North Nashville CDC Master Plan - ACCE | ACCE · The development of the North Nashville CDC Master...

North Nashville CDC Master Plan

CDC

MARCH 2002MARCH 2002

North Nashville Community Development Corporation


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NORTH NASHVILLE COMMUNITYNORTH NASHVILLE COMMUNITY DEVELOPMENT CORPORATIONDEVELOPMENT CORPORATION MASTER PLANMASTER PLAN TABLE OF CONTENTS

Background ........................................................................ 1 Study Area Boundaries ....................................................... 3 Demographics .................................................................... 4 Traffic Count ...................................................................... 7 Economic Activity/Business Development ......................... 8 Goals of the Master Plan..................................................... 10 Recommendations .............................................................. 14 Action Plan......................................................................... 21 Conclusion ......................................................................... 23

Conceptual Development Plans Overall Master Plan............................................................ 15 Community Services District .............................................. 17 Cultural Arts District & Healthcare/Professional Services District ................................................................. 20

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BACKGROUND North Nashville is a traditional, predominantly African-American, inner-city community

near downtown Nashville. Historically, Jefferson Street served as the cultural,

educational and business center of the area. At its peak, it was a thriving center of

activity with a variety of small businesses and entertainment venues, while at the same

time being home to Tennessee State University, Fisk University and later Meharry

Medical College and Hubbard Hospital (now Metro General Hospital). Unfortunately,

the last several years, while Nashville and Davidson County have experienced rapid and

sustained levels of growth, North Nashville has declined to the point where key

demographic indicators are only a fraction of the overall Nashville community.

The North Nashville Community Development Corporation (CDC) with the assistance of

the Nashville community aims to reverse this trend. The North Nashville CDC was

officially named a non-profit community-based organization on January 4, 2000 to

promote economic and community development within a four square mile radius of

North Nashville. The mission of the North Nashville CDC is to serve as a sustained,

influential economic and community development organization on issues affecting the

North Nashville community. It is the vision of the North Nashville CDC to be an

effective facilitator of economic and community development.

To this end, the North Nashville CDC developed this master plan to guide the

revitalization of its target area. The master plan is intended to serve as a road map for

development activities undertaken by the North Nashville CDC. However, the

implementation of this plan does not rest solely with North Nashville CDC. It is

envisioned that other non-profit organizations as well as private developers and

governmental agencies would reference this plan and assist in implementing the concepts

that will foster new and improved commercial, residential, recreational and transportation

activities in the North Nashville community.

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The development of the North Nashville CDC Master Plan was made possible by the

collaborative initiative of Fisk University, Meharry Medical College and Tennessee State

University. The three universities allocated a portion of their grant from the U.S.

Housing and Urban Development’s Historical Black Colleges and Universities Program

to cover the cost to develop this master plan.

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STUDY AREA BOUNDARIES The area referred to as North Nashville in this study is on the northwest edge of

Nashville’s Central Business District near the State Capitol. For the purposes of this

study, the general geographic boundaries are:

♦ The northernmost boundary is roughly defined as Buchanan Street from Interstate 40 to the Cumberland River.

♦ Charlotte Pike forms the area’s southern border. This section of Charlotte Pike borders “Nashville’s Medical Corridor” containing Baptist Hospital, Centennial Hospital, numerous associated facilities, and the headquarters for Hospital Corporation of America, (HCA).

♦ 40th Avenue North and the Cumberland River form the western boundaries.

♦ 3rd Avenue North is the eastern boundary in the vicinity of the Bicentennial Mall, the Farmers Market, and the Germantown neighborhood.

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DEMOGRAPHICS

POPULATION

21,791

17,053 17,325 17,365

-

5,000

10,000

15,000

20,000

25,000

1980 1990 2001 (est.) 2006 (est.)

North Nashville Population

Source: U.S. Census Bureau

♦ In the last 30 years, North Nashville experienced an alarming rate of out–migration.

One in five residents left the area between 1980 and 1990, creating a 22 percent

population decline. In stark contrast, during the same period, Davidson County’s

population increased by 7 percent and the surrounding counties grew at an even faster

pace.

♦ Approximately 92 percent (15,939) of the study area is African-American, compared

to Davidson County’s overall African-American population of 26 percent (149,341).

Percent Change: -21. 7% 1.6% .2%

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POPULATION BY AGE

♦ The average age in the study area is 30.72 and the area’s median age is 24.27,

compared to Davidson County with an average age of 36.62 and a median age of

35.81.

