DOWNTOWN SQUARE DEVELOPMENT PLAN
Collierville, TN
Submitted by
MARKET STREET SERVICES, INC.
www.marketstreetservices.com April 11, 2005
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TABLE OF CONTENTS
Introduction ................................................................................................ 2
Background ....................................................................................................................2 Planning Process ........................................................................................................... 3 Planning District............................................................................................................ 5 Boundaries ................................................................................................................. 5 Current Regulations ..................................................................................................6 Downtown Demographics ............................................................................................8
Downtown Square Development Plan ...................................................... 12
Guiding Principles........................................................................................................13 Development Schemes.................................................................................................15 Downtown Square Redevelopment Area Key Projects...........................................15 New Streetscape....................................................................................................... 16 Washington Street ....................................................................................................17 Center Street ............................................................................................................ 19 Walnut Street ........................................................................................................... 23 Main Street...............................................................................................................24
Implementation......................................................................................... 30
Recommended Structure: Housing Authority ..........................................................30 Authorized Powers ...................................................................................................31 Collierville Redevelopment Authority (CRA)..........................................................33 Overlay Zoning ........................................................................................................ 38 Infrastructure Considerations ................................................................................39 Models in Tennessee .................................................................................................. 40 Jackson, TN ............................................................................................................. 40 Kingsport, TN .......................................................................................................... 41 Franklin, TN.............................................................................................................42 Metro Areas.............................................................................................................. 43 Other Considerations ..................................................................................................44 Historic District Commission.................................................................................44 Main Street Collierville............................................................................................ 45 Timelines .................................................................................................................... 46 Implementation Phases ...............................................................................................51
Conclusion ................................................................................................ 52 Appendix ....................................................................................................53
Housing Authorities in Tennessee..............................................................................53
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INTRODUCTION
Background
In 1999, a group of Collierville, Tennessee community leaders hired Market Street Services to help develop the strategy Collierville 20/20 to define a community vision; review the area’s Comprehensive Plan and future land uses; leverage the new FedEx World Technology Center; and more clearly define the role business and Chamber of Commerce leaders could play in shaping the community’s future. Indeed, since implementation began on Collierville 20/20, much of the growth and development dynamics addressed by this plan have come to fruition. In addition to the construction of the FedEx center, Collierville has also witnessed the: • • • • Opening of a branch campus of the University of Memphis, and Baptist Memorial Hospital-Collierville; Growth of Schilling Farms mixed-use development; Location of the Town Hall and main Library outside of the Town Square; and Planned opening of Avenue Carriage Crossing retail development in Fall 2005.
The sum total of these dynamics in Collierville has led community leaders to once again embark on a proactive strategy to plan for – and capitalize on – the town’s changes. Specifically, this new effort focused on Collierville’s historic Town Square, and the town’s central core. Market Street Services and Sizemore Group – both headquartered in Atlanta, Georgia – were retained to facilitate the town’s Downtown Square area planning process. The resulting Downtown Square Development Plan, created through a four and a half month, inclusive and stakeholder-focused process, is crucial to Collierville’s future because: • • • Without action, other development will continue to re-center Collierville’s business, retail, and residential life outside of the historic Downtown; In the long-term, Collierville will benefit from having multiple thriving centers and the economic opportunity derived from a living historic neighborhood; and A Downtown Development Plan would help achieve the Collierville 20/20 vision: “We want a town that retains its small-town character and preserves open spaces.”
The creation of Collierville’s Downtown Square Development Plan is the first step of a multi-phase process to ensure that development in the town’s Downtown Square
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area is consistent with the existing character of the Square, and respects the needs of existing and future residents.
Planning Process
The planning process began in November 2004, and concluded in March 2005. All told, hundreds of Collierville residents contributed to the development of the plan, which was led by a Steering Committee selected to represent all affected constituencies in Collierville. The selection of the Steering Committee was the first step in the process of developing Collierville’s Downtown Square area plan. The project Steering Committee was comprised of the following individuals:
Lyman Aldrich Warner Anthamatten John Ashworth Nancy Bassett Tom Brooks Woodrow Brown Joe Clayton Bill Cox Kevin Demsky Clyde Dixon Harry Durbin Courtney Elliott Maureen Fraser Grant Gibbs Allen Green Tommy Hart Stan Joyner Annette Key James Lewellen John Sheppard Trena Street Laura Todd John Worley
Private Developer Collierville Chamber of Commerce Private Developer Biblical Resource Center and Museum Private Developer Carrier Corporation (retired) Local Businessman Private Developer Federal Express Private Citizen Collierville United Methodist Church Collierville Chamber of Commerce Alderman, Town of Collierville Franchisee, Chick-Fil-A John Green and Co. Realtors Local Businessman and Developer Alderman, Town of Collierville Town of Collierville Town Administrator, Town of Collierville Local Businessman Local Businesswoman Main Street Collierville Private Developer
Market Street and Sizemore Group would like to thank these Committee members for their dedication, energy, insight and resolute conviction to see that the Downtown
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Square was developed in the town and residents’ best interests. Market Street and Sizemore Group would also like to thank Laura Todd, Executive Director of Main Street Collierville, for her invaluable assistance in the coordination and development of this plan, in addition to serving on the Steering Committee. The development of the plan consisted of a process of research and public input that resulted in the presentation of a series of deliverables to the Steering Committee for their review and feedback. The following were the project deliverables for the plan development process: Existing Study, Plan, and Ordinance Review • The process of creating a development plan for the downtown core of Collierville began with an understanding of the existing neighborhood and plans for the area. A boundary definition was determined, and a review was done of all recent studies, plans, and ordinances for the Town of Collierville and the Downtown. Economic Snapshot • Demographic and economic trends can dramatically affect Downtown. Market Street conducted a thorough, honest assessment of Collierville’s existing demographics and economy to update the findings of the 1999 study. Highest and Best Use Analysis • Market Street surveyed Collierville stakeholders in three focus groups, numerous interviews, and an Online Survey that received over 400 responses from a broad spectrum of Collierville residents. The concerns and preferences of Collierville citizens helped to determine potential “highest and best” uses for the Downtown Square area. Potential Development Scenario Review • Market Street and Sizemore Group utilized a Visual Preference Survey and a planning charrette process to present different visions for Downtown Collierville’s future to the Steering Committee. At the end of the process, consensus was reached on the basic development scheme for the Downtown Square area. Downtown Square Development Plan • Working with the Steering Committee, Market Street and Sizemore Group utilized all previous project work to develop this specific guide to direct the development of the Downtown Square area such that it can achieve the Committee’s preferred vision.
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Planning District
BOUNDARIES
In order to ensure that planning and implementation in Downtown Collierville was most effective, it was necessary to determine the exact boundaries of the Project Area. With definitive project boundaries, it became more feasible to conduct accurate demographic research for the Downtown Square Development Plan, and also lay the groundwork for potential district-wide regulatory and implementation efforts. In addition to reviewing project boundaries for previous study and planning work done in Downtown Collierville, Market Street and Sizemore Group consulted with area leaders to best determine the project boundary for this development plan. It was determined that the most effective definition of the Project Area was the configuration that incorporated the historic Town Square, but also expanded beyond the Square to include a broad swath of Downtown Collierville’s historic core. By extending the project scope to incorporate currently underserved neighborhoods and land parcels, Downtown Collierville’s Development Plan was provided the most promise for revitalizing the entire Downtown area once implementation commences. The project boundary determined for this plan is shown in the following map:
Source: U.S. Census Bureau
The northern boundary of the Project Area was Poplar Avenue. North of Poplar, the land uses become predominantly residential (with more modern construction and subdivision-style development) and strip-commercial.
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The eastern boundary was Eastley Street north of the railroad tracks, and Moore Lane south of the tracks. This boundary was similar to the line chosen for the 2001 Chamber of Commerce ad-hoc study, Town Square Study Report. The western/southern boundary was formed by U.S. Highway 72 as it travels southeast towards its intersection with the Bill Morris (Nonconnah) Parkway. The project district followed Quinn Road north from Highway 72, and then moved east on Keough Road to its intersection with Moore Lane.
Market Street, the Sizemore Group and Collierville representatives chose these
project boundaries to maximize the potential impact of the results of this plandevelopment process.
CURRENT REGULATIONS
Determining what was currently permitted relative to planning and development in the chosen Downtown Square district was accomplished through a review of existing development controls. These planning zones are shown in following map. Also detailed in the map are the boundaries of the Collierville historic district (H-1), denoted by the thick blue lines. Note that there is a hodgepodge of zoning categories 1 encompassing the Project Area not regulated by the H-1 zoning. These represent a mixture of commercial, residential and industrial uses, and are separated in a socalled “Euclidian” manner through single-use zones. In other words, mixed-use development is not permitted in the Downtown Square area district “by-right” (per the current codes). As currently regulated, the Downtown Square district does not provide the flexibility that would enable property owners to develop their parcels in a manner consistent with current urban trends of New Urbanism and Traditional Neighborhood 2 Development.
Map prepared by the Town of Collierville, Division of Planning, GIS. GIS Project:/ArcGIS8.1_Projects/zoning11x17.mxd. Completed: November 19, 2004 2 These terms refer to a style of land use consistent with historic patterns of urban growth. They feature dense, walkable communities, wide sidewalks with the potential for outdoor dining, buildings with a mixture of uses, pedestrian amenities like benches, awnings, and protection from street traffic, and other similar design characteristics.
