristics. The plan was not adopted as a guideline the goal to establish a strategy, coordinated with local governments and preservation for development planning by the City or the County. (See Appendix). groups, for interpreting Tennessee's Civil War era for the years 1850 through 1870, including the Reconstruction years. After public meetings and fact-finding across the state, this resultant Master Plan helps local governments and groups become part of the statewide preservation effort to protect and interpret our local historical resources.
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Actions 1. The Franklin community will work to preserve key sites associated with the Battle of Franklin. The focus will be on preserving a growing network of identifiable sites that can be appreciated by the general public, with substantial progress within the next ten years. 2. In devising plans to preserve Battlefield sites, the importance of connecting sites and resources as a coherent network will be emphasized. The intent of the Battlefield preservation strategy is to have a system of preserved sites and resources that tell a logical story of the Battle of Franklin and its place in local and national history. 3. The protection and preservation of key sites must involve multiple public and private organizations and agencies with multiple funding sources. No one entity can be expected to fund such an undertaking. Preservation and land acquisition will occur incrementally over time. Therefore, extended close anticipated that the identification of sites will work within the coordination must occur with an opportunistic approach to framework of five primary Battlefield resources, three of respond quickly as opportunities to preserve and protect which are in Central Franklin and two of which are outside arise. Central Franklin: 4. Battlefield preservation efforts will build on existing studies of - The Carter House Franklin Civil War sites, as summarized below. - The Carnton Plantation 5. A list of key sites targeted for preservation will be developed and prioritized relative to historic significance, remaining - Fort Granger historic integrity and availability. This will begin with—but - Winstead Hill will not be limited to—existing inventories of sites, such as those identified by Save the Franklin Battlefield, Inc. It is - Roper’s Knob
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6. Initial planning and preservation will focus on a core area 10. The relationship between Battlefield preservation and tourist- consisting of the Columbia Avenue corridor between Fowlkes based economic development is acknowledged, and the Street and Battle Avenue, centered on the Carter House. promotion of the Battlefield resources will be coordinated This area provides the opportunity to create a critical mass of with area tourism and economic development efforts. historic integrity and atmosphere. While this area does not 11. An organizational strategy will be developed to place offer an intact Battlefield site, it does have the potential for Battlefield preservation efforts under a single coordinating an assemblage of sites and a scenic and historic ambiance entity, led by the City of Franklin in partnership with that respects the history of the area. In particular, the Williamson County, that is coordinated with other Central potential relationship of nearby incompatible commercial Franklin revitalization and marketing efforts. uses to Battlefield preservation goals should be addressed. 12. The coordinating organization will work to create alliances 7. Land acquisition and preservation strategies should be with other Civil War preservation organizations, particularly coordinated with land-use regulations such as historic those with funding available, as summarized below. The zoning. The City will consider the recommendations of the coordinating organization will work to prepare an interpretive U.S. Highway 31 South Design Guidelines report. brochure that meets National Park Service Standards. 8. Battlefield preservation efforts should be coordinated with 13. A funding strategy will be devised that identifies funding City infrastructure planning, especially thoroughfare sources and approaches. planning, in order to ensure context-sensitive design relative to historic integrity. 14. In order to implement an effective Battlefield preservation strategy, a full Battlefield Preservation Plan is needed, as 9. Battlefield preservation efforts must be sensitive to and described on the following page. The City should capitalize respectful of other community heritage and socioeconomic on the willingness of the National Park Service to provide issues and needs. For example, many of the Battlefield sites funding assistance in an initial phase of a Battlefield coexist and are intermingled with neighborhoods with a Preservation Plan. strong African-American heritage and presence, and the historic heritage and needs of these neighborhoods must be balanced with Battlefield preservation issues.
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Battlefield Preservation Plan Guidance for preparing a Battlefield Preservation Plan is provided by the 4. Current Condition American Battlefield Preservation Program of the National Park Service If not already completed, on-site surveys will be necessary to determine the (NPS). The NPS recognizes that all battlefields are unique, and plans current condition of the battlefield proper and to identify individual resources must be tailored to local conditions. The plan should create a long- within the battlefield. The plan should note whether the battlefield is in generally the same condition it was at the time of the battle, what changes range vision for the battlefield, recognizing that battlefield preservation is have occurred since the battle, whether cultural or natural resources have a long-term endeavor. been destroyed, and what percentage of the entire battlefield remains today.
According to the NPS, the basic elements of a Battlefield Preservation 5. Brief History of Battlefield Protection Efforts Plan include the following: Past efforts to protect battlefield land and resources may influence the goals and recommended actions of a contemporary plan. For example, an earlier 1. Historical Significance public land purchase may already protect a portion of the battlefield. Plans The plan should briefly discuss the significance of the battlefield without should identify earlier initiatives, their level of success and whether additional going into a detailed history and analysis of every aspect of the battle. The action is needed. This discussion relates to several of the factors listed below. most critical thing is to state the importance (military and otherwise) of what happened at the site. 6. Short- and Long-Term Threats It is critical for the plan to address threats to the preservation of the battlefield 2. Location and Geographical Area site since, in most cases, methods of dealing with them will become the focus The plan should describe and map the location and extent of the of the plan's recommendations. Threats can be natural or the result of human battlefield. Guidance on defining the boundaries of battlefields is provided action. Man-made threats include incompatible development (residential, in the National Register Bulletin Guidelines for Identifying, Evaluating and commercial or industrial) resulting in a wholesale loss of individual battlefield Registering America's Historic Battlefields, available online at resources and/or the setting of the battlefield, and unscientific removal of http:/www.cr.nps.gov/nr/publications/bulletins/ bahome.htm. archeological evidence (relic hunting/looting). Among various natural threats are soil erosion, pest infestation and decay. The plan should differentiate 3. Current Land Use between imminent threats and long-term threats. The plan should describe current uses of land within the battlefield and surrounding areas. Is the land in agricultural use? If so, what kind of 7. Community Characteristics farming is taking place? Is forestry or quarrying present on the site? Do The plan should note community characteristics, such as demographic existing or planned residential or commercial uses occur on or near the information, economic issues and the local political climate. This information site? The plan should discuss the extent to which these and other uses may places battlefield preservation efforts into a larger, “real-life” context. It also affect the battlefield landscape, features, or viewsheds. helps planners identify ways battlefield preservation can benefit the community and how to market preservation efforts to the community.
