Inskip Small Area Plan - Knoxville

Inskip Small Area Plan
March 2011
Prepared by the
Knoxville-Knox County Metropolitan Planning Commission
Inskip Small Area Plan
March 2011
Adopted by:
The Knoxville-Knox County Metropolitan Planning Commission on March 10, 2011
The Knoxville City Council on April 19, 2011
Acknowledgements
Mike Reynolds ...................................................................................... Planner II
Mike Carberry.................................................. Comprehensive Planning Manager
Mark Donaldson....................................................................... Executive Director
Buz Johnson................................................................................. Deputy Director
David Massey................................. City of Knoxville, Neighborhood Coordinator
George Daws................................................... City of Knoxville, Civil Engineer II
Donna Young.........................................City of Knoxville, Greenway Coordinator
Ben Epperson................................................Healthy Kids, Healthy Communities
Bob Becker..................................................Former City Councilman, 5th District
Charles Thomas.......................................................City Councilman, 5th District
Nathan Benditz.................................................................. Transportation Planner
Ellen Zavisca...................................................................... Transportation Planner
Tim Kuhn......................................................................................... GIS Manager
Alex Zendel......................................................................................... GIS Analyst
Sarah Powell.................................................. Webmaster/Senior Graphic Designer
Jo Ella Washburn.........................................................................Graphic Designer
Table of Contents
Introduction and History......................................................................................... 7
Background and Analysis......................................................................................... 9
Inskip Plan Section................................................................................................. 15
Action Plan............................................................................................................ 25
Appendix 1: Land Use Classifications..................................................................... 27
Appendix 2: Approximate Construction Costs of Pedestrian Improvements........... 28
Appendix 3: Shasta Drive Buffer Planting Plan....................................................... 29
Introduction and History
In 2009, the Knoxville City Council asked the
Metropolitan Planning Commission to create a small area
plan to examine the Inskip area for possible zoning and
plan designation irregularities. These include neighborhood
conservation, low impact transitions from commercial
and office uses to residential uses, and disparities between
existing zoning and likely future land use.
There is also another program in Inskip that is spearheaded
by the Knox County Health Department called Healthy
Kids, Healthy Communities, which is funded by a grant
from the Robert Wood Johnson Foundation. The purpose
of this project is to provide easy-to-access places for physical
activity and healthy foods. As part of this process, the
Health Department conducted multiple public meetings
and a walkability audit in the Inskip Community, and some
of their analysis of community needs for access to physical
activity has been incorporated into this plan. These include
access to parks and the need for additional sidewalks.
In view of the land use and need for improved pedestrian
circulation, this plan has been created to address both of
these issues.
another church, two schools, and several side streets that
started a more cohesive neighborhood. The schools were
small: the one-room Tindell School, and the two-room
Woodlawn School. In 1912 education was consolidated
into a new three-room building and auditorium
that included elementary and secondary students
and was named High School. This school reportedly
accommodated boarders from north Knox County,
affording education to students from such distant reaches
as Raccoon Valley.
Prior to the creation of Clinton Highway and, later, the
interstate system, the intersection of Inskip Road and
Central Avenue Pike became a notable crossroads. During
the 1940s and 1950s, a private bus company, the original
Litton’s Market (now the bakery), the service station and
a drug store were established, and the railroad provided
a siting that enabled modest industrial growth. More
housing was created to accommodate the families of
railyard workers and veterans who saw a commute down
Central Avenue as an easy means to reach Knoxville, thus
moving from the small cross-roads community toward a
full-fledged suburb.1
History
The construction of the Knoxville and Ohio Railroad
in the mid-19th century led to the establishment of the
community as a small train station was created there. In
the late summer of 1872, a religious revival, known as the
National Camp Meeting, was held on Arthur Crozier’s
farm and the grounds of the Heritage Bible Church. A
renown evangelist, John Swanel Inskip, was the most
prominent preacher at the initial revival and subsequently
returned for later camp meetings. The congregation and
residents were so impressed by his teachings that they
named the community Inskip.
By 1895 a small nucleus of development was created,
including a grocery store containing the post office,
Sources: Inskip files of the McClung Collection, including articles of the Knoxville Chronicle, 1872 to 1883, an undated history of Inskip School, an unpublished manuscript on
Inskip by George Morton, dated 1968, and various articles regarding Inskip from the Knoxville News Sentinel.
1
Inskip Small Area Plan, 2011 7
Map 1: Existing Land Use
Rural Residential
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Single Family Residential
Scale in Feet
Inskip Small Area Plan, 2011
Background and Analysis
There is no official boundary for Inskip; however, this
plan’s study boundary could be considered the heart of
this area. The study boundary is formed by the arterial
and collector roads that enclose the residential blocks
of Inskip. The boundary is shown in Map 1 as the dark
dashed line.
percent of the housing units, as shown in Table 2. The
large number of residential units within multifamily
residential structures is primarily due to the R-2 (General
Residential) zoning, which accounts for 89 percent of the
acreage zoned residential in Inskip.