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Current Zoning Categories, Downtown Square Area
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As previously noted, a segment of Downtown Collierville is a designated historic district. Collierville’s local historic district was established in 1989 to develop regulations that offered protection to local historic resources. The district totals about 300 properties. A Collierville Historic District Commission (HDC) was established to monitor development in the district, and ensure that proposed structures conform to design standards and the general character of the area. The HDC also reviews all exterior building plans for all land use categories and final plans for planned unit developments, fences, signs and landscaping in the designated historic district. As seen in the Downtown zoning map on the previous page, the district has a Historic District (H-1) zoning overlay, which permits any use allowed by the existing zoning classification, but with specific criteria for protection of historic properties. If the Historic District Commission determines that a number of specific criteria exist, the H-1 District classification may be superimposed onto the existing zoning classification.
Downtown Demographics
While the town of Collierville has experienced the type of “tiger by the tail” growth first identified by Market Street in 1999, the town center district has not seen the same intensity of change. As a component of this planning process, Market Street studied the economic and demographic realities of Collierville, in addition to a Census Tract that closely approximated the planning area for the Downtown Development Plan. Census Tract 216.20, encompassing Downtown Collierville and portions of greater Collierville, is shown in the map to the left. The Study Area for this Downtown Development Plan includes the majority of Tract 216.20 east of Highway 72. The Tract has starkly different demographics than the Town of Collierville. For example, while Collierville in 2000 was 88 percent White, the Tract was majority AfricanAmerican. As seen in the charts and tables that follow, there are other economic and demographic differences between the Tract and greater Collierville.
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Percent Growth in Total Population, 1990-2000
140.0% 120.0% 100.0% 80.0% 60.0% 40.0% 20.0% 0.0% -20.0% Tennessee Memphis MSA Collierville, TN Tract 216.20 16.7% 15.7% -10.1% 121.0%
Source: U.S. Census Bureau S US C B
While Collierville experienced a remarkable 121 percent growth in population between 1990 and 2000, the Downtown Tract actually lost over 10 percent of its population.
Educational Attainment, Population over 25, 2000 Collierville, Memphis Tract Highest Level of Education Tennessee 216.20 MSA TN 20.2% No high school diploma 24.1% 6.8% 28.4% High school graduate 31.6% 38.8% 18.9% 27.9% Some college, no degree 20.0% 19.5% 27.2% 23.9% Associate degree 4.7% 3.0% 6.0% 5.2% Bachelor's degree 12.8% 14.9% 29.8% 7.5% Graduate degree or higher 6.8% 7.8% 11.4% 2.8%
Source: U.S. Census Bureau
As the previous table shows, the Downtown Tract is far less educated than the Town of Collierville. While nearly 30 percent of Collierville residents graduated from college, only 7.5 percent of Downtown Tract residents can make that claim. Nearly three out of 10 Downtown Tract residents did not receive a high school diploma.
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Per Capita Income, 2000
$35,000 $30,000 $25,000 $20,000 $15,000 $10,000 $5,000 $0 Tennessee
Source: U.S. Census Bureau
$30,252
$19,393
$20,327 $15,242
Memphis MSA
Collierville, TN
Tract 216.20
In terms of per capita income figures, Collierville residents earned nearly double their Downtown Tract counterparts in 2000. These income data correspond to overall levels of poverty in the two areas. As the following chart relates, the slightly over 2 percent of Collierville residents in poverty contrasts with a nearly 14 percent poverty rate in the Downtown Tract, a figure nearly equivalent to Metro Memphis and the state of Tennessee.
Percentage of Population in Poverty, 2000
18.0% 16.0% 14.0% 12.0% 10.0% 8.0% 6.0% 4.0% 2.0% 0.0% 15.3% 13.5% 13.2%
2.4%
Tennessee
Source: U.S. Census Bureau
Memphis MSA
Collierville, TN
Tract 216.20
Clearly, the Census Tract inclusive of Downtown Collierville has stagnated over the decade of the 1990s while the Town at large thrived. Therefore, in addition to the aesthetic and economic benefits of this Downtown Square Development Plan to the Town of Collierville as a whole, the plan has the potential to bring investment, jobs and new development to a district that has remained on the sidelines as Collierville
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has become one of the most dynamic communities in the Memphis metropolitan area. As will be discussed in the Implementation section of this report, the demographic and economic realities of the Downtown Square district enable Collierville officials to consider specific structures for implementation as put forth in the Tennessee code of ordinances. Similar U.S. communities that have endeavored to redevelop their central districts have experienced great success. One city in particular – the suburban Atlanta bedroom community of Smyrna, Georgia – has seen its total property values skyrocket since it began a downtown revitalization program in 1988 similar to Collierville’s proposed effort. The following table attests to the growth in Smyrna’s tax base since they began their downtown redevelopment efforts.
Total Property Tax Valuations, Smyrna, GA Year Valuation Pct change 1988 $774,392,750 n/a 1989 $956,560,900 23.5% 1990 $1,083,523,615 13.3% 1991 $1,237,018,315 14.2% 1992 $1,349,298,430 9.1% 1993 $1,453,935,263 7.8% 1994 $1,461,251,425 0.5% 1995 $1,512,371,835 3.5% 1996 $1,541,846,247 1.9% 1997 $1,738,825,986 12.8% 1998 $1,806,796,651 3.9% 1999 $2,002,507,158 10.8% 2000 $2,353,699,502 17.5% 2001 $2,569,736,791 9.2% 2002 $2,892,148,848 12.5% 2003 $3,444,811,157 19.1% 2004 $3,729,041,549 8.3% 1988-04 $2,954,648,799 381.5%
Source: Atlanta Journal-Constitution
A city similar to Collierville in that it is a fast-growing suburb of a major Southern city, Smyrna has roughly 40,000 residents, and grew 32 percent from 1990 to 2000. In a recent newspaper article on Smyrna’s downtown transformation, the district was described as “unique, friendly, convenient, clean, hip, 3 affordable and fun.” Public investment came first, funding infrastructure and a new library and community center, and private investment eventually followed.
By successfully revitalizing its Downtown Square area to match the vitality of the rest of Collierville, Town leaders could experience increases in property tax valuations that would aid in the provision of services and infrastructure to the community at large.
Sager, Brendan. Atlanta Journal-Constitution. “Smyrna’s Strategy: Redevelopment effort pays off.” March 7, 2005, p. E1.
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DOWNTOWN SQUARE DEVELOPMENT PLAN
Throughout the development of Collierville’s Downtown Square Development Plan, the planning team of Market Street Services and Sizemore Group received clear and unmistakable dictates from the Steering Committee and Collierville residents to enhance Downtown, but not at the expense of the existing Town Square. It is plainly evident that those who come to know the Town Square area cherish its current character, amenities and evocative power. The challenge of this plan, therefore, was to carefully, consistently, and seamlessly extend the positive qualities of the Town Square into the Downtown area beyond its boundaries. In addition, as many respondents noted in focus groups and interviews, the Town Square itself has many historical assets and features, but it has also experienced redevelopments and expansions in more recent decades that have rendered certain elements of the Square inconsistent with its historical context. Concurrent with the expansion of the Town Square into the Downtown district will be a reassessment of certain Town Square structures and connections that were haphazardly modified by insensitive development in the decades after their construction. The following key issues related to this development plan represent the synthesis of the entire collected stakeholder input from multiple interviews, focus groups, and an Online Survey that received over 400 responses. These issues represent the core challenges facing the Town Square today, and will impact the future expansion of the Square into the adjacent Downtown district. They are: • • • • • • • • Risk of losing the historic charm and quaint “neighborhood feel” of Town Square if there is new development in the district; Town Square hard to find/access from outside of district; Critical mass of Downtown shoppers is lacking; Existing zoning and development regulations only allow single uses and are perceived to be overly stringent; Poor connectivity between Square, rest of Downtown, and greater Collierville; Lack of affordable housing options; Potentially contaminated industrial properties hamper development; and Avenue Carriage Crossing could take business away from the Town Square.
The Downtown Square Development Plan facilitated by Market Street and Sizemore Group has taken into account these key issues, and balanced recommended solutions against the area’s core planning and development values as communicated by the project Steering Committee and other Collierville stakeholders.
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Guiding Principles
As the planning process progressed in Collierville through the research and public input phases, and, later, the presentation of a Character Preference Survey to the project Steering Committee, a clear picture began to emerge of the set of guiding principles underlying the Downtown Square Development Plan. These principles directed the tenor of the development schemes that emerged from the planning process for the Downtown Square district. The guiding principles are summarized below: No “Massive” Architecture • Online Survey results were consistent with Steering Committee reactions to the Character Preference Survey in which photos of excessively tall, “bulky” developments scored poorly in comparison to more contextual, fine-grained development. Two-story, and potentially, three-story development – including projects with a mixed-use component – were acceptable to the Committee if they were in congress with the look, feel and character of the Square. Maintain the Character of the Town Square • The overwhelming tide of comments and responses from interviews, focus groups, the Online Survey and Steering Committee meetings was that Collierville stakeholders prefer the existing look and feel of the Town Square, and would like that same character exhibited by any development schemes that extend the Square into the rest of Downtown. Expand the Views of the Town Square • The Steering Committee reached consensus over the broadening of the open spaces around the Town Square to provide more uninterrupted views of the area. Specifically, this could be accomplished either by relocating the depot and/or rail cars, or by some other method that expands the horizons of those at the Square and proximate to it. The Town-Owned Church Property Should Serve the Community • Steering Committee members were in near-unanimous agreement that the Town-owned church property just west of the Town Square should be developed by the Town as a multi-purpose, community-serving complex with meeting spaces, an auditorium, a catering kitchen, and other such facilities. By reinvesting in the Downtown Square area, the Town will make a positive statement about its involvement in the Downtown Square Development Plan implementation process, and address the concerns of many in the community that the relocating of the Town Hall and library outside of the Town Square constituted an abandonment by Town officials of Collierville’s historic core.