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8. Planning Capabilities and Past Performance of Local Governments with 11. Cultural and Natural Resources Jurisdiction over the Battlefield Briefly discuss, describe and map historic resources and natural features within the area of the battlefield. Types of resources include archeological remains, Since battlefields cover large areas of land, more than one local bridges, earthen fortifications, farmhouses, fence lines, old roads and road government may have jurisdiction. The plan should address the land-use traces, and walls, as well as natural features such as streams, wetlands, planning and regulatory capabilities of all localities within the boundaries geological formations, wood lots and wildlife habitat areas. The plan should of the battlefield. Has the County or city adopted a comprehensive or identify clearly which resources are associated with the battle, which resources master plan? Does the locality have a zoning ordinance or subdivision may be significant to other periods of history, and which resources may be regulations or any other mechanism to regulate development? significant environmental areas. It is important to indicate the level of knowledge about these resources; for example, the plan should indicate 9. Priority Parcels Needing Protection whether historic resources have been surveyed and/or evaluated and formally This is perhaps the most sensitive and yet most important part of the plan, designated on the State or National Register of Historic Places. If planners do because it identifies the key parcels to be protected, i.e., those that, if lost, not have sufficient information to describe these resources, the plan may would make preserving the battlefield landscape impossible. The plan recommend conducting surveys to learn more. should justify why the parcels selected are the most important ones. Among the criteria that should be used are historical significance, viability 12. Attitudes of the Local Community, Local Elected Officials and Battlefield as an interpretive location for visitors and manageability (for example, proximity to other parcels already under protection). The emphasis given Landowners each of these criteria (and others that may be used) depends on the goals If the plan and the preservation effort it represents are to have any chance of of the individual preservation plan. being implemented, it must have strong local support. The plan should outline the public involvement strategy and document the support to date of 10. Analysis of the Most Effective Land Protection Methods Available all the critical players whose support is essential to the success of the Many tools can be used in preserving battlefield land. They range from preservation effort. acquisition strategies such as outright purchase and purchase of easements or development rights to regulatory mechanisms such as zoning or historic 13. Partnerships, Strategies and Actions district designation, to tax incentives such as placing certain parcels in The plan's goals, objectives and recommendations should lay out a logical agricultural or forest districts or assessing the land at its current use value sequence of actions (an action plan) to be taken over the next several years to rather than its potential value if developed to a higher density. This section make preservation a reality. In addition to describing specific tasks, the should enumerate all of the tools most likely to be successful in preserving recommendations should identify the responsible parties in carrying out the this particular battlefield and the reasons why they apply in this situation. recommended tasks.
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Organizations That Can Assist in Acquisition and Interpretation of Local Civil War Sites
(As summarized by Save the Franklin Battlefield, Inc): Civil War Preservation Trust The Land Trust for Tennessee 13 H Street NW (1001) PO Box 23473 Tennessee Civil War National Heritage Area Washington, DC 20005 Nashville, TN 37202 Center for Historic Preservation 202-367-1861 615-244-5263 PO Box 80 www.civilwar.org www.landtrusttn.com Middle Tennessee State University Murfreesboro, TN 37132 Tennessee Department of Transportation Tennessee Preservation Trust 615-898-2947 Transportation Enhancement Program PO Box 24373 www.mtsu.edu/tncivwar James K Polk Bldg Nashville, TN 37202 7th Floor, Suite 600 615-259-2289 American Battlefield Protection Program Nashville, TN 37243 www.tennesseepreservationtrust.org National Park Service Marilyn Holland, Enhancement Coordinator 1849 C Street NW NC 330 615-532-3184 Tennessee Dept of Tourist Development Washington, DC 20240 www.tdot.state.tn.us/enhancementApp.pdf 320 6th Ave North - 5th Floor 202-343-1210 Rachel Jackson Bldg www2.cr.nps.gov/abpp Tennessee Historical Commission Nashville, TN 37243 Tennessee Wars Commission 615-741-8299 or 741-2159 Tennessee Civil War Preservation Association Clover Bottom Mansion www.stste.tn.us/tourdev PO Box 138545 2941 Lebanon Road Nashville, TN 37214 Nashville, TN 37243 Mary Ann Peckham—Exec Dir (615) 532-1550 ([email protected]) Contact: Fred Prouty www.tcwpa.org www.state.tn.us/environment/hist/
May 2004 CENTRAL FRANKLIN AREA PLAN RIVER 43
Chapter 7: River
Priority Actions to Enhance the Role of the Harpeth River in Central Franklin Expand existing City parklands and access to the Harpeth River where feasible Explore and implement opportunities to redevelop nonconforming uses—bringing increased activity to the riverfront and enhancing the downtown core
and viability of the downtown core. The river is lined by uses that are viable, including an established junkyard, but that do not contribute to Introduction the community’s goals for the downtown core. Other large riverfront The Harpeth River is a tremendous asset to Central Franklin that is properties, only steps from Main Street, contain vacant structures that underused. Its banks have very limited pedestrian access from sit unused, including a vacant boot factory, and several grain silos. downtown. The City has taken steps to enhance community access to The river offers several exciting opportunities for Central Franklin: to the River with the addition of Pinkerton and Fort Granger Parks and connect the core area to the rest of the City, to extend the reaches of recognizes the need to further enhance the River’s presence in the City’s original fifteen-block area to the banks of the river, and to downtown while protecting its many sensitive environmental features. provide an increased awareness among residents and visitors of the While groups such as the Harpeth River Watershed Association river’s presence and scenic quality. Naturally, any future plan for (HRWA) are actively dedicated to preserving and restoring the development along the river will need to be carefully designed to ecological health of the river, less emphasis has been placed on the ensure the integrity of its corridor so that public access to it can be river in terms of the potential role it could play in the long-term health maintained, floodplain issues can be addressed, and a strong visual
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are protected. Existing City parklands and access to the river will be expanded where feasible. The City will use sound floodplain management principles in reviewing development proposals. 2. The City will assist interested property owners and organizations in exploring and implementing opportunities to redevelop nonconforming uses and bring increased activity to the riverfront. The incorporation of a mix of uses will be promoted and may include park and other recreational facilities, as well as more active uses, such as entertainment and shopping venues, and possibly residential uses, provided that floodplain requirements can be met and improvements can be undertaken in an environmentally sensitive fashion. 3. The City will explore and encourage the use of innovative storm water mitigation techniques that include site design and road design standards and appropriate buffers along the river and its tributaries. This would apply to all development and physical relationship between the riverfront development and the and redevelopment in the Central Franklin Area in order to established character of the downtown core can be achieved. The City reduce current problems of flooding and pollution from recognizes the Harpeth River as a significant amenity whose presence storm water runoff, especially in the older areas with old is a contributing factor in the long-term health and viability of drainage infrastructure and extensive impervious surfaces. downtown, as well as a major asset for citizens. The following actions will be taken to improve the visibility of the river and its role in Central Franklin:
ACTIONS 1. The City will coordinate its ongoing planning efforts with organizations such as the Harpeth River Watershed Association to ensure that its sensitive environmental features, including its tributaries, floodway and hillside areas
May 2004 CENTRAL FRANKLIN AREA PLAN LAND USE STRATEGY 45
was also developed to address the high importance and distinct character of the Downtown Core.