Existing Land Use
Existing land use, shown on Map 1, shows that there are
pockets of commercial, office and industrial uses, but the
predominant use is low and medium density residential.
The residential building types range from single family
detached houses to apartment buildings nearing 24
units per acre. Single family uses make up 73 percent
of the parcels and 43 percent of the total land area,
and multifamily residential uses make up an additional
15 percent of the parcels and 20 percent of the land
area, as shown in Table 1. However, of all residential
structures, those structures with 1 unit (primarily single
family detached houses) make up only 44 percent of
the total units. Residential units within duplexes and
larger apartment buildings make up the remaining 56
Commercial and office uses are predominantly along
Cedar Lane and Central Avenue Pike, which are on the
edges of the Inskip study area. On Inskip Drive there
are Industrial, Commercial and Office uses centralized
in the Inskip area. These uses originated in this location
because of the proximity to the railroad and were the
impetus for development in this area.
Zoning and Implications
Area zoning is shown on Map 2, and Table 3 shows
how much land area is within each zoning district.
The majority of the Inskip area is zoned R-2 (General
Residential), constituting 76 percent of the land area.
This zoning is considered a medium density residential
district and allows residential development from single
family detached houses to apartment buildings. Of the
existing land uses, only the Multifamily Residential
TABLE 1: EXISTING LAND USE
LAND USE
TABLE 2: DWELLING UNITS IN RESIDENTIAL STRUCTURES
PARCELS
PERCENT
ACRES
PERCENT
Single Family Residential
738
72.50%
285.9
43.30%
Multifamily Residential
151
14.83%
134.3
20.34%
Commercial
30
2.95%
31.7
4.80%
Office
22
2.16%
16.6
2.51%
Industrial (Manufacturing)
2
0.20%
5.4
0.81%
Wholesale
1
0.10%
0.8
0.12%
Agriculture/Forestry/Vacant Land
51
5.01%
31.6
4.79%
Public/Quasi Public Land
16
1.57%
34.5
5.23%
Right of Way/Open Space
4
0.39%
111.4
16.87%
Transportation/Communications/Utilities
1
0.10%
2.5
0.38%
Under Construction/Other Uses
2
0.20%
5.6
0.84%
Residential
Commercial, Office, Industrial
NUMBER OF UNITS IN
STRUCTURE
NUMBER OF
UNITS
PERCENT OF
UNITS
1 unit
905
44%
2-4 units
345
17%
5-9 units
188
9%
10-18 units
449
22%
20 units or more
188
9%
Other
Total
Inskip Small Area Plan, 2011 1018
660.2
9
Map 2: Zoning
Agricultural and Estate
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Civic and Institutional
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500
1,000
A-1
Scale in Feet
Inskip Small Area Plan, 2011
classification would require R-2 zoning (or other
Multifamily Residential zoning district), and this makes
up 20 percent of the land area. Thus, 57 percent of
the land area zoned R-2 could be zoned a low density
residential district such as R-1 or R-1A, which would be
more consistent with the existing housing types.
In Inskip there have been two instances in the last decade
where a group of homeowners had their properties
rezoned to a low density residential zoning district that
is more in line with the type of existing housing; in
these cases R-1 (Low Density Residential) and EN-1
(Established Neighborhood) were used. This approach
can be used in other areas of Inskip where zoning is
inconsistent with the character of the area, which will
help protect low density residential areas from the
encroachment of apartment complexes, or other higher
density developments that are not compatible with the
existing development pattern. This would primarily be for
areas that consist of single family detached houses.
There are two parks just outside the study area: the Inskip
Pool and Park and the Inskip-Norwood Recreation
Facility and Inskip Ballfields. The Inskip Pool and Park
has recently been upgraded with a new pavilion, walking
paths and tennis courts. The Inskip-Norwood Recreation
Facility and Inskip Ballfields have a gymnasium and
baseball fields. Programs are conducted there after school
and during summer months.
The Knoxville-Knox County Park, Recreation and
Greenways Plan recommends a neighborhood park in
the northeast quadrant of the Inskip area. According
to the park plan, a neighborhood park “should include
spaces for active recreation activities such as ball practice
and include passive recreation areas for strolling,
picnicking, and enjoying the outdoors. Parks should be
tailored to the needs of the surrounding neighborhoods.
These parks should be within a quarter to a half mile
from most homes, and their size is typically between
5-20 acres.”
Community Facilities
Transportation
Inskip Elementary School is the only community
facility within the Inskip study boundary and is located
near the center of the area. The school has a playground
that has the potential to be an activity focal point for
the community.