Under 29

58%

30 to 59

30%

Over 60

12%

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HOUSEHOLDS/HOUSING STOCK

7,219

5,863 6,028 6,095

0

1,000

2,000

3,000

4,000

5,000

6,000

7,000

8,000

1980 1990 2001 (est.) 2006 (est.)

North Nashville Households

Percent Change: -18.8% 2.8% 1.1% Source: U.S. Census Bureau

♦ 72 percent of the dwellings in the North Nashville area are renter occupied. In

Davidson County, the ratio of renter–occupied to owner–occupied is 46 percent to 54

percent.

♦ 62 percent of the population live in family households, while 21 percent live in group

quarters. (A group quarter is defined as a type of residence, such as a college dormitory,

institution, or military barracks, inhabited by 10 or more persons unrelated to the

householder.)

♦ One-third of the households in the study area are headed by a female; while in

Davidson County, overall, only 14 percent of the households are headed by a female.

♦ Of those households that include children, 75 percent are headed by a female in North

Nashville, compared to 30 percent in Davidson County.

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INCOME

$0

$10,000

$20,000

$30,000

$40,000

$50,000

$60,000

$70,000

$80,000

$90,000

$100,000

AverageHH

Income

MedianHH

Income

PerCapitaIncome

DavidsonCounty

NorthNashville

Source: U.S. Census Bureau - 2001 estimates

♦ 64 percent of the households in the study area have an income under $25,000 or less.

Of the 243,077 households in Davidson County, 23 percent have a household income

under $25,000.

TRAFFIC COUNTS ♦ 16,650 ADT (‘01) on Jefferson Street at the intersections of 9th & 10th Avenues North.

♦ 14,200 ADT (‘01) on Jefferson Street just east of 28th Avenue North.

♦ 14,277 ADT (’01) on Jefferson Street at the intersection of D.B. Todd Jr. Blvd.

♦ 10,678 ADT (’01) on Jefferson Street at the intersection of 21st Avenue North.

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ECONOMIC ACTIVITY/BUSINESS DEVELOPMENT The North Nashville neighborhood contains three of Davidson County’s 13 colleges and

universities. The student populations have traditionally been predominately African-

American and have a long and rich history in North Nashville. The following chart

indicates enrollment and employment figures.

Colleges & Universities

in North Nashville

2000 Fall Enrollment Employees Total

Fisk University Founded 1866

964 197 1,161

Meharry Medical College Founded 1876

905 983 1,888

Tennessee State University* Founded 1912

8,682 1,758 10,440

Total 10,511 2,938 13,489

Sources: 2000 Fact Books, Registrars Offices *est. enrollment by 2006 10,000 students (15 percent increase)

The study area contains one medical facility, Metro Nashville General Hospital.

Academically affiliated with Meharry Medical College and Vanderbilt University, it is a

publicly supported, community-based hospital. The hospital has been in its current

location on Albion Street since 1976. The hospital runs on a $23 million dollar operating

budget with a staff of 912 supporting 150 beds. The 12-floor hospital is 256,000 square

feet.

Fisk University Jubilee Hall

Meharry Medical College Meharry Clinic

Tennessee State University

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BUSINESSES

Jefferson Street once served as the retail corridor of North Nashville. Today, the

concentration of retailers and businesses no longer exists. The shops and businesses that

have remained are sporadic and spread out. Within the study area there are approximately

762 total businesses, with an average of 14.5 employees per business. The highest

concentration of business is in the Services Sector, with health services and educational

services representing a combined 5,762 employees.

Business Count

140

34

406

2

8

27

10

31

57 47

Sector Business Count

Retail Trade 140 FIRE (finance, insurance, real estate) 34 Services 406 Agriculture Forestry & Fishing 2 Construction 8 Manufacturing 27 Transportation Communication 10 Wholesale Trade 31 Public Administration 57 Non-Classifiable Establishments 47 Total 762

Sources: U.S. Bureau of Labor Statistics

The Hill Building

North Branch Library

Jefferson Street

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GOALS OF THE MASTER PLAN Taking into account the social, economic and physical needs of North Nashville, the

North Nashville CDC Committee established four primary goals to foster the

revitalization of the North Nashville community. The goals of the plan are followed by

recommendations and the conceptual development plans along with an action plan for

meeting the established goals.