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Multiple Entry Points to the Downtown Square Area • The Steering Committee embraced the concept of multiple key entry points for the Town Square to provide the best possible access – both motorized and non-motorized – to Collierville’s historic core from other parts of town. Enhanced accessibility would ease concerns of heightened traffic congestion as the Downtown Square area grows in popularity. While Center Street is a vital north/south entry point, other feeder streets such as Sycamore, Main and Walnut are important as compelling entry points to the Square from Poplar Avenue as well as from the south. It was also noted that taking Winchester Street all the way to Center Street would greatly enhance the connectivity to the Square from the FedEx Technology Center and Avenue Carriage Crossing. Expand the Greenspace of the Town Square Area • The existing greenspace south of the train depot that straddles the railroad tracks is a great amenity that is currently underutilized. A continuation of the Square south of its current configuration through the provision of attractive, usable greenspace was lauded by the Steering Committee. Structure for Implementation • There was consensus that there needs to be a new structure for implementation of the Downtown Development Plan. The current regulatory and oversight entities would not be sufficient to facilitate the most effective implementation of the Plan’s development activities. This implementation structure will be discussed in detail in an upcoming section of this report.
These principles influenced the creation of consensus Downtown Square area development schemes formulated during a multi-day charrette process coordinated by Sizemore Group with members of the Steering Committee and other local stakeholders. It is important to note that these development schemes are not de facto blueprints for what the parcels in question – and those not represented by specific renderings – will eventually become. Rather, these schemes represent the collective design energy of the Steering Committee, local stakeholders, and members of the consultant team during the planning charrette. As development of Collierville’s Downtown Square area progresses, the actual design details and land uses of the redeveloped parcels might look different than the schemes that are presented on the pages that follow. However, the character and guiding principals of the developments will be consistent with the preferences demonstrated by hundreds of Colliervillians during this plan development process.
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Development Schemes
These development schemes for the Downtown Square area began with a common understanding of stakeholder and Steering Committee preferences based on the comprehensive public input that had been completed to date. The development schemes were then formalized through a multi-day charrette process coordinated by Sizemore Group in Collierville from February 14 to 16, 2005. The resulting schemes were then validated by the Steering Committee at a February 16 meeting. The schemes are all keyed by priority access routes/points to the Town Square. The methodology behind these schemes is that, in order to continue the momentum and character of the Town Square into the greater Downtown, the most effective means to facilitate this process is through prime, potentially under-invested arteries into the Square district.
DOWNTOWN SQUARE REDEVELOPMENT AREA KEY PROJECTS
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NEW STREETSCAPE
Entry points and corridors to the Square from Poplar Avenue – the main east-west thoroughfare in Collierville – are hugely important for the viability of the District. Developing new streetscapes and attractive north-to-south approaches to the Square will make the area more inviting to drivers and pedestrians. Center Street as it approaches from Highway 72 will also be a key connector for the Downtown Square area, and would benefit from enhancement to its streetscapes and land uses.
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WASHINGTON STREET
Town Square West at Washington Street
Washington Street is not only a key access point to the Town Square that has already seen a modicum of retail development – principally restaurants – but is potentially underutilized and a promising template for contextual, district-serving mixed-use development. The above scheme focuses on Washington Street as it abuts the western edge of the Town Square.
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Washington Street West to Town Square
The Washington Street approach to the Square shown in the above and following schemes envisions the street with an attractive greenspace component, mixed-use development and a boutique hotel or bed-and-breakfast.
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CENTER S TREET
Center Street South to S. Rowlett Street
Center Street was noted frequently in the public input phase of this plan – and corroborated by the Steering Committee – as being one of the most important access points to the Square, and a key linkage to Highway 72. The above photo envisions a scheme for utilizing Center Street and South Rowlett to “frame” the southern border of the Town Square. The image on the following page displays this scheme in the context of the overall Downtown Square planning district.
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Center Street South from S. Rowlett Street
Continuing south on Center Street from the above project, new residential development and the creation of a “green plaza” will activate the street, create opportunities for enhanced walkability, and provide additional housing options for the community. This scheme is seen on the graphic on the following page.
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Center Street Development
The “green plaza” is shown in more detail in the following photo. By providing pedestrian and non-motorized linkages between key streets in the south project area, the plaza will serve an important connectivity function, become a locus for new residential development, and facilitate more interaction between neighbors and users of the greenspace.
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Green Plaza
The following image displays a view of the development scheme for Center Street from the opposite perspective, as the street moves north to the Town Square. Center Street North to Town Square
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WALNUT STREET
Town-developed, community serving project.
Walnut Street is another key access point to the Town Square; it will eventually house the new Town-developed multi-use community center, parking, and other publicserving uses. The above development scheme envisions Walnut Street as an attractive boulevard, bracketed on each side by contextual, zero-lot-line townhome and condominium development with attractive greenspace interspersed among the land uses. Parking will be a key concern for this area, as visitors to the new Town community complex will need to leave their cars to attend meetings, lectures, shows, etc., and then walk to the Town Square for dinner or to shop. The Town will develop parking spaces as it constructs the community complex, and structured parking is also a potential option for this scheme. A structured parking lot contextually designed to integrate with its neighborhood is pictured above.
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MAIN STREET
Main Street – Existing Conditions
Main Street is the most important north-south linkage from heavily trafficked Poplar Avenue to the Town Square. As such, it is a vital component of the schemes chosen by the Steering Committee for this Downtown Square Development Plan. Currently, however, as the previous photograph documents, there is no defined corner to the Town Square at Washington Street. The following scheme envisions new development serving to better define the Town Square at this key northeast access point.
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New Gateway at Main Street and Washington Street
The development scheme on the following page provides another angle of new Main Street development moving north to Poplar Avenue.
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Main Street Looking North
In this scheme, development behind the existing buildings at the north border of the Square enhances the residential density in the district, making retail development more viable in the area. Another view of this scheme, seen on the following page, shows the new development north of the Town Square and how it effectively continues the character of the Square north towards Poplar Avenue.
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Main Street South to Town Square
Complementing this new development north of the Square will be enhancements of existing points of connectivity. The following photo displays an existing alley north of the Town Square that has the potential to provide key pedestrian linkages from new development to the existing Square. Alley North of Town Square
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Another view of the northern boundary of the Town Square shows a potential restaurant development fronting attractive new greenspace. Northern Edge of Town Square
This new pocket park seen in the above scheme would be enhanced through the creation of a new road linking new residential development behind the Square and the Square’s existing western boundary. A photo of this scheme is found on the following page.
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New Connector Road
Taken together, these development schemes provide the basis for enhancement of the Downtown Square area through the maximization of the architectural and economic potential of the Town Square and its effective continuation into the adjacent Downtown neighborhoods through key access streets. However, the development of the plan is only the first step in an ongoing process to ensure that the plan components are effectively implemented and maintained. The next section of this report will recommend a structure, process and timeline for the implementation of Collierville’s Downtown Square Development Plan.
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IMPLEMENTATION
The Steering Committee was in near-unanimous agreement that the current regulatory dynamics in the Downtown Square area would not be the optimal means to implement the Town’s Downtown Square Development Plan. They favored the creation of a new entity to effectively review, coordinate and monitor the progression of the plan’s components to successful completion. The advantages of a new implementation entity are many. They include: • • • • The ability to appoint a Board of district stakeholders (including residents, property owners and business owners), and key professionals to oversee the development of parcels within the Downtown Square Development District; The ability to create a bonding authority to finance land acquisition, infrastructure improvements, and other actions in the boundaried Development District; The ability to receive funds from a variety of sources, including government grants, and private sector investments; The ability to use best-practice, progressive funding tools such as Tax 4 Increment Financing (TIF) to finance key infrastructure improvements, environmental remediation, and other non-developer-financed enhancements to the District; A justification for the creation of zoning regulations specific to the Development District that would allow certain development activities to occur by-right, and not through the issuance of zoning variances; and The provision of additional flexibility to offer high quality housing to the residents of the District.
• •
Recommended Structure: Housing Authority
The structure for implementation recommended by Market Street and Sizemore Group is a Town of Collierville housing authority that would specifically implement a Redevelopment Plan (comprised of this Downtown Square Development Plan) in the boundaried district chosen to represent the Downtown Square area. This would not be the same type of housing authority found in many other Tennessee cities and towns – namely, one that exists to develop and manage public housing projects. Collierville’s housing authority would not be affiliated in any way
This redevelopment tool is specific to districts that have experienced disinvestment and elements of urban blight. The tool enables governments to freeze property tax rates for a set time period and use the future increases in tax receipts to pay down bonds issues to fund infrastructure and other improvements. TIF must be approved by elected officials and school boards, if their budgets are affected.
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with the federal Department of Housing and Urban Development (HUD), and would receive no funding from them. Rather than operate as a developer/manager of public housing, Collierville’s authority will utilize the broad powers given to housing authorities under Tennessee law to function as a de facto redevelopment agency for Collierville’s Downtown Square area. The simple fact of the matter is that there is no “perfect” tool to coordinate and implement downtown development in Tennessee. While a great many other U.S. states have legislation permitting the establishment of specific downtown development authorities with broad powers of land acquisition, funding issuance, design review, etc., Tennessee has no such functionality in its Code of Ordinances. Thus, certain communities in the state have taken advantage of the broad wording of the housing authority legislation to expand the scope of their local housing authorities to include other types of development related to urban revitalization. As an example, the housing authority in Nashville, the Metropolitan Development and Housing Agency (MDHA), has plenty of experience in non-housing projects, including development of the city's hockey arena, convention center, and football stadium. MDHA is a public housing authority that has expanded its mission beyond the provision of housing to include other urban and community development 5 programs.