Roads
The highest traffic volumes in the area are found primarily
on two roads: Cedar Lane and Central Avenue Pike. The
intersection of these two roads is the most congested in
TABLE 3:
ZONING DISTRICT
R-1
(Low Density Residential)
EN-1
(Established Neighborhood)
R-2
ACRES
PERCENT
39.7
6.01%
4.0
0.60%
(General Residential)
500.6
75.83%
RP-1
(Planned Residential)
17.4
2.63%
C-1
(Neighborhood Commercial)
16.0
2.43%
C-3
(General Commercial)
19.2
2.92%
C-4
(Highway and Arterial Commercial)
4.5
0.68%
C-5
(Tourist Commercial)
13.7
2.07%
C-6
(General Commercial Park)
15.1
2.29%
I-2
(Restricted Manufacturing and Warehousing)
9.1
1.38%
I-3
(General Industrial)
9.8
1.49%
O-1
(Office, Medical, and Related Services)
10.5
1.59%
O-3
(Office Park)
0.5
0.08%
OS-1
(Open Space Preservation)
0.0
0.00%
Total
Inskip Small Area Plan, 2011 660.2
11
Map 3: Sidewalks, KAT Routes, and PRZs
Existing Sidewalks
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Note: Parental Responsibility Zones are
approximations. For official PRZ
R
boundary determinations,
contact the
FD
L EA
OD
WO
Knox County
Schools Transportation and
H
IR
Zoning Office.
D
DR
RD
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Sterchi Elementary PRZ
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FA
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CE D
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Inskip Elementary
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Parental Responsibility Zones
N
RT
RD
M
SS
WA
KAT Routes
O
N
W
DA
Scale in Feet
Inskip Small Area Plan, 2011
the area. The city has plans to widen this intersection by
adding a right turn lane to southbound Central Avenue
Pike and increasing the radius of the southwest corner
of the intersection.2 The City of Knoxville anticipates
putting this project out to bid and begin construction by
the end of 2011.
Traffic counts for the area are shown in Table 4. The
traffic volumes on all the streets are within acceptable
levels in terms of not being congested and improvements
are not anticipated.
Sidewalks
There are very few sidewalks within the Inskip
community. The sidewalks are concentrated in two areas:
near the Inskip Elementary School and the commercial
area along Cedar Lane. Existing sidewalks and the
approximate Parental Responsibility Zones (PRZ) are
shown on Map 3. The official PRZ is maintained by Knox
County Schools.
Sidewalks are important within a PRZ because this is
an area surrounding a school where bus service is not
provided and it is the responsibility of the parents to get
their children to school. For elementary schools this is a
one-mile distance along roadways. The majority of the
Inskip area is within a PRZ for either Inskip Elementary
or Sterchi Elementary.
Public Transportation
Existing bus routes are shown on Map 3. There are
three bus routes that travel through the Inskip study
area: Crosstown Connector (#90), Inskip Breda Road
(#24) and Central Avenue/Clinton Highway (#20).
These routes offer very good connectivity throughout
the Knoxville area, providing transport to many major
destinations without having to transfer buses.
Bicycling
There are no bike lanes within the Inskip study area, and
none are planned for this area at this time.
Greenways
There are no greenways within the Inskip study area. The
Knoxville-Knox County Park, Recreation and Greenways Plan
proposes greenway connectors along the following roads
(as shown in Map 4): Cedar Lane, Central Avenue Pike,
Inskip Drive, Inskip Road, Bruhin Road, and a series of
roads connecting Inskip Elementary with Inskip Pool and
Park. According to the Park Plan, greenway connectors
are “critical roadway connections that have been identified
to provide additional bicycle and pedestrian connections.
These connections should be programmed as street and
highway projects are funded or, where critically needed,
as separate projects.” These connections can be sidewalks,
side paths, bicycle lanes and/or wide outside travel lanes for
shared motor vehicle and bicycle use.
TABLE 4: TRAFFIC COUNTS
Average Daily Volume
Road
Between
17,714
Cedar Ln
Central Ave Pike and Rowan Road
13,077
Cedar Ln
Inskip Road and Rowan Road
10,134
Central Avenue Pike
Cedar Lane and E Inskip Drive
8,318
Central Avenue Pike
E Inskip Drive and Tillery Drive
5,262
W Inskip Drive
I-75 overpass and Central Ave Pike
7,051
E Inskip Drive
Central Ave Pike and High School Road
4,502
E Inskip Drive
Inskip Road/Bruhin Road and High School Road
5,639
Inskip Road
Cedar Lane and Highland Drive
6,119
Inskip Road
Highland Drive and E Inskip Drive
1,678
Rowan Road
Cedar Lane and E Inskip Drive
1,517
Coster Road
E Inskip Drive and Central Avenue Pike
4,305
Tillery Drive
I-75 overpass and Central Ave Pike
Worn walking path along Cedar Lane
Knoxville Regional Transportation Planning Organization, “Transportation Improvement Program FY 2006-2008”.
2
Inskip Small Area Plan, 2011 13
Inskip Plan Section
Transportation: Pedestrian Accommodations
The major transportation issue in the Inskip area is the
lack of pedestrian accommodations, other than the
already established issue of improvements to the Central
Avenue Pike/Cedar Lane intersection for motor vehicle
traffic. Map 3 shows that existing sidewalks are isolated to
the Inskip Elementary School area and along the
commercial properties on Cedar Lane. There are also no
bike lanes in this area. Sidewalks are particularly
important in two situations: (1) within the PRZ (where
school bus service is not provided), and (2) as a means to
connect homes to activity points such as parks and
commercial areas. See Appendix 2 for the approximate
costs associated with constructing sidewalks and
improving intersections as recommended in this plan.