LAND USE STATUS MAP The Land Use Status Map provides a second layer of information to support the designations of the Future Land Use Map by identifying: Chapter 8: Land-Use Strategy areas that are stable and not likely to change,
areas that are likely to change or will be encouraged to change, and Overview areas that are in need of protective measures to ensure that undesired change is minimized. The Land-Use Strategy represents the community’s physical vision for Central Franklin. The Strategy is applied at three levels: the Future While the designations on the Land Use Status Map do not offer any Land Use Map, the Land Use Status Map and the Special Planning guarantee for a particular parcel’s long-term status one way or Area Maps. The levels are intended to build upon the specific actions another, they represent a particular position the City will take for an contained in Chapters 3 through 7 of this Plan and should be used in area during the implementation of this plan, during subsequent studies conjunction with them. in the area, and if future development is proposed for the area. The designations also serve to focus the guiding principles contained in FUTURE LAND USE MAP Chapters 3 through 7 of this plan on specific areas of need. For instance, the application of actions related to neighborhood protection The Future Land Use Map establishes physical boundaries for a series and preservation will be focused in those areas identified on the Land of “design concepts” that guide the way different land uses can be Use Status Map as areas in need of protective measures. developed and mixed relative to each other. The idea of the design concept is carried forth from the citywide Land Use Plan to provide the City staff with a well-integrated set of tools to be used in the day-to- SPECIAL PLANNING AREAS day administration of both plans. While the names of the design Special Planning Areas represent those areas within Central Franklin concepts have been retained, the description and guidelines where future change is not only possible but will be encouraged by the supporting each design concept designation have been tailored to City. The Special Planning Areas are in two categories: residential meet Central Franklin’s unique needs. An additional design concept infill sites and infill and redevelopment opportunities for the fifteen- block area. Discussion of the residential sites is relatively detailed,
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identifying desired future land uses, appropriate densities and specific site considerations that will need to be addressed to ensure that Design Concepts compatibility with the surrounding neighborhood can be achieved. In The following Design Concepts establish a series of design templates the fifteen-block area, opportunities for both infill and redevelopment that guide the way different land uses can be developed and mixed are identified, but suggested uses are more conceptual in nature to relative to each other. An overview discussion of each Design place a greater emphasis on the need to address the site in the future Concept is provided and a series of guidelines established that will and less emphasis on a specified use for the area. allow the City to evaluate the quality and character of new growth. The guidelines are intended to supplement the City’s Design Standards that focus on more detailed aspects of individual site design, as well as How to Use the Land Use Strategy additional area specific guidelines that exist within Central Franklin. Although all but one of the Concepts is the same as those found in the The Land Use Strategy serves as a vision for the physical future of citywide plan, their descriptions and associated guidelines have been Central Franklin. It is also a guide for decision making in regard modified to address Central Franklin’s specific needs and should be to proposed new development or redevelopment of existing uses. used expressly within Central Franklin. These Design Concepts are When used as a guide for the development or redevelopment of intended to link the details of design and the larger-scale issues of specific properties, conformance with this Plan should be integrating and mixing land uses to reinforce the existing quality and determined as follows: livability of Central Franklin’s neighborhoods and districts.
1. Determine the Design Concept that applies to the property Each of the concept-level designations is described below: by referring to the Future Land Use Map.
2. Review the Design Concept guidelines that apply from this chapter. DOWNTOWN CORE 3. Determine the Land Uses that are appropriate in the Design The Downtown Core Concept is comprised of what has been Concept from the Land Use Matrix. traditionally referred to as the fifteen-block area, as well as additional 4. Determine the Land Use Status that applies to the property properties lining the Harpeth River northwest and northeast of the core by referring to the Land Use Status Map. area, and the properties surrounding the Five Points intersection. 5. Finally, review the Special Planning Area Maps to Today, the area is comprised of many historic structures and a varied determine whether there are any specific recommendations mix of uses, including detached single-family homes; restaurants, applicable to the property. boutique retail shops, a bookstore, coffee shops and other small-scale commercial uses typically found in a downtown setting; major public uses that include the Williamson County Courthouse and
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administrative offices and the City of Franklin offices; and a variety of 1. A mixture of uses is encouraged, not just within larger churches and other institutional uses. A diverse mix of uses will developments, but also on individual parcels and within continue to be encouraged within the downtown core to ensure that it individual buildings. continues to function as the City’s civic, retail and residential focus. 2. Where appropriate within the established neighborhood
context, high-activity uses such as retail are encouraged on MIXED-USE CENTERS the first floor, with uses such as offices and residential Mixed-Use Centers are existing areas within Central Franklin that encouraged on second floors. Typically, this pattern of provide services, employment opportunities and housing adjacent to development should be limited to larger parcels or groups of existing neighborhoods. In most cases they are located along major parcels at key intersections or other areas where a higher corridors into the downtown core, such as the Columbia Avenue level of intensity is desirable. Corridor or the West Main Street Corridor. Others are more “nodal” 3. Buildings should be designed to respect the street context, to in form, such as The Factory and its surrounding area. form street walls where appropriate and to provide transitions in height to adjacent neighborhoods of lesser intensity. Mixed-Use Centers in Central Franklin differ from those in outlying areas of the City in several ways. The majority of Mixed-Use Centers 4. Buildings and sites should be designed to emphasize pedestrian in Central Franklin are existing. They are typically linear in fashion scale, human-scale architecture and landscaping. Smaller and consist of a single row of lots along a roadway, although larger parking areas should be located behind buildings and away sites or concentrations of uses may exist. Opportunities to alter from the street to the extent feasible, and larger parking areas existing Mixed-Use Centers beyond a site-by-site approach will should be landscaped to screen surrounding neighborhoods typically require the assemblage of multiple parcels and the use of from them. redevelopment tools. The intensity of development in Mixed-Use 5. All sides of a building open to view by the public and Centers in Central Franklin may also be limited in some areas due to adjoining neighborhoods should display a similar level of the sensitive nature of the surrounding neighborhoods. architectural quality and subdivided and proportioned using features such as windows, entrances, arcades, awnings or Typical uses in Mixed-Use Centers could include detached or attached similar features. residential, professional offices, retail, specialty stores, personal 6. Streets and driveways should be designed to be compatible services, restaurants, groceries, pharmacies and daycare centers. The with pedestrian ways to encourage a pedestrian-friendly following guidelines will apply to review within Mixed-Use Activity environment. When multiple sites are assembled, driveways Centers: should be consolidated to minimize curb cuts along the street
frontage.