AUTHORIZED POWERS
The authorizing legislation for the housing authority tool is found in the Tennessee Code of Ordinances, Title 13: Public Planning and Housing, Chapter 20: Housing Authorities. Per Section 104 of this chapter, among the key powers of housing authorities are the following: • • Investigate living, dwelling and housing conditions, and the means and methods of improving such conditions; Own, operate, assist, or otherwise participate in one (1) or more mixed-finance projects to provide for the construction, reconstruction, rehabilitation, improvement, alteration or repair of any housing project or any part thereof. An authority may provide capital assistance, operating assistance and financing assistance to a mixed-finance project in the form of a grant, loan, guaranty, collateralization or other form of investment in the project, or other form of public or private borrowings, for the construction or rehabilitation of a housing project; Act as agent for the federal government in connection with the acquisition, construction, operation and/or management of a housing project or any part thereof;
•
5
Nashville.gov. Metropolitan Development and Housing Agency. 30 March 2005. .
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•
• • •
• • • • • • •
• • • •
Arrange with any city or municipality located in whole or in part within its boundaries or with a government for the furnishing, replanning, installing, opening or closing of streets, roads, roadways, alleys, sidewalks or other places or facilities; Arrange for the acquisition by such city, municipality, or government of property, option or property rights; Arrange for the furnishing of property or services in connection with a project; Arrange with the state, its subdivisions and agencies, and any county, city or municipality of the state, to the extent that it is within the scope of each of their respective functions: o Provide and maintain parks and sewerage, water and other facilities adjacent to or in connection with housing projects; and o Change the city or municipality map, to plan, replan, zone or rezone any part of the city or municipality; Purchase, lease, obtain options upon, acquire by gift, grant, bequest, devise, or otherwise, any property, real or personal or any interest therein, from any person, firm, corporation, city, municipality, or government; Acquire by eminent domain any real property, including improvements and 6 fixtures thereon except as provided in Title 13-20-105 ; Sell, exchange, transfer, assign, or pledge any property, real or personal or any interest therein to any person, firm, corporation, municipality, city, or government; Own, hold, clear and improve property; Insure or provide for the insurance of the property or operations of the authority against such risks as the authority may deem advisable; Procure insurance or guarantees from the federal government of the payment of any debts or parts thereof secured by mortgages made or held by the authority on any property included in any housing project; Borrow money upon its bonds, notes, debentures, or other evidences of indebtedness and secure the same by pledges of its revenues, and (subject to the limitations hereinafter imposed) by mortgages upon property held or to be held by it, or in any other manner; Invest any funds held in reserve or sinking funds, or any funds not required for immediate disbursement, in property or securities in which savings banks may legally invest funds subject to their control; Have a perpetual succession; Make and execute contracts and other instruments necessary or convenient to the exercise of the powers of the authority; and Make and from time to time amend and repeal bylaws, rules and regulations not inconsistent with this chapter.
The project Steering Committee voted not to use eminent domain as a tool in the redevelopment of the Downtown Square area. However, as plan implementation proceeds, local officials will need to determine if this contingency is adversely affecting the authority’s ability to work with developers to secure project financing. If the lack of an eminent domain tool in the district is preventing all development from occurring, the use of this land acquisition option may need to be reassessed.
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Per Section 205 of this chapter: • Any authority may, and is hereby authorized to, adopt a redevelopment plan (author’s emphasis) or to amend an existing redevelopment plan so that it contains a tax increment financing provision providing that taxes, if any, levied upon property leased or sold to individuals or corporations for development in a redevelopment project each year, by any taxing agency after the effective date of the resolution of the governing body approving such redevelopment plan or amendment, shall be divided (pursuant to code).
COLLIERVILLE REDEVELOPMENT AUTHORITY (CRA)
Shakespeare once famously asked, “What’s in a name?” The answer as it relates to downtown development and community relations might be, “Quite a lot.” A key component of effectively implementing Collierville’s Downtown Square Redevelopment Plan will be achieving the overwhelming buy-in of community stakeholders for the plan’s key projects and goals. By selecting a simple yet compelling moniker for Collierville’s housing authority – for example, the Collierville Redevelopment Authority – town leaders will be able to more effectively communicate the Authority’s mission to the community. The CRA will be focused on the redevelopment of Collierville’s Downtown Square area, and it should be created and marketed as such. Other housing authorities in Tennessee have created unique names for their agencies. Examples include: • • • Knoxville's Community Development Corporation, commonly known as KCDC, is the housing authority and redevelopment agency for Knoxville. The housing authority in Nashville, the Metropolitan Development and Housing Agency, is engaged in a wide variety of development and redevelopment projects. In Kingsport, the city named its housing authority the Kingsport Housing and Redevelopment Authority (KHRA).
When developing its housing authority, Collierville planning and administrative officials should consider naming the authority the Collierville Redevelopment Authority – or another title arrived at through a consensus-based process – to ensure that the agency’s mission is effectively communicated to area stakeholders.
Creation
Tennessee law offers many specifics as to the creation of a local housing authority, but there are also a number of issues in which state code is vague. It will be the
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charge of Collierville town officials and staff to work closely with Nashville representatives to structure a Collierville Redevelopment Authority that is consistent with the letter of the law, but also allows for the implementation of Collierville’s Downtown Square Development Plan as conceived by community stakeholders and the plan’s Steering Committee. The following points address the creation of the Collierville Redevelopment Authority. The relevant authorizing section of Tennessee code is noted parenthetically. • Eligibility. Collierville is eligible to create a housing authority under Tennessee law, as the definition of “city” in the Title 13 legislation means: “the city or town (author’s emphasis) which is, or is about to be, included in the territorial boundaries of an authority when created hereunder.” (13-20-102. Definitions.) Determination of blight. To establish a housing authority, town officials will need to successfully prove that areas in Collierville could be constituted as “blighted.” o Determination of “blight” in Tennessee code for the purposes of housing authorities is quite broad; “blighted areas” are defined as: “Areas… with buildings or improvements which, by reason of dilapidation, obsolescence, overcrowding, faulty arrangement or design, lack of ventilation, light and sanitary facilities, excessive land coverage, deleterious land use, or obsolete layout, or any combination of these or other factors, are detrimental to the safety, health, morals, or welfare of the community.” (13-20-201. Blighted areas and dilapidation defined.) o Quantitative research conducted by Market Street determined that the Downtown Square area is significantly less affluent and educated than the town as a whole. Quantitative and qualitative (visual confirmation) research also showed that property values, home prices, and the condition of certain residences in the district were inferior to the overall Collierville housing stock, and were detrimental to the progressive redevelopment of the Downtown Square district. Public hearing and Board and Mayor approval. After a public hearing held by town government to determine that conditions of blight exist in Collierville, the Board of Mayor and Aldermen “shall cause notice of such determination to be given to the mayor who shall thereupon appoint, as hereinafter provided, five (5) commissioners to act as an authority.” (3-20-402. Hearing Determination.) o Later, “When the application has been made, filed and recorded, as herein provided, the authority shall constitute a public body corporate and politic under the name proposed (author’s emphasis; the name proposed will be Collierville Redevelopment Authority, or another
•
•
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•
•
town-determined name) in the application.” (13-20-404. Authority a public body corporate.) Initial funding. “When any housing authority which is created for any city becomes authorized to transact business and exercise its powers therein, the governing body of the city shall immediately make an estimate of the amount of money necessary for the administrative expenses and overhead of such housing authority during the first year thereafter, and shall appropriate such amount to the authority out of any moneys in such city not appropriated to some other purposes. The moneys so appropriated shall be paid to the authority as a donation.” (13-20-417. Advances to housing authority) o The town then has the power to lend/donate money to the authority from “time to time,” until which point that the authority has the money available to reimburse the municipality for all loans made to it. Annual report. As defined by Tennessee code, “The authority shall at least once a year, file with the mayor of the city a report of its activities for the preceding year, and shall make any recommendations with reference to any additional legislation or other action that may be necessary in order to carry out the purposes of this chapter.” (13-20-412. Reports and recommendations)
Board of Commissioners
The Board of Commissioners will serve as the “defenders” of the Downtown Square Redevelopment Plan, and other projects facilitated and/or implemented by the Collierville Redevelopment Authority. They will be charged with ensuring that the “guiding principals” of the redevelopment plan are maintained. The following points address the creation of the Collierville Redevelopment Authority Board of Commissioners. The relevant authorizing section of Tennessee code is noted parenthetically. • Number and term. An authority shall consist of five commissioners (expandable to seven depending on the size of the community) appointed by the mayor; the mayor shall designate the first chair. “The commissioners who are first appointed are designated by the mayor to serve for terms of one, two, three, four, or five years, respectively, from the date of their appointment... Thereafter, the term of office for all commissioners shall be five years. A majority of the commissioners on the board shall constitute a quorum.” (1320-408.) o At least one commissioner must be a resident of public housing (i.e., a resident of one of the existing subsidized housing units developed in the Downtown Square area by the Town). o A commissioner holds office until the commissioner's successor has been appointed and qualified. Vacancies will be filled for the unexpired term.