Sidewalks
The highest priority sidewalks are those that connect
Inskip Elementary School with the Inskip Pool and Park
and the Inskip-Norwood Recreation Center and Inskip
Ballfields, as described below. In the long term, all roads
that are classified as a collector or arterial should have
sidewalks on at least one side of the road (which currently
include the following roads: Cedar Lane, Central Avenue
Pike, Inskip Drive, Inskip Road, Bruhin Road, Coster
Road and Rowan Road).
1. Inskip Drive—Sidewalks should be installed the
length of Inskip Drive and should be considered
a high priority. This road is the central east/west
thoroughfare in Inskip and carries pedestrian
traffic to the elementary school and commercial
establishments. The majority of the Inskip area is
within a PRZ for an elementary school, which means
there is not bus service provided for children to get
to school. Sidewalks may only be needed on one
side of the street in most areas. There are currently
short segments of sidewalk on the south side of
Inskip Drive, however, they may be non-compliant
with the Americans with Disabilities Act and might
need to be removed and rebuilt as part of any street
improvement plan.
Inskip Small Area Plan, 2011 Traffic Calming—Inskip Drive may be one road that
could benefit from traffic calming. Enforcement and
devices that slow vehicles down should be considered.
2. High School Road/Hayes Road/Broadview
Drive—These roads offer the safest and quickest
route from Inskip Elementary School to the Inskip
Pool and Park. Sidewalks are recommended on
one side of these streets. This recommendation
is made in consideration of narrow right-of-way
and construction cost. The section of sidewalk on
Broadview Drive, between Bruhin Road to Hayes
Road, is the highest priority.
3. Bruhin Road—A sidewalk should be installed on the
east side of Bruhin Road between Dutch Valley Drive
and the Inskip Pool and Park. This sidewalk would
allow pedestrians from the North Ridge Crossing
development on the south side of Interstate 640 to
walk more safely to the park.
4. Cedar Lane—Sidewalks are only installed in the
commercial section of Cedar Lane. There are distinct
walking paths worn into the grass in spots along
Cedar Lane, near Rowan Road, where there are
no sidewalks (see image to the right). This is an
indication that there is a need for sidewalks that is not
currently being met.
Walking along Inskip Drive
15
Map 4: Existing and Proposed Park, Greenways, and Sidewalk Systems
E
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To Adair
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INSKIP
BALLFIELDS
BL
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SC
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INSKIP
ELEMENTARY
Proposed
Extension of
Inskip Ballfields
R
E
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16
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Potential Park Locations
RD
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Greenways
S
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Potential
Greenway along
D
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Greenway along Railroad ROW
OD
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Proposed Sidewalks
Existing Sidewalks
WO
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Proposed Greenway Connector
R
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Recreation / Community Center
MA
N
W
DA
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SS
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Intersection Improvement Location
0
500
1,000
Scale in Feet
Inskip Small Area Plan, 2011
5. Central Avenue Pike—The section between Cedar
Lane and Inskip Drive has some sidewalks closer
to Cedar Lane; these should be extended to Inskip
Drive at least on one side of the street and should be
considered a priority.
Intersection Improvements
Along with the construction of new sidewalks, there is
a necessity for making intersections more pedestrian
friendly. Listed below are some important intersections in
relation to the sidewalks recommended for the area. See
Map 4 for the location of the intersections.
1. Inskip Drive/Central Avenue Pike intersection—
This intersection is the primary means for pedestrians
in the Inskip area to go to the Inskip-Norwood
Recreation Center and Inskip Ballfields. This
signalized intersection is large and has little definition
to the edges, which makes pedestrians less safe. There
are marked pedestrian crosswalks on the east and
south sides of the intersection, however, there are not
any pedestrian indications as part of the signalization.
The turning radius on the northwest corner appears
to be larger than needed, which makes crossing as a
pedestrian more hazardous.
In addition, with the commercial activity at this
intersection it could become an attractive place for
area residents to walk or bike to if accommodations
for these modes are created. This area could benefit
from a façade improvement program that will help
with the aesthetic appeal of the intersection, similar to
what has been achieved at the intersection of Central
Street and Broadway.
Intersection of Inskip Drive and Central Avenue Pike
Inskip Small Area Plan, 2011 2. Broadview Drive/Bruhin Road intersection—
There needs to be an appropriate crossing treatment,
connecting the proposed sidewalk system from the
elementary school to the Inskip Pool and Park. This
location has limited sight distance, so additional study
needs to be completed to determine if this crossing is
a safe and appropriate location.
3. Dutch Valley Drive/Central Avenue Pike/Bruhin
Road intersection—This signalized intersection
is very wide because of the angle of the streets, slip
turn lanes and large turning radii that are designed
to accommodate large commercial vehicles. The
intersection has no marked pedestrian crosswalks or
indications. Pedestrians coming from the south side
of I-640 must pass through this intersection if they
are going to the Inskip Pool and Park.