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7. Larger sites should be broken up into a series of smaller Central Franklin’s neighborhoods, which were built between the 1860s “blocks” where possible. The width of internal streets should and 1940s. be sensitive to pedestrian scale and minimized to avoid overwhelming that pedestrian scale. The design is typically characterized by a “grid”, or frequently interconnected street network, typically with alleys, mixed-housing 8. Site furnishings, such as benches, bike racks, lighting fixtures, types and some mixed uses. These mixed uses, with basic architectural seating, trash receptacles and tree grates should be consideration, can be integrated into a neighborhood, even if the addressed in the streetscape plan. neighborhood is new. Accessory residential units are also easily 9. The location of service areas and mechanical equipment accommodated. This type of development requires a different set of should be considered as part of the overall site design. physical standards, including maximum setbacks or “build-to” lines, 10. Service areas and mechanical equipment should be screened porches and rear-facing or detached garages. Higher densities from public view. common in TNDs are also traditionally found in and appropriate for Central Franklin because they promote the efficient use of established 11. A master sign plan should be prepared illustrating the infrastructure, the efficient use of land, more potential pedestrian location, materials, size and type of all signage. opportunities and the creation of a “critical mass” of residents 12. A lighting plan should be prepared, including a photometric necessary to maintain a vital downtown core. illustration. While there are some opportunities for “greenfield” TNDs in Central 13. Lighting should be designed to avoid spillover onto adjacent Franklin, many of the opportunities are likely to be focused within the properties through the use of cutoff shields or similar Special Planning Areas and will be more oriented towards infill and features. redevelopment.
TRADITIONAL NEIGHBORHOOD DEVELOPMENT The following polices will guide the City in the consideration of new TNDs and infill and redevelopment projects within existing TNDs: Traditional Neighborhood Development (TND) is modeled after the pattern of development popular up through the mid-1900s and is 1. TNDs are only appropriate when part of a Master Plan for typically applied to new development areas. The traditional the entire area of the TND. neighborhood concept reflected human scale, walkable communities with a mix of uses and density and mixed-use cores very similar to that 2. The dominant use in TNDs should be residential, with of Central Franklin. The TND Design Concept is a modern adaptation nonresidential uses subordinate to residential. Mixed uses of that historic pattern and therefore translates very well to many of are encouraged within TNDs, but they are residential
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neighborhoods first, with nonresidential uses providing 10. This concept should be designed to capitalize on options for support to the neighborhood. open space/trail connectivity without interrupting its own form of design. 3. The TND should respect the existing character of traditional areas. It should help create and maintain Central Franklin’s “small-town identity”. CONVENTIONAL NEIGHBORHOODS 4. The street system should have multiple interconnections. This This Design Concept consists of the typical residential subdivision that allows multiple opportunities for people to walk to local was built in Franklin over the past thirty years. While this type of destinations by a variety of routes. Streets should be designed neighborhood is much less prevalent in Central Franklin than in for slower speeds to allow for mixing of vehicular and outlying areas of the City, examples include areas like Yorktown and pedestrian traffic. Ralston Glen Subdivisions. These neighborhoods generally consist of 5. There should be a short distance to amenities; sites should detached housing on lots with front, rear and side yards. be designated for churches, parks, schools, stores and other Conventional Neighborhoods are usually single-use developments public gathering places within a five-to-ten-minute walk from and do not typically include business, institutional or other non-single- homes. family uses. They may include either passive or active open-space uses, but these are rare and not usually connected from one 6. The internal density of this use concept should be variable to subdivision to another. They may also include attached housing, respect established patterns and densities. which occurs in multifamily complexes, but this is typically not the case 7. Mixed housing types should be permitted in some manner. in Central Franklin. The street pattern is usually curvilinear with They can encourage some alternative accessory housing numerous cul-de-sacs. While this development concept is common options, such as accessory apartments. with new residential development, it can create unconnected and isolated “pods” of development, encourage an over reliance on the 8. Homes should relate to and address the street. The main automobile, fail to create usable open space and not allow a sufficient entrance of buildings (not the garage) should be oriented to number of ingress-egress alternatives. Pedestrian facilities, particularly the street, and the progression of public to private between subdivisions, are piecemeal and often uninviting to characteristics of traditional neighborhoods (street to pedestrians. sidewalk to front yard to front porch) should be preserved. 9. The TND concept may provide a wider spectrum of permitted Most of Central Franklin’s Conventional Neighborhoods are built out, uses and layouts, which would encourage internal movement however, should remaining portions of the original subdivision remain and reduce automobile congestion often caused by lack of available for development, it is recommended that development be connecting streets and isolated residential uses. completed with the same pattern and character, while making
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incremental improvements to better integrate distinct neighborhoods CONSERVATION with each other and other areas of Central Franklin. Conservation areas include floodplain areas, hillsides greater than twenty percent in slope, hilltops and public parks. The importance of The following are guidelines for development in the Conventional these features lies not only in the protection of sensitive visual and Neighborhoods: environmental resources but in the community’s desire to establish an interconnected system of open space along the Harpeth River and its 1. High-quality design will be encouraged through continued many tributaries that links its many detached neighborhoods to one implementation of the Design Standards. another and to the downtown core. The Conservation Design 2. Conventional Neighborhoods should emphasize more Concept is unique in that it contemplates as little development as connectivity between subdivisions, while avoiding the possible. Development within conservation areas is inappropriate and creation of isolated islands of development. will be discouraged to the maximum extent provided by law.
3. More street connections should be encouraged in residential Most importantly, however, conservation areas facilitate the subdivision design. Rather than focusing traffic on a few preservation of floodplains, which has a direct public safety purpose collector streets or arterials—which tends to create and helps to minimize property damage during periods of flooding. bottlenecks of congestion—more through streets should be The specific way this planning policy is applied depends on the encouraged to better disperse traffic and to reduce its regulations adopted in the City’s zoning ordinance and subdivision isolated impacts at certain points. regulations. In addition to these specific regulations, the policy of 4. When new development occurs, it should be designed conservation of the areas designated for Central Franklin will guide around and connected to any open-space corridors or the City in decisions about specific site plans, property acquisition, networks. park planning and other related planning decisions.
5. Pedestrian facilities should be included in all new The following are the policies that will guide the City in Conservation developments, unless circumstances make this unrealistic. Areas: The City should work with developers to develop plans and
standards for pedestrian systems to tie subdivisions together. 1. Development is limited to non-intrusive changes designed to In particular, improved connections between key destination provide public access, where appropriate. These are limited areas should be developed, such as between residential and to trails, parks, access drives, parking areas, shelters or commercial areas, and between residential areas, parks and related uses but only upon a determination that the schools. environmental integrity of the area can be protected.
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2. On sites with a portion located in a Conservation Area, the transfer of development density from one area of the site to the other is appropriate. The City should continue the use of the slope and floodway protection regulations adopted in 2000.