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•
•
•
•
A commissioner receives no compensation for his/her services but is entitled to be given necessary expenses, including traveling expenses. o No commissioner may be a city official. o When the office of the first chair of the authority becomes vacant, the authority will elect a chair from among its members. The authority will also select from among its members a vice chair, and may employ a secretary, technical experts and such other persons – permanent and temporary – as it may require. Meetings and residence. “Nothing contained in this chapter shall be construed to prevent meetings of the commissioners anywhere within the perimeter boundaries of the area of operation of the authority… nor to prevent the appointment of any person as a commissioner of the authority who resides within such boundaries or such additional area.” (13-20-103.) Conflict of interest. “It is unlawful for any officer, committee member, director, or other person… to be directly interested in any (Authority) contract… The provisions of this subdivision shall not be construed to prohibit any officer, committeeperson, director, or any person, other than a member of a local governing body of a county or municipality, from voting on the budget, appropriation resolution, or tax rate resolution, or amendments thereto.” (124-101.) Removal of commissioners. “The mayor may remove a commissioner for inefficiency or neglect of duty or misconduct in office, but only after the commissioner shall have been given a copy of the charges against such commissioner… at least ten days prior to the hearing thereon and had an opportunity to be heard in person or by counsel.” (13-20-411.) Advisory Board. “For the purpose of coordinating its activities and undertakings… with the needs and undertakings of other local organizations and groups, a housing authority may establish an advisory board consisting of the chair of the authority (who shall be chair of the advisory board) and of sufficient members to represent, so far as practicable, the general public and users of housing, general business interests, real estate, building and home financing interest, labor, any official planning body in the locality, and church and welfare groups. The members of the advisory board shall be appointed by the chair of the authority.” (13-20-208) o
The Advisory Board detailed in the previous paragraph could contain members of Downtown Square interest groups affected by district redevelopment. This Advisory Board could therefore give voice to additional affected stakeholders in order to complement the expertise of the five housing commission members.
Staff
Most housing authorities in Tennessee have an Executive Director, and at least one or more staff persons. Size of staff is dependent on the community’s population and/or the number of projects coordinated by the housing authority.
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The Collierville Redevelopment Authority staff will be the key liaisons between the Town government and officials, the Board, and stakeholders in the redevelopment area. As all redevelopment projects will be subject to zoning review by the Town planning department, in addition to receiving approval from the Authority Board, the agency’s staff will need to maintain close and productive working relationships with Town elected and appointed officials.
TIF
Utilization of tax increment financing in the redevelopment area will be critical to incentivizing development through site clearance and preparation, provision of needed infrastructure improvements, environmental remediation, land acquisition, and other activities. While crucial to revitalization efforts, TIF district creation requires a detailed process of information gathering, financial projections, and public outreach, and is dependent on the approval of all taxing agencies in the Downtown Square Redevelopment Area. However, because of the large size of Collierville’s home county (Shelby County had a year 2000 population of 897,472), Town officials will not need to secure county approval of the Downtown Square Redevelopment Plan. Per Tennessee Code Annotated 13-20-205:
Except (author’s emphasis) in counties having a metropolitan form of government or a population greater than seven hundred seventy thousand (770,000) according to the 1980 federal census or any subsequent federal census, no redevelopment plan containing a tax increment financing provision… shall be effective unless and until it has been approved by the governing body of the municipality and the governing body of the county affected.
Eminent Domain
As was noted previously in this report, a majority of Steering Committee members expressed reservations about the use of the eminent domain tool to acquire property in the Downtown Square redevelopment district. The use (and potential abuse) of eminent domain is also being reviewed by the U.S. Supreme Court in the case of Kelo v. City of New London. At the time of this report’s writing, no decision had yet been made by the Court. Pending a restriction of eminent domain use by the Court, Collierville leaders should stay abreast of all decisions regarding the eminent domain tool. Despite the Steering Committee’s discomfort over the use of eminent domain in the Downtown Square district, officials in other Tennessee cities noted that the tool is often a key criterion for securing financing for private development projects. If a
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bank learns that eminent domain use is off the table, one official said, it may not guarantee a developer’s loan for a potentially risky project. Thus, while Steering Committee concerns over eminent domain use should compel the Collierville Redevelopment Authority to initially forego the tool’s use in plan implementation, if the Executive Director and Board of Commissioners determine that the issue is severely restricting district development, eminent domain should be reconsidered as a tool for the agency. In the event that eminent domain use becomes an absolute necessity in the Downtown Square redevelopment area, the tool should be utilized only in cases where every conceivable land acquisition alternative has been exhausted. The Authority should provide the public with ample opportunities for project review and compensate the property owner for the full, fair value of his/her land.
OVERLAY ZONING
In the overlay zoning that the Town planning staff should consider developing to correspond with this Downtown Square Development Plan, the following tools should be assessed for inclusion in the overlay zoning regulations: Development design standards • Consensus should be reached on the mass, height, floor area ratio (FAR), façade treatments, first-story-specific guidelines; architectural styles and details, and other design issues specific to new development in the Downtown Square area. It is important that new development be in character with the existing Town Square, as that contingency was said to be a priority by the overwhelming number of stakeholders commenting on this plan. Mixed-use development • The ability of property owners to develop projects or redevelopments with a mixture of uses should be allowed by-right in the Downtown Square district. Protection of Existing Residents • Consideration should be given to ensuring that existing residents are not displaced when their property values rise after District revitalization begins. The Steering Committee was in consensus on this point. Potential tools for this contingency include freezing property tax rates for a set period based on that household’s average income, or providing loan assistance to low-income residents to help allay increased property tax obligations. Provision of Working Professional Housing • As Collierville’s per capita income and housing prices rise, it is becoming increasingly difficult from working professionals such as nurses, teachers, policemen, firemen, and other middle-class professionals, to afford to live in the community. Through the overlay zoning regulations, the Town might
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consider compelling developers to provide a certain percentage of new housing at prices affordable to working professionals in Collierville. It is critical that the Downtown Square Redevelopment District overlay zoning be absolutely clear and detailed as to the powers of the Collierville Redevelopment Authority in the district, and the integration of the existing Historic District Overlay Zone in the new regulations. Reducing the potential for misinterpretation and conflict in the redevelopment overlay zoning district will ease the future development review and approval process in the area, and ensure that historic properties and stakeholder concerns regarding preservation of the Downtown Square’s character will be addressed during redevelopment plan implementation.
INFRASTRUCTURE CONSIDERATIONS
In addition to implementation contingencies that could be managed by specific regulations in an overlay zoning category for the Downtown Square district, other concerns relative to development could be addressed through the Collierville Redevelopment Authority’s bonding functions (including TIF financing). Specific applications for bond financing could include the following: Transportation • As was noted in many of the development schemes for this plan, the creation of certain new streets, and the enhancements of others, will be a component of plan implementation. The ability to incorporate some of these construction costs through TIF or bond financing will greatly improve the feasibility of many of these improvements. • It is recommended, however, that the Town of Collierville undertake a town-wide Transportation Management Plan to assess the impact of growth on the Town’s street and highway grid, plan for future traffic contingencies, and improve connectivity and accessibility between all the Town’s sub-areas. Parking • The availability of free/low-cost, accessible parking is a key concern of visitors to the Town Square as well as property owners and small businesspeople. In many cases, respondents in focus groups, interviews and on the Online Survey said that availability of parking was the number one issue facing the Downtown Square area. • Through its bonding and TIF capacity, the Collierville Housing Authority might consider the development of structured parking lots, either adjacent to the Town Square, or in a strategically accessible location. Signage/Wayfinding • It was also overwhelmingly noted in the public input component of this plan – as well as by Steering Committee members – that the existing signage both within, and outside, of the Town Square was sub-optimal.
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•
As a component of this Downtown Square Development Plan, the Town might consider developing a corresponding wayfinding plan for the Downtown Square area, and the Collierville neighborhoods in its immediate vicinity. Enabling both locals and visitors to become aware of the Downtown Square district in other parts of town will contribute to the overall viability of the district’s vendors and businesspeople.
Environmental Assessment/Remediation • Components of the Downtown Square district are either currently functioning industrial facilities, or properties that once contained industrial uses. The potential exists that land within these parcels could be environmentally contaminated. • The Town of Collierville, in conjunction with this Downtown Square Development Plan, might consider contracting to perform an environmental assessment of the potentially contaminated areas of the district. • If contamination is found to exist, the Authority’s TIF or bonding capacity could potentially finance some or all of the costs of remediating contaminated district properties.
Models in Tennessee
Other Tennessee communities are at various stages of development and/or implementation of downtown development plans resembling the process recommended for Collierville. The following communities provide models for the implementation of Collierville’s plan.
JACKSON, TN
Through a planning process similar to the one undertaken by Collierville, Jackson established a "Redevelopment Project Area and Strategic Redevelopment Plan" for its downtown. The Project Area and Plan are “a revitalization tool for East Jackson and the downtown. Redevelopment is a local economic development tool that will be vital for implementing both the housing development goals and attracting commercial 7 investment.” The Redevelopment Plan, as required by Title 13, Chapter 20, Tennessee Code Annotated, establishes the objectives that provide an orderly and fair process to: 1. 2. 3. 4. Increase supply of moderate/affordable-housing stock; Create developable property; Promote commercial/retail development (which increases tax revenue); and Develop/improve linkages between the downtown commercial periphery and downtown gateways.
7
City of Jackson. Redevelopment. 28 February 2005. .
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As Jackson’s Redevelopment Plan notes, “TCA 13-20-200 authorizes municipalities to establish and use local housing authorities to undertake redevelopment projects for the elimination of blighted, dilapidation and deterioration of areas within their 8 corporate limits.” In Section VI of Jackson’s Redevelopment Plan, “Selection of Developers and Approval of Redevelopment Plan,” the plan states that:
Redevelopment may be accomplished by the (Housing Authority), private entities and/or through public/private partnerships…It is the responsibility of the Authority to seek development proposals via solicitation and/or by accepting unsolicited proposals for identified development parcels (singly or in groups) or as otherwise may be deemed appropriate. It is also the responsibility of the Authority to select the development proposals that are most advantageous in the context of the Plan and its objectives. 9
In the plan section on financing, the plan states that “the City may appropriate funds from existing capital resources or operating funds of the City. Additionally, the City and/or the Authority may individually or jointly and severally borrow funds through the issuance of notes or bonds… If the Authority should issue its notes or bonds either singularly or jointly with the City and/or the County, such bonds may be 10 payable from tax increment revenues.”