I. Increase Business Investment

II. Establish the Area as a Unique Destination

III. Increase Connections – Wayfinding

IV. Increase and Improve the Housing Stock

Increase Business Investment. In an effort to improve the quality of life of the area and

reverse the trends of disinvestments and out migration, it is essential that the North

Nashville CDC seek to increase business investment within the area.

Objectives

♦ Identify areas where deeper lots are available or can be consolidated to achieve deeper lots

♦ Recruit individual entrepreneurs of successful businesses to relocate their business or to open another location in the area

♦ Identify and encourage residents of the area to start their own business ♦ Establish a Business Incubator within the area

o University/Chamber of Commerce Partnership/Private Investors o Business skills training o Retail/Office Space o Collective resources

♦ Strategically locate future attractions (i.e. African-American History Museum, Gospel Music Hall of Fame)

♦ Target commercial nodes ♦ Collectively market Jefferson Street as a destination ♦ Establish the North Nashville website that provides content for potential investors

and those looking for goods and services within the area ♦ Establish a medical/professional services district ♦ Strengthen existing businesses

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Establish the Area as a Unique Destination. The North Nashville Area has to compete

with other areas of the City and the region to attract businesses and residents. It is

important that North Nashville capitalizes on its cultural richness, history, and

concentration of institutions and establishes the area as a unique destination. The

aesthetic quality of the area is also seen as a deterrent for future investment within the

area. In an effort to attract future investment and retain existing businesses, it is

recommended that the improvements be initiated to improve the aesthetic appeal of the

area. These improvements should reinforce the identity and character of the area.

Objectives

♦ Establish gateways and identity at strategic entries to the area ♦ Remove the car wash (social barrier) at Jefferson Street and 10th Avenue North ♦ Improve exit ramp and overpass area ♦ Establish wayfinding for visitors ♦ Encourage owners to improve property ♦ Encourage a sense of pride within residents to take care of area ♦ Condemn and remove derelict properties ♦ Encourage development of vacant parcels ♦ Create design guidelines for future development ♦ Promote development patterns that encourages pedestrian activity and puts eyes

and activity on the street Increase Connections - Wayfinding. Due to the existing street pattern, the area is

isolated from the greater Nashville Area. This isolation is seen as a deterrent to future

development. It is recommended that the current road network be improved in a way that

promotes better local traffic circulation and connection to the greater Nashville area.

Objectives

♦ Improve Neighborhood Circulation o Herman Street

♦ Improve Connections to West End Area o 28th Avenue North to 31st Avenue o 21st Avenue North to 20th or 21st Avenue o Realignment of D.B. Todd Boulevard from Charlotte Avenue to the

Jubilee Bridge ♦ Capitalize on Greenway connections

o Railroad corridor ♦ Improve Wayfinding ♦ Promote development patterns that encourages pedestrian access

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Increase and Improve the Housing Stock. The continued disinvestments and out

migration within the area has made it increasingly difficult to attract businesses. In order

to reverse this trend, it is imperative to stabilize the housing market.

Objectives

♦ Promote the development of a variety of housing types that meet the needs of residents and are attractive to home buyers throughout the City.

o Market Rate o Elderly o Students o Affordable Housing

♦ Encourage students, faculty and staff to live near campus ♦ Encourage business owners to live within the area ♦ Improve existing housing ♦ Coordinate area housing resources

o Church Sponsored Programs o Government Sponsored Programs o Developers o Financing Institutions

♦ Establish target areas ♦ Concentrate resources within the area

Of all the concerns identified, improving the housing stock is the most critical need for

immediate action. North Nashville is in desperate need of more owner-occupied

households in order to stabilize the housing market. A sustained trend of losing

households goes hand in hand with the decline of North Nashville’s disposable income.

For over 30 years, families have out-migrated to the suburbs. Until this trend is reversed,

national retail chains and business in general will continue to overlook Jefferson Street.

For the purpose of concentrating resources within the area, key infill target areas have

been proposed. Improved housing can serve the needs of several different groups:

1. The Elderly – There is a need for seniors housing. Many of the older residents (some

being life-long inhabitants) have had to move out of the area for adequate seniors

housing, despite having health services within the area that could be supplied through

Meharry Medical College/Metro General Hospital.

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2. College Students – The majority of students who attend area colleges choose to live

outside the study area because of a lack of insufficient quality housing. It is important

to attract students back to the area by supplying well-located and reasonably priced

housing opportunities. Leases that run in conjunction with the school year could also

aid in attracting students.