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Land-Use Matrix LAND USE
Legend √ Appropriate Land Use
ttached Residential DESIGN CONCEPT ransitional Office Neighborhood Retail Local Retail Institutional Environmental Conservation Private Recreation Public Park Detached Residential A T Professional Office
Downtown Core √ √ √ √ √ √ √ √ √
Conventional Neighborhoods √ √ √ √ √ √ Traditional Neighborhood Development √ √ √ √ √ √ √ √ √ Mixed Use Center √ √ √ √ √ √ √ √ √
Conservation √ √ √
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Land-Use Definitions
The definition of individual land uses provides the most detailed level of DETACHED RESIDENTIAL the Central Franklin Area Plan. The following are definitions of each of the Primary structures (other than a mobile home) intended for occupancy by a possible land use categories to be used in association with the Land-Use single family, located on a separate lot or parcel from any other structures Matrix. intended for the same use and not sharing any common structural elements with any other structure intended for occupation by another family. ENVIRONMENTAL CONSERVATION Environmental Conservation is identified in this Plan as both a Design NEIGHBORHOOD RETAIL Concept and a Land-Use category. It includes land that is subject to Commercial retail uses and personal services in concentrations with gross severe development constraints due to natural conditions, such as hillside leasable areas of up to 50,000 square feet on smaller sites of less than five slopes and hilltops or the threat of flooding. It is land that is maintained or acres intended to serve surrounding neighborhoods within a one- to three- restored to a natural state for the express purpose of the preservation of mile radius. Such uses are generally located in stand-alone buildings or in passive open space, natural resources or environmental aesthetics. small commercial centers and may include convenience stores, beauty salons, restaurants, small grocery stores, drug stores, small clothing stores PRIVATE RECREATION and specialty shops. Land intended for recreational purposes, or open space not open to the general public or owned by a public entity, but accessible to those who LOCAL RETAIL pay a fee for the use of the recreational facilities. Commercial retail uses and personal services in concentrations with gross leasable areas of 50,000 to 120,000 square feet on sites of five to fifteen PUBLIC PARK acres that provide services to an area within a three- to five-mile radius, as Land owned by a public entity intended for either passive or active well as automotive traffic generated from major highways. This category recreation. They may include, but are not limited to, playgrounds, hiking may include automotive service uses, building-supply uses, general retail, trails, nature preserves, municipal pools and ball Park. The area served motels, restaurants and related uses. Note: Square footages are for should be taken into account when determining the function and scale of general reference only; however, large, single-use buildings in excess of a park. 120,000 square feet are not consistent with Central Franklin’s established character and will be strongly discouraged. ATTACHED RESIDENTIAL Primary structures intended for occupancy by more than one family, including duplexes, triplexes, townhouses and other multifamily structures.
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Land-Use Definitions
INSTITUTIONAL Land used for civic purposes (City hall, police and fire stations, public libraries, etc.); cemeteries, churches, educational facilities (universities, public and private primary and secondary schools), community centers and similar uses. TRANSITIONAL OFFICE Low-intensity office uses are appropriate in locations where a change or a transition in land use is occurring and a less-intensive land use is appropriate. Transitional Office structures are generally 2,000 square feet or less and may be in stand-alone buildings or converted residential structures. They may include businesses such as family dentist’s or doctor’s offices, funeral homes, insurance offices, personal services, real estate offices or similar uses. These uses typically have limited building sizes, parking-lot sizes and hours of operation.
PROFESSIONAL OFFICE Any building or structure primarily used to conduct business, where no sales of stock-in-trade, manufacturing, or warehousing occur. Professional offices may include attorney offices, daycare centers, doctor’s group practices, office suites for individual businesses, real estate offices, sales offices and telemarketing centers.
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AREAS OF CHANGE Land-Use Status Areas of change are areas in need of improvement that will likely In contrast to the citywide land use plan, changes to Central Franklin’s result in fairly dramatic changes. These areas generally consist of a existing land-use patterns will be targeted in specific areas or to wide array of land uses that are not necessarily compatible with each specific parcels. Areas not targeted for specific change will be other or with the surrounding neighborhood. In many cases classified in one of two categories on the Land Use Status Map: stable development is of poor quality and has occurred in a piecemeal areas and areas of change. This approach is largely driven by the fashion over an extended period, or has simply become obsolete. limited amount of vacant, unconstrained land available to Areas of change may also encompass vacant parcels within an accommodate future development, the community’s desire to ensure established neighborhood or business district. Infill or redevelopment the long-term viability and stability of its core commercial area and will be encouraged in these areas and will likely occur in one of three neighborhoods, and its struggle to address the varied needs of a ways: as residential infill development on vacant sites within existing dynamic population. The Land Use Status Map is not intended as a neighborhoods; as redevelopment of obsolete, inappropriately located guarantee for a particular parcel’s long-term status, but rather as a uses or underused parcels for more suitable uses; or as an outcome of general statement of planned stability or anticipated change to inform a more detailed study for a specific area, such as a parcel-by-parcel residents and property owners and to guide the City in making future assessment and recommendation for a specific corridor. land-use decisions. AREAS IN NEED OF PROTECTIVE MEASURES STABLE AREAS Areas in need of protective measures may include areas of historic Central Franklin’s neighborhoods continue to be some of the most significance that are not eligible for protection using traditional desirable in the City and will continue to be very viable during the preservation tools or areas of high scenic value to the community. The coming years. The stability of these neighborhoods is reinforced by City’s emphasis in these areas will be on the identification of the limited availability of vacant land suitable for infill development appropriate tools for the long-term protection of these areas, including and by limited outside development pressure. Stable neighborhoods the use of neighborhood conservation districts in residential areas or are intended to retain their existing design, land use and other the use of targeted development standards to preserve the scenic distinguishing characteristics throughout the life of the plan. The quality of key parcels. ongoing condition of stable areas will be monitored, and changes to the underlying zoning districts will be discouraged.
