Downtown Nashville 2nd Ave: Post-Explosion Community Feedback

2nd Avenue Listening Sessions Findings Summary

By Gretchen Trast, Research Fellow

Introduction This report discusses the research findings from the 2nd Avenue listening sessions organized by the Civic Design Center and Metro Nashville Planning Department. The listening sessions happened on February 10 and 17, 2021 via Zoom. The data results from 12 small breakout conversations where each lasted for about one hour. The breakout sessions were facilitated by Metro Planning staff while Civic Design Center staff took notes and recorded the discussions. Breakout rooms included between 5 to 10 participants. Over the two sessions, there were a total of 191 attendees and 12 hours of conversation.

Participants Out of 191 attendees, participants had a multitude of identities and professional positions which made for well-rounded discussions. Because of this diversity, there were only a few meaningful demographic groupings that formed: people who do not live on 2nd avenue, housed residents of 2nd avenue, people who work on 2nd avenue but do not live there, and business or building owners. The first three categories are mutually exclusive; however, ownership was not an exclusive identification. Just over half (51%) of participants were non-residents and over a third (37%) were residents of 2nd Avenue.

Twelve percent of participants identified as non-residents that worked on 2nd Avenue.

There were only 4 business or building owners who contributed during the listening sessions. Two identified themselves as owners and residents and the other two identified as non-residents. See the following chart to see the breakdown of participants by identity category. Demographic information was only collected for those that introduced themselves. There were no participants that identified as an unhoused resident or building owner in this sample.

Method of Analysis The recordings were transcribed and then coded and analyzed for relevant and emerging themes. Then, they were grouped into the six main themes of Healthy Communities, as asserted by the 2016 publication Shaping the Healthy Community: The Nashville Plan by Gary Gaston, Christine Kreyling, Ron Yearwood, Eric Hoke, and Joe Mayes.

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About two-thirds of participants chose to be listeners to conversations; however, 65 people introduced themselves in the breakout rooms and contributed extensively to the conversation. Each of the six themes had a percent coverage of the data, a representation of the total amount of time dedicated talking about that theme compared to other categories.

A pie chart, grouped by Shaping Healthy Community themes, depicts how participants devoted discussion time. 33% of time was spent considering Neighborhood Design and Development, 13% for Transportation, 6% for Food Resources, 31% for Walkability and Pedestrian Safety, 3% for Housing, and 14% Open Space and Parks

Each of these six themes were broken up into a total of 27 topics. See Appendix 1 for definitions regarding how topics were measured. The topics with the highest mentions respectively were built environment identity, street engagement, quality of walkability, riverfront, and parking. Built environment identity is included in the theme of Neighborhood Design & Development. Street engagement and quality of walkability are included in the theme of Walkability & Pedestrian Safety. Last, riverfront falls within Open Space & Parks and parking within Transportation.

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A bar graph of the most discussed topics measured by number of times participants mentioned the topic including built environment identity (n=110), street engagement (n=91), quality of walkability (n=66), riverfront (n=64), parking (n=54).

Generally, participants discussed opportunities for placemaking by using other downtown areas as reference points. Most often, participants compared two concepts that are perceived as opposites and use those concepts as anchors to address a middle ground. Many people often pointed out the two opposite examples to consider where their opinion fell in the middle or as a “compromise” idea. These spectrums are discussed throughout the following six thematic sections.

Neighborhood Design & Development: HIGH PRIORITY Neighborhood Design & Development was the most discussed theme where it covered 33 percent of breakout conversations. This theme also had the most discussed topic, built environment identity. Overall, this theme condensed participant’s considerations of the street’s style and broader purpose.

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A bar graph of topics discussed related to Neighborhood Design and Development measured by number of mentions. Architectural style (n=34), land use (n=16), built environment identity (n=110), trash (n=22), time of day (n=26), and historic preservation (n=35)

Built Environment Identity, Architectural Style, and Time of Day Built Environment Identity was most frequently discussed across listening sessions and was the only topic to be correlated with each of the six themes. As a topic, it considered discussion around the identity of the environment as it related to the overall aesthetics and identities considered in the environment. Two sets of reference points were constructed for most conversations: Broadway vs. 2nd Ave and Tourists vs. Locals.

These extremes were used as reference points. Generally, participants fell somewhere in the middle. One extreme that was consistent was the preservation of 2nd Avenue’s historic architectural style, something that is much different from Broadway. The facades, doorways, and windows were mentioned as elements that were in high demand for being built back in the preceding historical style. Another extreme that people leaned towards was making 2nd Avenue a place for the locals. Tourists were seen as having ownership over Lower Broadway and locals can have more space on 2nd Avenue. While no one was advocating for no tourists, there was a consistent consideration of making 2nd Avenue a place for everybody including residents, locals, tourists, families, and downtown workers.