KINGSPORT, TN
The city long ago established a Kingsport Housing and Redevelopment Authority (KHRA). Currently, the Authority is working with the City of Kingsport to implement a Redevelopment Plan for a number of districts within the city, including a Downtown Redevelopment District. Per the City of Kingsport website: “Housing Authorities throughout the state are given responsibilities and powers to carry out redevelopment on behalf of the cities in Tennessee. Because of the statutory powers, the City of Kingsport has asked KHRA 11 to undertake these (redevelopment) activities.” The determination of what constitutes a redevelopment district is made by the city and the KHRA based on state-defined qualifications of “blight.” As was noted in the Introduction to this report, the disinvestment in the Downtown Square area of
City of Jackson. Redevelopment Plan. 28 February 2005. . 9 Ibid. 10 Ibid. 11 City of Kingsport. Kingsport Housing and Redevelopment Authority Frequently Asked Questions (FAQ) about Redevelopment. 27 February 2005. .
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Collierville (especially in relation to the town at large) is consistent with the qualifications required by the state for Redevelopment Plan areas. According to KHRA Executive Director, Terry Cunningham, the authority had not been involved in redevelopment until 1999. Its first project – a commercial redevelopment of a historic property utilizing TIF – is only now coming to fruition. Cunningham said that TIF is a key tool for effective redevelopment, and advised Collierville to create a redevelopment plan for a specific district, and then officially adopt that plan to pave the way for implementation. As has been noted in this report, the Downtown Square area as defined for this planning process will constitute the redevelopment area, and this plan will serve as the redevelopment plan to be adopted by the Board of Mayor and Aldermen. Despite the powers provided to housing authorities by Tennessee law, Cunningham said that the agency’s effective operations are always contingent on good working relationships with Kingsport’s elected and appointed officials, and planning staff. Without the support of the city’s political leadership, Cunningham said, redevelopment projects and plans simply cannot reach fruition.
FRANKLIN, TN
Many Collierville constituents mentioned Franklin as a best-practice example of what could be accomplished in an historic downtown. Even in Franklin, however, local officials and residents feel there is more work to be done. In the Central Franklin Area Plan released in May 2004, it was noted that the plan was intended to serve as a unified guide and central coordinating mechanism for the future of Central Franklin. The plan: • • • Emphasizes the interrelated nature of Central Franklin’s diverse neighborhoods and its historic commercial core as a key to its long-term success and vitality; Synthesizes and builds upon the previous work efforts and successes of the City, the stakeholders and numerous organizations already active in Central Franklin; and Perhaps most importantly, identifies the necessary “next steps” the community must take in order to achieve the implementation of its goals for 12 Central Franklin.
In Chapter 9 of the plan, “Implementation Tools,” under the sub-heading “Redevelopment Tools.” the authors note:
12
City of Franklin. Central Franklin Area Plan. 27 February 2005. .
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Communities of all sizes across the United States are focusing today on the redevelopment of their central business and residential areas. In Tennessee, a housing authority established under state law may create a “Redevelopment Plan.” The local government then adopts this Redevelopment Plan, which becomes the primary tool used by the housing authority, in conjunction with the local government, to accomplish the redevelopment goals of a community (author’s emphasis). Generally, a Redevelopment Plan defines a specific geographic area for redevelopment and sets the parameters for redevelopment.13
The state law authorizing the creation of redevelopment plans is found in Tennessee Code Annotated 13-20-214. Development of program by municipality - Authorization. The section reads:
The governing body of the municipality, or such public officer or public body as it may designate, is hereby authorized to prepare a workable program (which may include an official plan of action…) for utilizing appropriate private and public resources to eliminate, and prevent the development or spread of, slums and urban blight and deterioration, to encourage needed urban rehabilitation, to provide for the redevelopment of blighted, deteriorated, or slum areas, or to undertake such of the aforementioned activities or other feasible activities as may be suitably employed to achieve the objectives of such a program.
METRO A REAS
Tennessee’s metropolitan areas (MSAs) utilize their housing authorities for residential and commercial redevelopment quite liberally. As noted previously, the housing authority in Nashville, the Metropolitan Development and Housing Agency (MDHA), has plenty of experience in non-housing redevelopment projects, both metro-wide and specific to the downtown. These range from mixed-financed commercial projects to the development of the city’s football stadium and hockey arena. In Knoxville, the KCDC is coordinating the planning and implementation of two key 14 downtown redevelopment projects. These are : • • Market Square: This redevelopment and urban renewal plan is intended to be a catalyst to return this key commercial area to a prominent role in the civic, economic and cultural life of the community. Jackson/Depot: Recently, a number of businesses and residents have renovated a few of the historic buildings in this formerly thriving commercial, transportation and warehouse district, but many vacant, dilapidated structures
Ibid, p. 70. KCDC. Downtown Redevelopment Projects. 31 March 2005. .
14
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remain. This redevelopment and urban renewal plan will help stimulate the area’s return to prominence. In Memphis, the Memphis Housing Authority has a Development Department, which is, “Responsible for any new real estate activity which includes building and land acquisitions, Low-Income Housing Tax Credit (LIHTC) developments, and 15 coordinating development activities with third party developers.”
Other Considerations
By creating a Collierville Redevelopment Authority and adopting this Downtown Square Development Plan as a Redevelopment Plan for the district, the issue of the existing regulatory and coordinating structures in the Downtown Square area arises. The two existing structures in the Downtown Square area are the Historic District Commission and Main Street Collierville.
HISTORIC DISTRICT COMMISSION
As the Commission is currently structured, the composition of the board was said by many Town Square residents, property owners and business people to be overly stringent in its evaluations, and not representative of the constituency it is charged to serve. However, others noted that the Commission is simply enforcing the regulations of the Historic District as written. The structure of the Commission and the Historic District should be re-examined as a component of the implementation of this Downtown Square Development Plan. Specifically, Collierville officials should consider: • • • • Whether the Historic District could, or should, be incorporated into the Downtown Square redevelopment area overlay zoning category; If the Historic District is preserved, how could the overlay regulations for the redevelopment district best apply to properties and structures in the Historic District; If the Historic District is preserved, could the composition of the Historic District Commission be reworked to be more representative of the district itself; and Is it feasible to disband the Historic District Commission and designate one of the five slots on the housing authority Board of Commissioners for a historicpreservation specialist?
15
Memphis Housing Authority. MHA Departments. 31 March 2005. .
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With an additional layer of regulatory oversight being applied to development in the Downtown Square area with the creation of the Collierville Redevelopment Authority, it would likely benefit the development process to streamline the existing project approval process. This would mean eliminating the redundancies of project development in Collierville’s Downtown Square district by providing only one set of regulatory criteria for developers to address before Board and Mayor approval of TIF financing. By including in the Downtown Square Redevelopment Overlay District zoning code very specific regulations for historically designated properties, Town planners will ensure that the Square’s historic character is preserved, new development is consistent with this existing character, and developers are not overwhelmed by an overly convoluted project approval process. The Redevelopment Authority’s Board of Commissioners would then perform the historic-project-approval duties formerly done by the Historic District Commission. As the creation of the Collierville Redevelopment Authority and Downtown Square Overlay Zoning category proceeds, these issues will need to be discussed and assessed in order to reach consensus.
MAIN STREET COLLIERVILLE
Similarly, Town officials (elected and appointed), Town staff, and Downtown Square area constituents should examine the current operations and budget of Main Street Collierville to assess how it could be best integrated into the Downtown Square Development Plan goals and activities. Whether Main Street Collierville continues in its present form, becomes a component of the Collierville Chamber of Commerce, or is restructured to represent the broader Downtown Square district as encompassed by this development plan, the key to moving forward will be for local stakeholders to maximize the utilization of this important tool for contributing to the overall vitality of the district. While Steering Committee members discussed the role and future of Main Street Collierville, no consensus was reached on its desired structure and/or program of work. In the short term, while early-stage implementation is occurring relative to creation of the Collierville Redevelopment Authority and the Downtown Square district overlay zoning code, Main Street Collierville should continue to operate in its current form and mission. As implementation proceeds, Town officials and housing authority commissioners will work with Main Street Collierville and the Collierville Chamber to assess the most effective operational dynamic for Main Street in the context of the Downtown Square’s redevelopment plan.
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Timelines
The following table contains priority actions for the first year of plan implementation. It will be crucial to reexamine this timeline as implementation progresses to determine if recommended actions are still consistent with the overall direction of implementation. Collierville’s Downtown Square Development Plan is a living document, and must be seen in the context of Collierville’s town-wide growth and development. Certain priority activities at the time of the plan’s release may be rendered less important by dynamics occurring in the Downtown Square area, and the Town of Collierville as a whole. Town leaders, officials and staff – as well as commissioners of the Collierville 16 Redevelopment Authority – will need to take ownership of this plan, and shepherd it through the many phases of implementation to ensure that momentum for action is maintained, and that the plan’s key components of context-sensitive design and demographic equity are maintained as implementation continues.
Market Street recommends that the Authority’s Board of Commissioners contains key members of this plan’s Steering Committee. Committee members have gone through the “birthing pains” of creating this Downtown Square Development Plan, are familiar with the many issues involved in implementation, and will serve the community well through their passion for the Downtown Square area, and their allegiance to the Town of Collierville itself. However, as per Tennessee law, the five commissioners must not have a direct conflict of interest in the redevelopment district in order to serve.