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CENTRAL FRANKLIN AREA PLAN May 2004 58 LAND USE STRATEGY
DOWNTOWN CORE OPPORTUNITY SITES Special Planning Areas Downtown core opportunity sites represent a more general overview of infill and redevelopment opportunities that could be pursued to bolster The Special Planning Areas represent the most detailed level of the the long-term health and vitality of the downtown core. Sites are Land Use Strategy. They provide an additional “layer” of detail to the identified based upon a variety of factors, including the desirability or Land Use Status Map, identifying specific parcels or groups of parcels proximity of their location to downtown businesses or employers, the to be targeted for infill or redevelopment. The Special Planning Areas compatibility—or lack thereof—of existing uses on the site with are broken into two groups: residential opportunity sites, and infill and adjacent uses, and the need for improvement to a particular building downtown core opportunity sites. or site. All sites have been identified with the specific actions identified in Chapter 3, Small-Town Identity in mind and should be used as a RESIDENTIAL OPPORTUNITY SITES catalyst for those actions. Potential uses have been identified for each site and are intended to provide general guidance. Future infill and Infill opportunity sites are intended to allow for the diversification of redevelopment activities within the downtown core will need to be Central Franklin’s housing supply through the incorporation of carefully considered within the confines of current market conditions, additional residential development within or adjacent to established adjacent development patterns and the overall mix of uses within the neighborhoods. Specific sites are identified as opportunities for future core at the time of development. infill residential development on the Residential Opportunity Sites Map. Key physical aspects of each such as size, location, access and existing development context are provided in the corresponding table. In addition, suggested types of residential development that could be accommodated on the site are listed, as are issues and key success factors that would need to be addressed in order to ensure that future development is compatible within the existing development context. Suggested uses are not intended to rule out other types of residential uses that might be appropriate for the sites, but rather to provide an element of predictability for the surrounding neighborhood and to serve as a guide when infill of one or more of the opportunity sites becomes feasible.
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SITE SIZE CHARACTERISTICS USE POTENTIAL ISSUES/KEY SUCCESS FACTORS NO. 1 14 acres Located just east of Jim Warren Park, Additional single-family Compatibility with existing homes should be south of New Hwy 96 W residences at higher maintained, particularly Magnolia Hall, a Zoned High Residential (HR), max 3 intensities National Register property dus/acre Development setback should be provided along Existing residences just east of the site the northern edge of the site to preserve the rural are on lots ranging from 3 to 3.5 acres character of the New Hwy 96 W corridor Access to the site is adequate Across from attached units 2 5 acres Site is comprised of 3 separate parcels 16 high-end condo units Adequate buffering and/or a transition in scale Parcel west of 11th Ave (former cheese planned for parcel west of should be provided between infill residential and plant) is zoned Light Industrial (LI) and 11th Ave ($300,000 per unit) surrounding single-family residences on all sites consists of approximately 2 acres Alternately, the combined to ensure compatibility Northern parcel east of 11th Ave consists sites would be appropriate Mix of zone districts would need to be resolved of approximately 1 acre and is zoned for more intense residential on sites across from cheese plant HR, which permits residential densities of development, potentially Traffic-control measures and access to southern up to 3 dus per acre including some affordable parcel east of 11th Ave would need to be Southern parcel east of 11th Ave consists units addressed of approximately 2 acres and is zoned Other potential uses could More intense development should be focused HR, max 3 dus/acre and General include a neighborhood towards rear of lots since buffer would exist Residential (GR), max 6 dus/acre cultural center
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SITE SIZE CHARACTERISTICS USE POTENTIAL ISSUES/KEY SUCCESS FACTORS NO. 3 13 acres Located north of Liberty Pk and east of Site’s proximity to the Design and intensity of infill development must Franklin Rd, between Fort Granger and downtown core and adjacent be compatible with existing single-family homes The Factory commercial uses make it to the south ideal for attached single- Approximately half of the site is zoned for Medium Residential (MR), max 2 family or multifamily uses dus/acre; the remaining portion is zoned for Planned Commercial (PC), max 12 dus/acre. A freight railway borders the site on the east Access to the site is favorable and infrastructure is in place 4 7 acres Located along the north bank of the Single-family residential Development should be carefully sited to Harpeth River west of Franklin Rd similar in character to existing preserve the rural character of the Franklin Rd Property is zoned Low Residential (LR), homes in Riverview Acres as frontage and the existing manor house max 1 du/acre a transition to Downtown Stormwater and floodplain considerations will be Access to the site could be provided via Core uses on the south side a factor for any future development. Clustering an existing cul-de-sac off of Lancaster of the river residences to create open space along the Dr floodplain is an option. 5 9.2 acres Located north of Harpeth Meadows Pattern of detached single- Intensity and layout of new homes would need to Subdivision and west of Myles Manor family homes in adjacent be compatible with surrounding homes Park Subdivision subdivisions could be Zoned for Estate Residential (ER), max extended 0.5 dus/acre Preserve as is New infill single-family detached across street
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SITE SIZE CHARACTERISTICS USE POTENTIAL ISSUES/KEY SUCCESS FACTORS NO. 6 4.8 acres Located adjacent to O’More College, Potential extension of Scale of development must be compatible with south of Berry Cir, between railroad and O’More College for surrounding residences, particularly those existing homes to the west associated residences, such immediately to the west Zoned HR, max 3 dus/acre as dormitories, or single- Limited access and increased traffic impacts on Access possible from Berry Cir family detached or surrounding neighborhood is a concern for more multifamily dwellings intense residential uses Traffic and access concerns would be reduced with a college-related use, such as a dormitory 7 0.16 acre Located at southwest corner of Natchez Park or other non- Although the owner had expressed an interest in St and 9th Ave development use developing the site for residential uses, City has Zoned GR, max 6 du/acre recommended that a park or other non- development use be explored due to the limited area of the site 8 3 acres Located along east side of Evans St Single-family Single-family pattern along 5th Ave could be between E Fowlkes and Blackburn Sts extended, with new homes oriented towards Zoned HR, max 3 du/acre Evans St Comprised of the rear portion of existing Lot sizes and scale of homes should be similar to single-family lots fronting on 5th Ave existing homes to ensure compatibility Resident expressed concern of retaining park-like setting 9 4.6 acres Some zoned PR, max 7.1du/acre; Opportunity to redevelop Compatibility with surrounding uses remainder zoned GR, max 6 du/acre public housing to include a Combine with HG Hill redevelopment mix of housing types and Owned by Franklin Housing Authority densities Affordable housing