Greenways
The Knoxville-Knox County Parks, Recreation and
Greenways Plan recommends greenway connectors in the
Inskip area, as shown in Map 4 and outlined on page 13.
These greenway connectors could be sidewalks, side paths,
bike lanes or wide outside lanes designed to accommodate
both motor vehicles and bicycles.
The North City Sector Plan does recommend a “Rails with
Trails” greenway along the railroad right-of-way that runs
parallel to Coster Road and Rowan Road. This greenway
could connect Inskip with the proposed Knob Fork
Greenway, which connects to the Sterchi Greenway, Sterchi
Hills Park and the Sterchi Soccer Complex. The railroad
right-of-way is narrow, which may make such a greenway
difficult to construct in a safe manner. An alternative
location is the I-640 and Interstate 275 right-of-ways.
Recently, the edges of interstate right-of-ways have been
explored as a potential location for greenways. There is
one current greenway under construction in the Interstate
40 right-of-way at the Papermill exit, called the Papermill
Bluff Greenway. This approach could be an alternative
way of connecting the Inskip Pool and Park with the
Inskip-Norwood Recreation Center and Inskip Ballfields.
The greenway could have connection points at the Dutch
Valley/Bruhin Road intersection and the Inskip Drive
bridge that spans Interstate 75. This possible greenway is
shown on Map 4.
17
Zoning and Land Use Recommendations
Shasta Drive
In the latest North City Sector Plan (2007), there is a
recommendation to create a zoning district that allows
both office and low density residential uses for the south
side of Shasta Drive. In the sector plan, the Land Use Plan
designates the north and south sides of Shasta Drive as
mixed use districts. In the One Year Plan and sector plans,
mixed use districts are used when an area has multiple
land use classifications that may be appropriate.
The mixed use district on the north side of Shasta Drive
recommends neighborhood commercial and office uses
with access only from Cedar Lane (no access to Shasta
Drive). There was a landscaping buffer plan created
shortly after the adoption of the North City Sector Plan
(2007) for the north side of Shasta Drive, which is shown
in Appendix 3. This can be used as a template for creating
a buffer between the higher intensity commercial uses
which front Cedar Lane with the residential, and potential
office, uses on the south side of Shasta Drive.
The mixed use district on the south side recommends
low and medium density residential uses and a new
residential/office zoning district. This mixed use district
is intended to create a buffer between the commercial/
office uses on the north side of Shasta Drive and the
low density residential uses on Naueda Lane/Drive. The
design of new office buildings on the south side of Shasta
Drive are intended to be complementary to the residential
structures by having a similar scale and design as the
existing residential structures in the area.
There are two options to accomplish this recommended
action:
1. Create a form code district that is specific to the
vision for Shasta Drive; or
2. Create an overlay district with design guidelines
that is specific to the vision for Shasta Drive.
• Either option above should include the following
design principles:
oNew structures should have a similar design and
scaling as existing residential structures on Shasta
Drive and Naueda Lane/Drive.
oSigns should be of a modest scale so as not to
detract from residential uses.
oLighting should not shine on adjacent residential properties.
oA reduced parking standard for office uses should
be considered, such as the parking standards
adopted for the Technology Overlay District
shown in Figure 1.
Figure 1: An Example of New Parking Standards (using the Technology Overlay District parking requirements)
18
Inskip Small Area Plan, 2011
Inskip Drive
Inskip Drive is in the heart of the Inskip area and
requires special attention. There are various land uses that
line Inskip Drive, but they follow patterns that can be
distinguished within groups. These groups have their own
character and can be limited to certain zoning districts
which maintain this character. In addition, an overlay
district could be created that has design guidelines that
require new buildings to be designed to conform with the
neighborhood context. Below are details on how this can
be implemented:
1. Neighborhood Mixed Use Districts—In the One Year
Plan and sector plans, mixed use districts are used
when an area has multiple land use classifications
that may be appropriate. For example, in many
cases where multifamily residential structures are
appropriate, office uses are also appropriate because
they have similar impacts on surrounding established
development. To control what type of development is
allowed in an area, mixed use districts specify which
zoning districts are compatible for the area, which are
then the only zones that can be requested during a
rezoning without a One Year Plan and/or sector plan
amendment. The three mixed use districts, described
below, are shown on Map 5. See Appendix 1 for more
information on these mixed use districts.
a. MU-NC11—This area consists mainly of low
density residential uses, but also has medium
density residential and office uses; limiting
development to these uses is appropriate. The
recommended zoning classifications are R-1,
R-1A, RP-1, and a new residential-office, form
based or overlay zone
b. MU-NC12—This area consists of mainly of
medium density residential uses, but also has low
density residential uses; limiting development to
these uses is appropriate. The recommended
zoning classifications are R-1, R-1A and RP-1
c. MU-NC13—This area consists of industrial,
commercial, and office and low density residential
uses; limiting development to these uses is
appropriate. The recommended zoning
classifications are O-1, C-1 and I-2
Inskip Small Area Plan, 2011 2. Overlay District—Overlay zoning districts do
not restrict the use of a property, but rather how
structures and other site improvements are developed
based on the established design guidelines. The
guidelines for Inskip Drive could incorporate
elements as follows:
a. Residential—New structures should have a
similar orientation to the primary street and design
characteristics and scaling complementary to
existing housing structures in the area.