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Downtown Square Development Plan: First Year Action Plan Objective Month(s) 1 to 2 Initiate development of Town-owned former church property. Action Steps Secure approval of the Board and Mayor to develop the former church property as a multi-purpose, community-serving complex. Refine development plans for former church property to reflect new uses. Ensure that plans are consistent with Downtown Square Development Plan edicts. Secure financing for development of former church property. Begin due diligence, working with state planning staff and local elected officials, to establish a housing authority in Collierville. Approach selected Steering Committee members, and other key local public and private sector stakeholders, about serving on the initial Redevelopment Authority Commission. Secure Board and Mayor approval of the creation of a Redevelopment Authority in Collierville. Apply to state for charter. Work with state and local officials to secure official designation of the Downtown Square area as a qualified Redevelopment Area under state Housing Authority law. Obtain Board of Mayor and Aldermen approval of the Downtown Square Development Plan as Redevelopment Plan for the Downtown Square district. Study and review potential revenue sources for Redevelopment Authority, including: Collierville's existing 1% "historic" tax on commercial property owners, state/federal grants, bonding functions, private-sector investment, taxation tools, etc. Officially appoint Board of Commissioners for Redevelopment Authority, and begin implementation of Downtown Square Development Plan. Principals
1 to 10
Collierville staff
1 to 10
1 to 3
Collierville staff Collierville staff, Chamber staff, Main Street staff
1 to 2
3 to 8
Begin creation of Collierville Redevelopment Authority.
3 to 8
6 to 10
Collierville staff
3 to 12
10 to 12
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Downtown Square Development Plan: First Year Action Plan (cont’d) Objective Begin creation of Collierville Redevelopment Authority (cont’d). Month(s) Action Steps (Optional: Investigate subsuming the Historic District Commission into the Collierville Redevelopment Authority.) Establish the official boundaries of the Downtown Square district as a Redevelopment Area in Collierville. Develop an overlay zoning code for the Downtown Square Redevelopment Area, including: design guidelines, mass/ height/FAR/ground-floor use/streetscape/mixed-use by right/ percentage development for working professionals, etc. Complete studies, assessments, valuations, and other processes necessary to designate the Downtown Square Redevelopment Area as a TIF district. Secure approval of the Board and Mayor, School Board, and other necessary bodies to designate the Downtown Square Redevelopment Area as a TIF district. Secure Board and Mayor approval of overlay zoning code. (Optional: Subsume the Historic District Overlay Zone (H-1) into the Downtown Square Redevelopment Area zoning overlay district.) Principals Collierville staff, Historic District Commission
(1 to 12)
1 to 3
1 to 12
Develop overlay zoning code for Downtown Square Redevelopment Area and incorporation of TIF function.
1 to 12
Collierville staff
10 to Year Two 10 to Year Two (1 to 12)
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Downtown Square Development Plan: First Year Action Plan (cont’d) Objective Month(s) Action Steps In order to proactively assess various parcels in the Downtown Square area for development, a number of property owners have expressed a desire to potentially retain the Sizemore Group to conduct exhaustive, site-specific development assessment plans for their properties. These parcelspecific plans would incorporate the Downtown Square Development Plan into their assessments, and enable property owners to potentially develop parcels before a Collierville Redevelopment Authority has been "officially" approved. Review first-year implementation to date, and identify actions of priority need. Begin development of second-year Action Plan. Principals
Property owner development assessments.
1 to Year Two
Property owners, Sizemore Group
Status assessment and development of second year Action Plan.
10 to 12
Collierville Staff, Authority staff, Board of Commissioners
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The following timeline is for implementation years two and three, and beyond.
Downtown Square Development Plan: Second/Third Year Actions and Beyond Objective Develop Townowned former church property. Creation of Redevelopment Authority and Downtown Square Redevelopment Area designation. Action Steps Optimally, development of the former church property will have begun by Year Two, and will likely continue into Year Three. It is possible that the process of creating a Collierville Redevelopment Authority and the designation of the Downtown Square Redevelopment Area, and securing Board and Mayor approval of these actions will continue into Year Two. Utilizing TIF financing, bond financing, and other tools, it will be necessary to upgrade these potential categories: Transportation infrastructure - existing and new roads; Utilities infrastructure water, sewer, wire-line, wireless, etc.; Streetscape - street trees, sidewalks, street furniture, signage, etc.; Environmental - development of greenspace/parks, potential remediation of contaminated sites, movement of trains, rail spur, depot, etc. to provide greenspace; and others. These improvements will continue into Year Three and beyond. In collaboration with the Redevelopment Authority, the Town of Collierville should contract for a Wayfinding Plan for the Downtown Square Redevelopment Area and, as applicable, adjacent Collierville neighborhoods. This plan will assess motorized and pedestrian traffic flows, patterns, and intensities, and recommend a best-practice wayfinding and signage plan for the Downtown Square district. At some point in this process, an environmental assessment will need to be conducted on existing and former industrial properties in the Downtown Square Redevelopment Area. Remediation will be accomplished through the "development of district infrastructure" actions and financing noted above. Principals Town of Collierville
Collierville staff
Development of district infrastructure.
Redevelopment Authority, Town of Collierville, Shelby County, Tennessee DOT, and others
Downtown Square area wayfinding plan.
Redevelopment Authority, Town of Collierville, Shelby County, Tennessee DOT
Environmental assessment.
Redevelopment Authority, Town of Collierville, federal EPA
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Downtown Square Development Plan: Second/Third Year Actions and Beyond (cont’d) Objective Town-wide Transportation Improvement Plan. Action Steps Rather than focus transportation impact assessments and planning on the Downtown Square Redevelopment Area and its immediate vicinity, the Town of Collierville would be well-served to contract for a town-wide Transportation Improvement Plan. Principals
Town of Collierville
Implementation Phases
Based on the Downtown Square Development Plan implementation timelines, two clear phases for implementation are evident. Phase One will focus on the development district north of the railroad tracks, primarily because the development of the town-owned church property is a priority of the first year plan implementation. In addition, discussions on how to best incorporate the Historic District into the Downtown Square Redevelopment Area, and the process best suited for potentially relocating the trains and depot on the south side of the Square to facilitate greenspace development, will also be first year priorities. As implementation proceeds, and structures are approved to guide the process for development of the Downtown Square Redevelopment Area, focus will expand to the properties south of the railroad tracks. This will be Phase Two of implementation. Elements of this phase include: a potential environmental assessment of industrial properties; assessment of the potential to develop property in front of the federal Post Office; priority usage and potential development schemes involving Suggs Park; Center Street development; development of the Green Plaza linking Center and Main Streets south of the railroad tracks; and other projects. The concept of a “phased” implementation is important to communicate to Collierville stakeholders, who may feel overwhelmed by the thought of an “overnight” redevelopment of their beloved Town Square. In reality, progress will most likely occur on a project-by-project basis, and will allow for a comprehensive process of community and governmental involvement.
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CONCLUSION
Although the creation of Collierville’s Downtown Square Development Plan has been a months-long process involving numerous meetings, interviews, focus groups and surveys, it is still simply the “end of the beginning” of the Downtown Square Redevelopment Area implementation process. Now, the real work begins. While this thought is understandably daunting, it has been clear to Market Street and Sizemore Group throughout this process that the love, concern, regard and hope that local stakeholders have for the Town Square and its adjacent neighborhoods is great, and will be the fuel to power the continued momentum for plan implementation. This project’s Steering Committee has invested considerable time, energy and “sweat equity” into the creation of the Downtown Square Development Plan. It will be the continuing charge of all those who participated on the Committee to ensure that the tenets of the plan remain in the public consciousness and its key components move forward and gain approval from the Town’s Board of Mayor and Aldermen. Ultimately, it will be a truly collaborative, cooperative, and all inclusive partnership between the Town of Collierville, the Collierville Chamber of Commerce, key local companies and public sector leadership, that will enable the vision for the Downtown Square area developed over these months to become a reality for the benefit of current and future neighborhood residents, property owners, businesspeople, visitors to Collierville, and the greater Town itself.