3. Families – Focus should be on families who can afford to purchase a home in the

$120,000 – $140,000 value range. This would create some much-needed moderate-

income, market-rate housing, and would also serve as a stabilizing influence in the

area. It should be noted that in a market study completed in 1995, the most notable

loss of population in the area was households with married couples.

4. College and University Faculty and Staff – This group should have a variety

market–rate housing opportunities, ranging in price and type, to encourage them to

live near their work.

Within the North Nashville neighborhood, 60 percent of the households were built before

1969. Much of the existing housing stock within the study area is in poor condition. This

is due in part to the high proportion of absentee property owners who are less likely to be

concerned with the condition of their property.

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RECOMMENDATIONS

Conceptual Development PlansConceptual Development Plans

The recommendations of the North Nashville CDC Master Plan divide the segment of

Jefferson Street from 28th Avenue North to 12th Avenue North into three distinct districts,

the Community Services District, the Healthcare/Professional Services District and the

Cultural Arts District. Each district builds on present activities and/or potential activities

as illustrated by the conceptual development plans. Aside from the proposed land use

activities, it is strongly recommended that a redevelopment district be applied along

Jefferson Street from Interstate 65 to 28th Avenue North. The Overall Master Plan map

identifies the proposed location of the redevelopment district.

Redevelopment District Administered by MDHRedevelopment District Administered by MDHA.A.

Nashville has a history of revitalizing areas through Redevelopment Districts.

Administered by MDHA, Redevelopment Districts focus on a long-range plan to

implement improvements. In addition, redevelopment tools such as tax increment

financing and design review further assist the development process. Tax increment

financing is a process only available in Redevelopment Districts. It allows private

development projects to borrow against the future increases in property taxes that result

from the development of the project. The funds are used for the public portion of the

project. Typical uses of tax increment financing include landscaping, demolition, utility

relocation and the purchase of land. Tax increment financing has been used successfully

in the area around the Bicentennial Mall, which is part of the Phillips Jackson

Redevelopment District.

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COMMUNITY SERVICES DISTRICT

The much needed business investment should start with the universities and other

institutions working together in a common plan to reinvest in Jefferson Street. Nearly

15,000 people come to the North Nashville area per day for education or work. A daily

captive audience therefore exists that is not spending disposable incomes in North

Nashville. College students today are viewed as a distinct market niche with a larger

share of disposable income than previous college age students. The Community Services

District Conceptual Development Plan has taken into consideration this market niche.

In addition, Tennessee State University offers over a hundred continuing education

programs that are attended by non-traditional students which is the largest college

segment population representing another large untapped market segment. Furthermore,

Tennessee State University has 3,099 students (36 percent of the student body) who live

in on-campus housing.

Community Services District Community Services District –– Potential Uses Potential Uses Student Support Services ♦ Video & Record Store ♦ Bookstore ♦ Apparel & Athletic Store ♦ Beauty/ Barber Shop ♦ ATM Machines ♦ Convenience Store ♦ TSU Information Center Business Services ♦ Personal Mailing Services (Similar to Mail Boxes Etc.) ♦ Travel Agency ♦ Business Incubation Center ♦ Temporary Employment/Staffing Agency ♦ Sandwich/Coffee Shop

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HEALTHCARE/PROFESSIONAL SERVICES DISTRICT

The Healthcare/Professional Services District could expand Meharry Medical College’s

and Metro General Hospital’s presence and services onto Jefferson Street. This would

provide opportunities for service and retail businesses, while also improving the visibility

of the Meharry Medical College complex. It would also add new activity and livelihood

to Jefferson Street. The area could establish itself as a “Medical/Professional District”.

The Healthcare/Professional Services District Conceptual Development Plan

demonstrates how this segment could support medical and professional activities as well

as the opportunity for live/work type development along Jefferson Street.

HealthcareHealthcare/Professional/Professional Services District Services District ––Potential UsesPotential Uses Medical Clinics/ Professional Offices ♦ Doctors ♦ Dentists ♦ Lawyers ♦ Specialized Health Care ♦ Banking Medical Products & Services ♦ Drugstore ♦ Medical Supplies ♦ Medical Equipment ♦ Home Health Care Supplies

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CULTURAL ARTS DISTRICT

The Cultural Arts District would be home to specialty retail, entertainment and cultural

facilities. The district would build on the rich tradition and history associated with such

notables as the Fisk Jubilee Singers and the Van Vechten Art Gallery. Building on the

lead of the larger institutions, small entrepreneurial businesses could follow, filling out

the district and playing off of existing unique businesses such as Woodcuts and Kijiji

Coffee House. The Cultural Arts District Conceptual Development Plan demonstrates

unique opportunities for one-of-a-kind businesses along Jefferson Street.