b. Office—Non-residential uses should have a similar
design style and scale as the residential uses in the
district, and require screening for parking and
other utilitarian needs.
c. Commercial—Commercial structures should have
a scale that is in keeping with neighborhood serving purposes.
d. Industrial—Portions of industrial/warehouse
buildings that are visible from a street should have
design characteristics and scale that are similar to
other structures within the area.
e. Other considerations
i. Signs—Signs should be of a modest scale so as
not to detract from residential uses.
ii. Lighting—Lighting should not shine on adjacent residential properties.
iii. Parking—Because of the small lot size of
potential commercial and office properties
in this area, an urban parking standard should
be considered. An example urban parking
standard, adopted for the Technology Overlay
District, as shown in Figure 1.
19
Map 5:5:Sector
PlanPlan
Amendments
Map
Sector
Amendments
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Scale in Feet
Inskip Small Area Plan, 2011
highlighted with a dark outline are the parcels that do not
match. The One Year Plan is correct and the sector plan
needs to be updated to reflect the proposed uses as shown
in the One Year Plan. These changes will be corrected as
part of the approval of the Inskip Small Area Plan and are
shown in the Map 5 and described in Appendix 1.
Sector Plan Update
In the last update of the North City Sector Plan in June
2007, there was an oversight in properly classifying
the southwest corner of the Inskip area. In general, the
use classifications in the sector plans and the One Year
Plan should match. As shown in Figure 2, the parcels
Figure 2: Parcels To Be Modified In Sector Plan
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Neighborhood Conservation
The majority of residential properties in Inskip are zoned
R-2 (General Residential), which is a medium density
residential zoning district (see Map 2). However, the
residential land use classification for the majority of Inskip
by acreage is single family residential as shown in Table
1 and Map 1. Decades ago, R-2 zoning was placed over
the Inskip area with little regard for the existing built
environment. This is not atypical for the older residential
neighborhoods in the city; however, most of the other
neighborhoods have already been rezoned to a low density
residential zoning district (such as Fourth & Gill and Old
North Knoxville) or have an overlay which helps protect
the character of the neighborhoods (such as Fort Sanders,
Lonsdale and Oakwood/Lincoln Park).
The R-2 zoning district allows for dense residential
development anywhere as long as there is sufficient
Picture location: Inskip area at the intersection of Willoway Drive and Henrietta Drive.
Inskip Small Area Plan, 2011 21
Map 6: Single-Family Residential Parcels with R-2 Zoning
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0
500
1,000
A-1
Scale in Feet
Inskip Small Area Plan, 2011
acreage, and this is allowed with no public review. This
does not foster neighborhood stability and can have a
negative impact on property values. On Map 6, the
properties highlighted with a black outline are properties
that are zoned R-2 but have an existing land use that is
Single Family Residential. In these cases, the zoning and
the land use are not consistent and need to be aligned.
It is recommended that the areas highlighted in Map 7
be considered for a general rezoning to one of the zoning
classifications listed below. There is a brief description
of the effect each zone will have for development
opportunities in comparison to the existing R-2 zoning:
1. R-1A (Low Density Residential)—This zone allows
the same building types as the R-2 zoning district,
but at a lower density. This zone does allow multidwelling structures, but only on use-on-review (public
review) and only when the development has access to
a collector or arterial street; in Inskip these roads are
Cedar Lane, Inskip Road and Drive, Bruhin Road,
Central Avenue Pike, Coster Road and Rowan Road.
Duplexes are a permitted use in this zone and can be
built on any lot larger than 10,000 square feet. In
general, this zone moves dense residential development
to the edges of a neighborhood where there is less
impact on the stability of the neighborhood as a whole.
2. R-1 (Low Density Residential)—This zone is intended
mainly for detached single family houses. Multi-
dwelling residential is not allowed anywhere and
duplexes are only allowed by use-on-review (public
review) and the lot must be 15,000 square feet.
Community Facilities
There is little vacant property within the defined boundary
of the Inskip Small Area Plan that is suitable for a
neighborhood park as recommended in the Knoxville-Knox
County Park, Recreation and Greenways Plan. Only one
property is good for a neighborhood park; however, it sits
just outside the Inskip boundary. The property is labeled
on Map 4 as “Proposed Extension of Inskip Ballfields”
and is adjacent to the Inskip-Norwood Recreation Center
and Inskip Ballfields. This property is approximately seven
acres and is predominately within a floodplain and has
trees covering a high proportion of the site, as shown in
Figure 3. Being that the existing adjacent park is used for
active recreational uses, the addition to the park could be
primarily used for such activities as nature observation and
walking paths.
Another opportunity to expand recreation would be
to create a walking loop around the soccer field and
playground at Inskip Elementary School. Such a walking
loop has implications for physical fitness, not only
for school children but also neighborhood residents.