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APPENDIX
Housing Authorities in Tennessee
Housing Authority Name, Phone & Fax Number Address
Athens Phone: (423)745-0341 Fax: (423)745-0362 Bolivar Phone: (731)658-3419 Fax: (731)658-5000 Bristol Phone: (423)274-8150 Fax: (423)274-8155 Brownsville Phone: (731)772-0274 Fax: (731)772-5767 South Carthage Phone: (615)735-1940 Fax: (615)452-5601 Chattanooga Phone: (423)752-4893 Fax: (423)752-4809 Clarksville Phone: (931)647-2303 Fax: (931)647-3785 Cleveland Phone: (423)479-9659 Fax: (423)339-5984 Clinton Phone: (865)457-9692 Fax: (865)457-1073 Columbia Phone: (931)388-5203 Fax: (931)540-8684
199 Clark Street Athens TN 37303 621 Hatchie Haven Bolivar TN 38008 100 Ash Street Bristol TN 37620 205 Summer Oaks Cove Brownsville TN 38012 109 Hazel Drive Carthage TN 37030 505 West Martin Luther King Boulevard Chattanooga TN 37401 721 Richardson Street Clarksville TN 37040 450 Walker Street NE Cleveland TN 37311 825 McAdoo Street Clinton TN 37716 201 Dyer Street Columbia TN 38401
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Housing Authority Name, Phone & Fax Number
Address
Cookeville Phone: (931)526-9793 Fax: (931)526-5841 Covington Phone: (901)476-6135 Fax: (901)476-6188 Crossville Phone: (931)484-2990 Fax: (931)456-1513 Dayton Phone: (423)775-1871 Fax: (423)775-2523 Dickson Phone: (615)446-9371 Fax: (615)441-1391 Sethra Phone: (423)949-2191 Fax: (423)949-4023 Dyersburg Phone: (731)285-6771 Fax: (731)287-0530 Elizabethton Phone: (423)543-3571 Fax: (423)542-6516 Erin Phone: (931)289-4261 Fax: (931)289-4262 Erwin Phone: (423)743-5231 Fax: (423)743-0691 Etowah Phone: (423)263-2674 Fax: (423)263-9462 Fayetteville Phone: (931)433-1587 Fax: (931)433-8924
235 W. Jackson St. Cookeville TN 38501 1701 Shoaf Street Covington TN 38019 67 Irwin Avenue Crossville TN 38555 270 Railroad Street Dayton TN 37321 333 Martin Luther King Jr Boulevard Dickson TN 37055 Resource Rd Dunlap TN 37327 541 Hike Ave Dyersburg TN 38024 910 Pine Ridge Circle Elizabethton TN 37643 106 Griffin Drive Erin TN 37061 750 Carolina Avenue Building 100 Erwin TN 37650 400 Sunset Drive Etowah TN 37331 402 Calhoun Avenue Fayetteville TN 37334
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Housing Authority Name, Phone & Fax Number
Address
Franklin Phone: (615)794-1247 Fax: (615)794-9254 Gallatin Phone: (615)452-1661 Fax: (615)452-5601 Gallaway Phone: (901)867-8101 Fax: (901)867-8136 Greeneville Phone: (423)638-3111 Fax: (423)638-2489 Harriman Phone: (865)882-9636 Fax: (865)882-9670 Hartsville Phone: (615)374-3959 Fax: (615)374-3959 Hohenwald Phone: (931)796-3642 Fax: (931)796-1059 Humboldt Phone: (731)784-9772 Fax: (731)784-0822 Huntingdon Phone: (731)986-4442 Fax: (731)986-8517 Jackson Phone: (731)422-1671 Fax: (731)425-4605 Jefferson City Phone: (865)475-2064 Fax: (865)475-5099 Jellico Phone: (423)784-8809 Fax: (423)784-3714
100 Spring Street Franklin TN 37064 401 N Boyers Avenue Gallatin TN 37066 200 Jackson Street Gallaway TN 38036 100 Cox Circle Greeneville TN 37743 924 Sewanee Street Harriman TN 37748 212 Rogers Street Hartsville TN 37074 107 Allison Avenue Hohenwald TN 38462 3532 Seymour Loop Humboldt TN 38343 433 Hillcourt Circle Huntingdon TN 38344 125 Preston Street Jackson TN 38301 942 E Ellis Street Jefferson City TN 37760 189 S Main Street Jellico TN 37762
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Housing Authority Name, Phone & Fax Number
Address
Johnson City Phone: (423)232-4784 Fax: (423)232-4789 Kingsport Phone: (423)245-0135 Fax: (423)392-2530 Knox County Phone: (865)637-7942 Fax: (865)637-1233 ETHRA Phone: (865)691-2551 Fax: (865)531-7216 KCDC Phone: (865)403-1100 Fax: (865)594-8791 Lafollette Phone: (423)562-2261 Fax: (423)562-1455 Lafayette Phone: (615)666-2140 Fax: (615)666-4921 Lawrenceburg Phone: (931)762-7532 Fax: (931)766-0698 Lebanon Phone: (615)444-1872 Fax: (615)444-1520 Lenoir City Phone: (865)986-8707 Fax: (865)986-8725 Lewisburg Phone: (931)359-4517 Fax: (931)359-8496 Lexington Phone: (731)968-7506 Fax: (731)967-1363
901 Pardee Street Johnson City TN 37601 906 E Sevier Avenue Kingsport TN 37660 6333 Pleasant Ridge Road Knoxville TN 37921 9111 Cross Park Drive Suite D-100 Knoxville TN 37923 901 N Broadway Street Knoxville TN 37917 802 S 4th Street La Follette TN 37766 613 Dycus Circle Lafayette TN 37083 1020 Smith Avenue Lawrenceburg TN 38464 49 Lake Drive Lebanon TN 37087 101 Oakwood Drive Lenoir City TN 37771 744 Bark Street Lewisburg TN 37091 100 Willow Courts Lexington TN 38351
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Housing Authority Name, Phone & Fax Number
Address
Livingston Phone: (931)823-6423 Fax: (931)823-6424 Loudon Phone: (865)458-2061 Fax: (865)458-6162 Manchester Phone: (931)728-2596 Fax: (931)728-4748 Martin Phone: (731)587-3186 Fax: (731)587-0019 Maryville Phone: (865)983-4958 Fax: (865)984-7513 McKenzie Phone: (731)352-5335 Fax: (731)352-9416 McMinnville Phone: (931)473-3286 Fax: (931)473-8524 Memphis Phone: (901)544-1100 Fax: (901)544-1841 Shelby County Phone: (901)353-0590 Fax: (901)358-6414 Milan Phone: (731)686-8571 Fax: (731)686-7218 Millington Phone: (901)872-3677 Fax: (901)872-1152 Grundy Phone: (931)924-2496 Fax: (931)924-2469
620 E 7th Street Livingston TN 38570 124 Pathkiller Trail Loudon TN 37774 710 Butler Circle Manchester TN 37355 134 East Heights Drive Martin TN 38237 100 Broadway Towers Maryville TN 37801 22 McDonald Avenue W Mc Kenzie TN 38201 301 Hardaway Street Mc Minnville TN 37110 700 Adams Avenue Memphis TN 38105 715 Rouge Bluff Road Memphis TN 38127 1000 Northside Terrace Milan TN 38358 4888 Bill Knight Avenue Millington TN 38083 100 Raulston Avenue Monteagle TN 37356
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Housing Authority Name, Phone & Fax Number
Address
Morristown Phone: (423)586-5115 Fax: (423)586-3014 Mt. Pleasant Phone: (931)379-5811 Fax: (931)379-5812 Murfreesboro Phone: (615)893-9414 Fax: (615)893-9436 Tennessee Housing Phone: (615)741-4980 Fax: (615)741-4933 MDHA-Nashville Phone: (615)252-8400 Fax: (615)252-3677 Newbern Phone: (731)627-2142 Fax: (731)627-6271 Newport Phone: (423)623-1575 Fax: (423)625-0386 Oak Ridge Phone: (865)482-1006 Fax: (865)482-2463 Oliver Springs Phone: (865)435-1711 Fax: (865)435-0575 Paris Phone: (731)642-4451 Fax: (731)642-4496 Parsons-Decaturville Phone: (731)847-2638 Fax: (731)847-2701 Portland Phone: (615)325-4559 Fax: (615)325-6710
600 Sulphur Springs Road Morristown TN 37815 138 Thomas Circle Mount Pleasant TN 38474 415 North Maple Street Murfreesboro TN 37130 404 James Roberson Prky. Suite 1114 Nashville TN 37243 701 S 6th Street Nashville TN 37206 709 Maple Street Newbern TN 38059 375 Alex Street Newport TN 37821 10 Van Hicks Lane Oak Ridge TN 37830 113 Wagner Court Oliver Springs TN 37840 917 Minor Street Paris TN 38242 155 Miller Street, Unit 301c Parsons TN 38363 107 Potts Avenue Portland TN 37148
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Housing Authority Name, Phone & Fax Number
Address
Pulaski Phone: (931)363-6525 Fax: (931)363-1686 Ripley Phone: (731)635-1901 Fax: (731)635-1948 Rockwood Phone: (865)354-9841 Fax: (865)354-3659 Rogersville Phone: (423)272-8540 Fax: (423)272-4710 Savannah Phone: (731)925-2020 Fax: (731)926-2337 Sevierville Phone: (865)453-8500 Fax: (865)428-7584 Shelbyville Phone: (931)684-1341 Fax: (931)684-1342 Smithville Phone: (615)597-4140 Fax: (615)597-2054 South Pittsburg Phone: (423)837-6600 Fax: (423)837-1136 Sparta Phone: (931)836-3357 Fax: (931)836-1226 Springfield Phone: (615)384-4591 Fax: (615)384-5911 Sweetwater Phone: (423)337-6224 Fax: (423)337-4419
2006 Garden Meadows Drive Pulaski TN 38478 101 Northcrest Ripley TN 38063 320 W Carpenter Street Rockwood TN 37854 902 Locust Street Rogersville TN 37857 80 Jefferson Street Savannah TN 38372 500 Leo Sharp Road Sevierville TN 37862 316 Templeton Street Shelbyville TN 37160 415 Jackson Street Smithville TN 37166 214 Elm Avenue South Pittsburg TN 37380 300 Cragrock Drive Sparta TN 38583 808 Rose Hill Circle Springfield TN 37172 661 Highway 68, West Sweetwater TN 37874
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Housing Authority Name, Phone & Fax Number
Address
Trenton Phone: (731)855-1231 Fax: (731)855-0867 Tullahoma Phone: (931)455-9319 Fax: (931)455-9310 Union City Phone: (731)885-1971 Fax: (731)885-6149 Waverly Phone: (931)296-2256 Fax: (931)296-9541 Franklin County Phone: (931)967-0344 Fax: (931)967-4451 Woodbury Phone: (615)563-5276 Fax: (615)563-4477
128 Burnett Drive Trenton TN 38382 2401 Cedar Lane Village Drive Tullahoma TN 37388 1409 E Main Street Union City TN 38261 35 W Brookside Drive Waverly TN 37185 136 ROSS Lane Winchester TN 37398 401 McFerrin Street Woodbury TN 37190
Source: U.S. Department of Housing and Urban Development. PHA Contact Information. Tennessee. http://www.hud.gov/offices/pih/pha/contacts/states/tn.cfm
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