Cultural Arts District Cultural Arts District –– Potential Uses Potential Uses

♦ Potential uses could include an African–American art museum or a Gospel Music Hall of Fame.

♦ Artists’ studios and shops in a unique building for African–American artists. These shops would be geared towards, but not limited to, the African–American community.

♦ The district would include a unique festival or annual event.

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ACTION PLAN (2001-2020)

2001-2002 ACTION PLAN ♦ Acquire Car Wash at Jefferson St. & 10th Avenue (MDHA) ♦ Organize Housing Summit (NNCDC & Mayor’s Office for Affordable

Housing) ♦ Present Master Plan to Chamber of Commerce, Metro Council, & Community

(NNCDC) ♦ Lobby Chamber of Commerce to locate African-American Museum of Art &

History on Jefferson St. (NNCDC) ♦ Coordinate with Metro Parks and Greenway Master Plan (NNCDC) ♦ Coordinate with Metro Pedestrian and Bicycle Master plan (NNCDC)

2003 ACTION PLAN

♦ Target Drugstore Company in Medical/Professional Services District (NNCDC)

♦ Initiate Redevelopment of Car Wash Property (MDHA) ♦ Establish MDHA Redevelopment District (MDHA) ♦ Remove Chain Link Fence bordering Fisk University (Fisk Univ.) ♦ Improve Turning Radius of Southeast Corner of 28th & Jefferson St. (Metro

Public Works) ♦ Initiate Transportation Improvements (Metro Public Works) ♦ Identify Funding Resources for Museum & I-40/Jefferson St. Icon (NNCDC) ♦ Develop Collective Marketing Strategy that Establishes Jefferson St. as a

Destination (JUMP/NNCDC/Chamber of Commerce) ♦ Establish North Nashville Website (NNCDC/JUMP) ♦ Target 2% of Vacant Residential within Target Areas as Single-Family

Residential (Mayor’s Office for Affordable Housing)

2004 ACTION PLAN

♦ Target Successful Businesses in Region that are Within Recommended Business Categories and Encourage Them to Relocate or Open New Location on Jefferson St. (NNCDC)

♦ Target 2% of Vacant Residential within Target Areas as Single-Family Residential (Mayor’s Office for Affordable Housing)

♦ Complete Transportation Improvements (Metro Public Works) ♦ Initiate Design of African-American Art & History Museum & I-40/Jefferson

St. Icon (NNCDC) ♦ Construct townhomes across from Fisk University (Fisk Univ.)

2005-2006 ACTION PLAN

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♦ Construct African-American Art & History Museum & I-40/Jefferson St. Icon (Chamber of Commerce)

♦ Target 2% of Vacant Residential within Target Areas as Single-Family Residential Annually (Mayor’s Office for Affordable Housing)

♦ Initiate Design of Business Development Center (TSU) ♦ First Meharry Medical College Building on Jefferson St. (Meharry)


♦ Construct Fisk University Fine Arts Building on Jefferson St. (Fisk) ♦ Target 2% of Vacant Residential within Target Areas as Single-Family

Residential Annually (Mayor’s Office for Affordable Housing) ♦ Construct Business Development Center (TSU)


♦ Meharry Medical College Hospital Expansion Buildout (Meharry) ♦ Target 2% of Vacant Residential within Target Areas as Single-Family

Residential Annually (Mayor’s Office of Affordable Housing)

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CONCLUSION In order for Jefferson Street and the North Nashville community to reach its goals, it must

focus time and attention on three fundamental areas. It should be noted that the decline

of North Nashville has taken place over the last four decades. Revitalization of the area

will therefore not come overnight and will require a community based effort over a

sustained period of years. The three areas for focus are:

1. Housing – Residents are the basic stabilizing force of any community. North

Nashville must stop the outflow of the current residents, and in addition, begin to

attract new ones. All other market factors will improve when the residential

demographics are increased.

2. Community Involvement – The Nashville Community as a whole must commit to

the area. Government assistance will be necessary to attract new housing, business,

and institutions.

3. Institutional Involvement – The existing institutions, particularly the three

universities, must show leadership and a commitment to the North Nashville

community. This includes not only the improvement of their facilities, but broader

involvement in the development of housing and economic development.

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