Coordination will be necessary among Knox County,
Knox County Schools and the City of Knoxville in
realizing this improvement.
Figure 3: Potential Park Location
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100 YEAR
FLOODPLAIN
FLOODWAY
POTENTIAL
EXPANSION
OF INSKIP
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POTENTIAL
EXPANSION
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BALLFIELDS
INSKIP BALLFIELDS
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Inskip Small Area Plan, 2011
Action Plan
Following are steps that need to be taken in order to
realize the different elements of this plan:
Sidewalks/Greenway Connectors
The construction of sidewalks will require that segments
of sidewalk be put on the project list that is coordinated
by the City of Knoxville Civil Engineering Division.
The list of sidewalk projects to be performed each year is
determined through the process of:
• Recommendations from other city departments, City
Council, or the mayor.
• Number and types of complaints/requests that are
received from the general public or neighborhood
groups.
• Importance to transportation master planning or
drainage master planning.
• Amount of use by the residents of Knoxville (traffic
counts, recreational impacts).
Funding for sidewalk projects is regularly tight, so any
outside funding sources that can be dedicated for projects
in Inskip would help. Such a funding source could be
the Safe Routes to School Program, which is federally
funded and administered by the Tennessee Department of
Transportation (TDOT). Other federal funding sources
available for pedestrian and bicycle improvements include
Transportation Enhancements (funding is administered
by TDOT) and Surface Transportation Program
funds (administered locally by the Knoxville Regional
Transportation Planning Organization).
Foremost priorities for sidewalk improvements are:
1. A connection on Inskip Road, linking Inskip
Elementary School with the Inskip-Norwood
Recreation Center.
2. A connection from North Ridge Crossing
development (formally Christenberry Heights) to
Inskip Pool and Park along Bruhin Road.
3. A connection from Inskip Elementary School to the
Inskip Pool and Park.
Inskip Small Area Plan, 2011 Intersection Improvements
Intersection improvements are coordinated by the
City of Knoxville Civil Engineering Division. These
improvements should be considered as the sidewalk
recommendations are implemented to create a complete
pedestrian network. The intersection improvement
projects to be performed each year are determined by:
• Recommendations from other city departments, City
Council, or the mayor.
• Number and types of complaints/requests that are
received from the general public or neighborhood
groups.
• Importance to transportation master planning.
• Amount of use by the residents of Knoxville.
Shasta Drive
City Council would need to initiate the creation of a
form code district or overlay district. The Metropolitan
Planning Commission will write the new code. There
will be additional public meetings with property owners
to help develop the new zoning district and/or design
guidelines. The design principles, outlined on page 18,
should be basic considerations in developing a set of
overlay zone guidelines. All properties owners will be
notified before a change of zoning on their property.
Inskip Drive
This plan recommends two things for this area: to create
mixed use districts and potentially create an overlay zone.
The mixed-use districts are identified in this plan and will
be an amendment to the North City Sector Plan with the
adoption of this plan. In turn, the One Year Plan will also
need to be amended and this will happen at the next One
Year Plan update.
The creation of the overlay zone will need to be initiated
by City Council and created by the Metropolitan
Planning Commission. The design principles, outlined
on page 19, should be basic considerations in developing
25
a set of overlay zone guidelines. There will need to be
additional public meetings to gather input, and all
property owners will need to be notified before there is a
change of zoning on their property.
Neighborhood Conservation
Rezoning an area that includes a large number of property
owners requires a lot of time to make sure everyone that
is affected has an opportunity to understand the proposal
and have input. The recommendation of the plan is to
rezone the majority of the single family detached houses
from the General Residential (R-2) zoning district to a
low density residential zone such as R-1A or R-1. The
initiation of this rezoning can be by the City Council,
Metropolitan Planning Commission or by a group of
property owners. The initial considerations for rezoning
should be those areas proposed for the R-1 zoning district
on Map 7.
Community Facilities
The plan recommends the addition of park land adjacent
to the existing Inskip-Norwood Recreation Facility
and Inskip Ballfields. The City of Knoxville Park and
Recreations Department, or other parks organization
like the Legacy Parks Foundation, should consider the
acquisition of this property. Outside funding sources,
such as the Land and Water Conservation Fund, should
be sought.
The adoption of this plan will amend the Knoxville-Knox
County Park, Recreation and Greenways Plan to reflect the
recommendations of this plan.
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Inskip Small Area Plan, 2011
Appendix 1: Land Use Classifications
This table will be added to the North City Sector Plan “Mixed Use Special Districts” table with the adoption of the
Inskip Small Area Plan.
Mixed Use Special District (Sector designation, MU, and reference number): Areas designated to address urban
design, pedestrian and transit-oriented development and vertical mixed use in specific circumstances. In this plan,
these areas are designated as Mixed Use-North City# (MU-NC#).
MU-NC11: Low Density Residential, Medium Density Residential and/or Residential-Office
Location: Inskip Drive, east of Central Avenue Pike and west of Scheel Road on the north side of Inskip Drive and
west of Fennel Road on the south side of Inskip Drive.