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SITE SIZE CHARACTERISTICS USE POTENTIAL ISSUES/KEY SUCCESS FACTORS NO. 10 14.6 Located on former Battle Ground Opportunity to infill rear of Maintaining appearance of property from acres Academy site along Columbia Ave site, possibility of mix of Columbia Ave Large portion of site zoned HR, max 3 single-family attached and Gateway du/acre; remainder zoned GR, max 6 detached Would like to protect what is there—buildings du/acre Governmental or institutional and buffer use in BGA Buildings Limit access to Columbia Ave Senior housing Use related to Heritage Tourism Dwelling on corner could Battle Ground Academy serve as welcome center, battlefield museum and visitor center 11 83 acres Located between Lewisburg Ave and Single-family Potential for increased traffic on Murfreesboro Rd Murfreesboro Rd, approximately ¼ mile Potential for higher density if if higher densities were used—would need west of Mack Hatcher Pkwy access can be provided from alternate access point from Mack Hatcher Pkwy Zoned MR, max 2 dus/acre Mack Hatcher Pkwy Compatibility with adjacent development The People’s Church property patterns—either match or use moderate densities to transition from institutional uses and Mack Hatcher Pkwy to east Need rear drive for access to Mack Hatcher Pkwy Elevation change helps provide buffer to Murfreesboro Rd Church requested buffer between their land and adjacent development Green property
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SITE SIZE CHARACTERISTICS USE POTENTIAL ISSUES/KEY SUCCESS FACTORS NO. 12 117 acres Zoned MR, max 2 dus/acre Single-family detached Preserve character of corridor as viewed from Zoned HR, max 3 dus/acre Murfreesboro Rd by focusing development behind North Ewingville Creek and existing homes Preserve floodplain of North Ewingville Creek Access Compatibility with adjacent single-family 13 1.5 acres Located east of 11th Ave between Glass Single-family attached and Ensure compatibility with adjacent single-family and Mount Hope Sts. detached homes Site is located behind existing homes Recreation center Access to interior of site may need to be and is accessed from Johnson Alley provided from 11th Ave Site is not currently being used American Legion (Hard Bargain) Zoned GR, max 6 dus/acre Need to control property tax hikes that may result from new investment 14 7.6 acres Site was formerly occupied by a tobacco Mix of housing types and Scale of homes should be compatible with factory, located between Mount Hope St densities—single-family adjacent neighborhood th and 11 Ave behind existing single- attached and detached Rezoning to residential use necessary th family homes fronting on 11 Ave Existing building on site is currently leased; Zoned LI, which does not allow however, existing nonresidential use is no longer residential development appropriate for location with proximity to Portion of site in floodplain downtown core Preserve floodplain for future trail connection 15 6.2 acres Site fronts onto New Highway 96 W and Remain HR Compatibility with existing homes in Hincheyville backs up to existing single-family homes Keep residential uses as Access points onto New Highway 96 W would in Hincheyville buffer along New Highway need to be limited Zoned HR), max 3 dus/acre 96 W on the Hincheyville Preserve existing residential character Lots are deep, but not all lots are side buildable
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SITE SIZE CHARACTERISTICS USE POTENTIAL ISSUES/KEY SUCCESS FACTORS NO. 16 0.5 acre Located at southeast corner of 7th Ave Attached or detached Attached dwellings may complement existing and Fair St residential uses Zoned HR, max 3 dus/acre 17 7 plus Located south of Boyd Mill Ave between Single-family residential or Floodplain should be retained for open acres existing single-family homes along higher intensity space/future trail connections Buckworth Ave and Sharps Branch condominium-type project Access from Buckworth Ave extension necessary Zoned HR, max 3 dus/acre Higher intensity uses may warrant use of buffer to screen single-family uses 18 6.9 acres Located near old elementary school building off of Downs Boulevard Zoned HR, max 3 dus/acre 19 12.7 Located near Fort Granger and Eddy Ln, Residential Rezoning required acres just east of railroad Zoned LI, which does not allow residential development 20 Liberty Pk at Mack Hatcher Pkwy Moderately-priced residential Zoned HR, max 3 dus/acre
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SITE NO. EXISTING USE(S) USE POTENTIAL/ISSUES 1 Vacant Condominiums or lodging with ground floor retail 2 Former Ice House Residential/office and/or retail 3 Varied: antiques shop, warehouse, Residential/office and/or retail with possible emphasis on railroad history and orientation towards vacant Pinkerton Park 4 Industrial, residential Mixed-use residential in conjunction with a riverfront park in flood-prone areas; could include senior housing with secondary commercial and offices 5 Commercial (boat sales) Gateway property Retail, residential or park would be desirable with a strong emphasis on design Strong orientation to the river and street 6 Produce market, parking Uses should be relocated over time to allow expansion of riverfront park system 7 Storage, vacant Renovation of second oldest jail Potential removal of most recent jail (out of character with neighborhood) 8 Antiques Long-term redevelopment potential 9 J.L. Clay Senior Citizens Park Encourage transition to joint-use facility 10 Strip commercial Encourage mixed-use with a more urban form characteristic of the downtown core 11 Church parking Potential parking structure site 12 Parking Potential parking structure site. Visibility from surrounding streets would be fairly limited 13 Counseling center Encourage retention of existing use 14 City hall Long-term redevelopment potential 15, 16,17 Varied Long-term redevelopment potential 18 Former County library Potential for inn, visitor’s center, retail or combination of these Pedestrian orientation of adjacent Five Points intersection should be improved, “roundabout” one option
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SITE NO. EXISTING USE(S) USE POTENTIAL/ISSUES 19 Former boot factory Mixed use: park, residential, office, outdoor market Any future use must address flood plain issues
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ZONING TOOLS (REGULATORY REFORM) The City’s development regulations will need to be consistent with the policies of the Plan for it to be realized. The City will need to revise its existing development regulations and standards in some instances to achieve these goals and policies. For example, the Plan recommends Chapter 9: Implementation Tools the adoption of Residential Infill Development Design Guidelines to address contextual issues of infill and redevelopment within established neighborhoods. The City will need to revise existing development Introduction standards with new standards for such development. Generally, A key aspect of any plan is how it is carried out after it is adopted. revisions should occur in conjunction with or soon after adoption of The Implementation Tools state how the City may best accomplish the the Plan. specific actions outlined in the Central Franklin Area Plan through a variety of recommended actions. NON-ZONING IMPLEMENTATION INITIATIVES (POLICY DECISIONS AND PROGRAMS) Implementation Tools The Plan identifies a number of actions that will be carried out during To achieve the Plan’s objectives, it is necessary to identify the types of day-to-day policy decisions made by the City planning staff, the tools that will be required, to determine the responsible party or Planning Commission and the Board of Mayor and Aldermen. The parties, and to determine the priority and timing of the actions so the Board will continually make decisions regarding development City is able to allocate necessary resources. Implementation tools are proposals and plan amendments. The Plan serves to guide such broken into three categories: Zoning Tools, Non-Zoning policy decisions that will occur throughout the life of the Plan.