This area consists mainly of low density residential uses, but also has medium density residential and office uses;
limiting development to these uses is appropriate. New office uses should have a complementary design to the
residential uses on the street.
Recommended Zoning:
Low Density Residential (R-1, R-1A), Planned Residential
(RP-1, at up to 12 dwelling units per acre) and a new
residential-office, form based or overlay zone
MU-NC12: Low Density Residential and Medium Density Residential
Location: Inskip Drive, east of west of Bruhin Road and east of Scheel Road on the north side of Inskip Drive and
east of High School Road south of Inskip Drive.
Recommended Zoning:
Low Density Residential (R-1, R-1A) and Planned
Residential (RP-1, at up to 12 dwelling units per acre)
This area consists mainly of medium density residential uses, but also has low density residential uses; limiting
development to these uses is appropriate. This area should remain a residentially zoned area.
MU-NC13: Office, Neighborhood Commercial, Warehousing and Light Industrial
Location: South side of Inskip Drive, east of Fennel Road and west of High School Road.
This area is the commercial/industrial hub along Inskip Drive. The commercial, warehousing and light industrial
uses should not be allowed to expand into the adjacent mixed-use districts; limiting development to these uses is
appropriate.
Recommended Zoning:
Office (O-1), Neighborhood Commercial (C-1) and Light
Industrial (I-2)
MU-NC14: Medium Density Residential, Office and General Commercial
Location: West side of Central Avenue Pike, south of Inskip Drive and west of the railroad tracks at Coster Road.
This is a thin, long area between I-75/I-640 and Central Avenue Pike, predominantly consisting of small commercial
and office uses. Properties here are clearly visible and have good access from the interstate, which is ideal for office
or small commercial uses.
Recommended Zoning:
Planned Residential (RP-1, up to 12 dwelling units per
acre), Office (O-1), General Commercial (C-1, C-3, C-6)
MU-NC15: Low Density Residential, Medium Density Residential, Office and Open Space
Location: East side of Central Avenue Pike, south of Dalton Place Way and west of the railroad tracks at Coster Road.
This is a transitional area between Central Avenue Pike and the railroad line. There are numerous single family
houses in the area so commercial uses are not recommended; limiting development to these uses is appropriate.
Inskip Small Area Plan, 2011 Recommended Zoning:
Low Density Residential (R-1A), Planned Residential (RP1, up to 12 dwelling units per acre), Office (O-1), Open
Space (OS-1) or other Open Space district
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Appendix 2: Approximate Construction Cost Of
Pedestrian Improvements
The following costs are not comprehensive and are based on current cost of construction according to the City of Knoxville
Department of Engineering.
Sidewalk recommendations from Inskip Small Area Plan
• Sidewalk construction costs approximately $350 a linear foot with a sidewalk width of 6 ½ feet. This cost would
typically include the installation of curb and gutter, and drainage.
oInskip Drive: 6,100 linear feet at $350 per linear foot = $2,135,000
oHigh School Road/Hayes Road/Broadview Drive: 1,050 linear feet at $350 per linear foot = $367,500
oBruhin Road (Dutch Valley Drive to Heins Court): 1,250 linear feet at $350 per linear foot = $437,500
• Another option would be to only install a sidewalk from Dutch Valley Drive to the south end of the Inskip Pool and Park. A walking path would also need to be created to make the connection to Heins Court: 625 linear feet at $350 per linear foot = $218,750 (This cost is for the sidewalk on Bruhin Road only).
oCedar Lane (south side, 750 feet west of railroad to Rowan Road): 1,100 linear feet at $350 per linear foot =
$385,000
oCentral Avenue Pike (Cedar to Inskip): 1,450 linear feet at $350 per linear foot = $507,500
oTotal approximate cost of the sidewalks outlined (with curb and gutter) = $3,832,500
• Other options for sidewalks should be considered to reduce the overall cost of the project. One such option would be
leaving the existing stormwater swales at the edge of the road and placing the sidewalks closer to the outside edge of
the right-of-way. There may not be enough right-of-way in all locations to do this which would require the purchase
of additional right-of-way or easements across private property. The approximate cost of sidewalks can range from
$25-50 per linear foot without curb and gutter, which does not include the price of grading or property acquisition.
These costs are based on observations from other localities.
Intersection improvement recommendations for pedestrians from Inskip Small Area
Plan
• Intersection Improvements
oInskip Drive at Central Avenue Pike – approximately $150,000 to add pedestrian indications to the traffic
signals
oBroadview Drive at Bruhin Road – need to determine appropriate pedestrian treatment because there is limited
sight distance at the crest of the hill
oDutch Valley Drive/Central Avenue Pike at Bruhin Road – approximately $175,000 to add pedestrian
indications to the traffic signals
Note:
1. All intersection improvement costs are for adding pedestrian indications to the existing traffic signals only; the costs of
striping, sidewalks, landings, curb cuts, etc. are not included in the above costs.
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Inskip Small Area Plan, 2011
Appendix 3: Shasta Drive Buffer Planting Plan
Inskip Small Area Plan, 2011 29
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Inskip Small Area Plan, 2011