Implementation Initiatives, and Redevelopment Tools. Each of these categories is briefly described below. A matrix overview of each is The Plan establishes a foundation for new programs to carry out the provided at the end of this chapter. The matrices categorize each of community’s goals for Central Franklin. For example, some strategies the Plan’s action items according to the type of implementation tools involve participating in planning efforts with other jurisdictions and that will be needed to implement it, as well as the relative priority of organizations, such as Williamson County, the Redevelopment each action. Authority, the Downtown Franklin Association, Franklin Tomorrow and many others. Special-area studies may be necessary to accomplish other goals and policies, such as a coordinated study for the Columbia Avenue Corridor. Other policies may require the initiation of other planning efforts, such as the policy that supports
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establishment of a Neighborhood Conservation Program. Programs government desires improvement and has access to funding have varying levels of priority, depending on the issues involved. opportunities not available outside redevelopment designation. Consequently, the City will initiate Programs at different timing intervals. Action Plan Matrices REDEVELOPMENT TOOLS The Action Plan Matrices, on the following pages, provide a detailed list of the actions needed to implement the Plan, by issue. The matrix Communities of all sizes across the United States are focusing today indicates the type of actions that will be required to implement the on the redevelopment of their central business and residential areas. In policies, and the priority of the actions to be initiated. The City staff Tennessee, a housing authority established under state law may create and planning officials will need to update this matrix on an annual a “Redevelopment Plan.” The local government then adopts this basis, or as necessary, to keep the responsibilities and actions current. Redevelopment Plan, which becomes the primary tool used by the housing authority, in conjunction with the local government, to The “Priority” column lists four possible time frames for implementing accomplish the redevelopment goals of a community. Generally, a actions: (1) Immediate Priority, to be implemented with adoption of the Redevelopment Plan defines a specific geographic area for Plan or soon thereafter. (2) High Priority, to be initiated as soon as redevelopment and sets the parameters for redevelopment. The possible and completed within one to two years after Plan adoption. primary purposes of redevelopment are for parcel accumulation in (3) Moderate Priority, to be completed within three to five years after underutilized, blighted or Brownfield designated areas, and in areas Plan adoption. (U) Underway, actions that are in progress. where environmental remediation might be required. These areas meet state definitions for redevelopment and are areas where local
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Zoning Tools
PLAN POLICY CURRENT CODE/TOOLS RECOMMENDED OPTIONS RESOURCE COMMITMENT PRIORITY (1-3 OR U) Encourage compatible infill CC District encourages Create new CC-1 (core) and Staff: Moderate 3 and ground-floor retail in suburban development CC-2 District regulations Community: Moderate downtown forms Revise setback and other Consultants Moderate($10-12K) Office/Residential District dimensional regulations appears to be well accepted Encourage/require ground- floor retail Improve pedestrian/vehicular circulation standards Rear building appearance standards Utility undergrounding Maintain historic sites in Historic district zoning Clean up and expand local Staff: High 1 Central Franklin historic districts Community: High Examine alternatives such as Consultants: Low ($3-5K) conservation districts Parking standards Suburban parking Interim revisions to parking Staff: Moderate U requirements in zoning standards to address shared Community: Moderate ordinance parking Consultants: Low ($0-5K) Limits on building demolition for parking, and structured parking design, retail on first floor See also overall parking strategy
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PLAN POLICY CURRENT CODE/TOOLS RECOMMENDED OPTIONS RESOURCE COMMITMENT PRIORITY (1-3 OR U) Create public streetscape Standards from recent Build on Main Street standards Staff: Moderate 1 standards improvement projects (e.g., to create Central Franklin Community: Moderate Main Street) streetscape standards Consultants: Moderate ($25K) Residential protection and Historic overlay zoning, Infill design standards/pattern Staff: High (because high diversity 1 viability design standards (although book of styles/neighborhood character largely greenfield), Conservation district zoning requires multiple subareas) residential zone districts, (preservation “lite”) Community: High and neighborhood activism Negotiate tree-trimming Consultants: High ($50K+) policies with utilities (mainly staff implementation) Examine industrial district regulations to ensure neighborhood compatibility Encourage accessory Accessory use regulations Revise accessory use Staff: Moderate 3 housing in residential areas do not appear to permit regulations to permit accessory Community: Moderate accessory apartments in apartments with neighborhood Consultants: Low ($0-2K) residential districts protection provisions (e.g., size limits) Protect key entryway Current zoning district Create character overlay Staff: Low 2 corridors, especially provides no special districts that incorporate plan Community: Moderate Murfreesboro and Franklin provisions or protections policies (e.g., consistent Consultants: Low ($5K+) Rds Variety of zoning districts setbacks, open space and view protection)
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PLAN POLICY CURRENT CODE/TOOLS RECOMMENDED OPTIONS RESOURCE COMMITMENT PRIORITY (1-3 OR U) Improve appearance, Current zoning encourages Focused area plans with site- Staff: High 3 viability and functioning of strip commercial specific plans and affirmative, Community: High commercial corridors development market driven redevelopment Consultants: High ($50K+) (Columbia Ave, Hillsboro Recently adopted design strategy Rd, etc.) standards will help when Possible use of incentives and redevelopment occurs redevelopment authority Enhance appearance and Floodplain zoning and Examine floodplain zoning and Staff: High 1 use of river corridor Bicentennial Park plan possibility of uses such as Community: Moderate farmer’s markets/special events Consultants: Low ($5-10K) (see also redevelopment strategy) Create connections along river and with downtown Create site design and Current stormwater Consider improvements to Staff: High 1 street improvement management regulations urban design standards to Community: Low standards including urban incorporate streetscape Consultants: Low to Moderate cross-section designs that standards for storm water incorporate best management management practices for Work with multiple departments storm water management for public right-of-way and storm water management standards
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Non-Zoning Implementation Initiatives
PLAN POLICY RECOMMENDED OPTIONS RESOURCE COMMITMENT PRIORITY (1-3 OR U) Organizational/institutional Strategy Examine City role, coordinating committee, assignment of Staff: High 3 roles Community: High Consultant: Low Five Points strategy Examine uses and configuration of Five Points area, i.e., traffic Staff: High 1 circle, library reuse Community: High Consultant: Moderate Battlefield preservation Battlefield preservation plan that meets U.S. Department of the Staff: Moderate 2 Interior, NPS standards Community: High Consultant: Moderate Parking strategy Master parking plan after new garage opens Staff: High U Community: High Consultant: Low Redevelopment Redevelopment authority Staff: High 1 Community: High Consultant: Moderate Open space Land acquisition, open-space plan, connections to trails Staff: High 1 Community: High Consultant: Low Special area plan Columbia Avenue Staff: Moderate 3 Community: Moderate Consultant: Moderate
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PLAN POLICY RECOMMENDED OPTIONS RESOURCE COMMITMENT PRIORITY (1-3 OR U) Special area plan Franklin Road Staff: Moderate 1 Community: Moderate Consultant: Moderate Special area plan West Main Street Staff: Moderate 3 Community: Moderate Consultant: Moderate Examine Building Codes Review building code regulations to allow flexibility for Staff: High U adaptive reuse of older and historic buildings. Set new energy Community: Moderate and water efficiency standards that at least meet state Consultant: Moderate guidelines.
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May 2004 CENTRAL FRANKLIN AREA PLAN APPENDIX 77
Appendix Historic Preservation Plan—2001 Downtown Retail Study—2001 Columbia Avenue Design Guidelines—1999 Battlefield Corridor Protection Plan—1996
CENTRAL FRANKLIN AREA PLAN May 2004