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Most participants considered themselves somewhere in the middle where they offered ideas for compromise and alternatives for the built environment’s identity. The following are two consistent considerations for meeting in the middle.

1. 2nd Avenue can focus on pulling traffic from Broadway and engage tourists all the way up to the public square while also providing amenities for locals.

2. 2nd Avenue can be a place to engage people at all times of day that prioritizes locals to bring more balance and space downtown for a wider variety of people.

Historic Preservation and Land Use Priorities that were mentioned for historical preservation were building height restrictions and traditional facades, or rather, “not another glass building” as described by some participants. A major long-term wish for 2nd Avenue is to fill in the “missing teeth” and have a continuous block which would remove surface level parking. Overall, participants appreciated the mixed land use where commercial and residential uses contributed to the uniqueness of the space and the overall identity. Overall, people were much more willing to change up the streetscape aesthetics than the building aesthetics.

1. Devote majority time and energy preserving the facades of buildings to contribute to the street’s design and feel 2. Leverage the streetscape to promote the historical preservation and assert the environment’s identity moving forward Our mission is to advocate for civic design visions and actionable change in communities to improve quality of life for all.

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Participant’s focus on building aesthetics or streetscape also depended on what they considered what was the most feasible and least costly. That is, those that were less cost conscious considered building aesthetics more while those that considered cost as a major factor were focused on the streetscape.

Trash Trash was discussed as a consideration for Neighborhood Design & Development as well as Transportation. Some participants viewed trash as a major ongoing issue for 2nd Avenue in the areas of storing trash before pick-up, getting trash out of buildings, and cleanliness of the street. First, business owners and residents discussed how they wanted to reimagine how trash is stored before pick-up because shoving it into the alleyways then in turn doesn’t allow for alleyway engagement. Additionally, on-street designation for loading zones are needed for more efficient trash removal. Last, with the desire for more pedestrian traffic, methods for keeping the streetscape clean will have to be considered.

Walkability & Pedestrian Safety REDEVELOP The pedestrian experience covered 31 percent of the discussions. Topics include trees, quality of walkability, street engagement, and security and safety.

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A bar graph of topics discussed related to Walkability and Pedestrian Safety measured by number of mentions. Trees (n=34), quality of walkability (n=91), street engagement (n=66), and security/safety (n=43)

Street Engagement Street engagement was mostly considered during conversations of landmarks that were helpful or a hindrance to full engagement. The most considered landmark on 2nd avenue by participants was the AT&T building. Most participants came to a consensus that it an eyesore and contributor to breaking up 2nd Avenue’s flow; however, others were more considerate of it being a security threat, citing why these visioning sessions are happening in the first place. There was a lot of division among participants regarding how much time and energy should be devoted to engaging AT&T stakeholders.

Therefore, participants considered static engagement such as murals or other forms of public art whereas others considered forms of active engagement, where pop-up shops or other forms of engagement were available in front of the building.

1. Active Engagement Around the building: engaging streetscape leading people up 2nd avenue and potential pop-up shops or programming Our mission is to advocate for civic design visions and actionable change in communities to improve quality of life for all.

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2. Static Engagement On the building: public art acts as camouflage, hidden in plain sight to attract attention to the art and detract attention away from AT&T

Quality of Walkability and Security & Safety The quality of walkability includes the physical environment as well as the walking experience. Many frequent users of 2nd Avenue had strong opinions about the walking safety regarding sidewalk material. The bricks that are currently in place can become slick when wet and there are a few missing. Some suggested replacing the brick entirely with another material that compliments the historical style. Others suggested enhancing the walkability experience by permanently expanding the sidewalks. Walkability quality maintained a close relationship with dining style, architectural style, and built environment identity.

A sense of physical security was also discussed in relation to the quality of walkability.

Security was most frequently discussed in relation to tourists and unhoused residents.

Proposed mechanisms to enhance safety followed strategies of prevention more commonly than intervention. Enhanced lighting was by far the most mentioned prevention measure to make 2nd avenue safer and more welcoming. Prevention as a mechanism seeks to make the area welcoming for all people, yet not to displace people.

A small minority of participants had advocated for more intervention including presence from law enforcement or private security personnel. See the following scale for walkability enhancements.

1. Add police presence and use signage for pedestrians to walk cautiously on bricks 2. Replace sidewalks bricks, widen sidewalks, and add more lighting

Trees While trees are important to neighborhood design, participants discussed trees most often in relationship to the pedestrian experience because of their utility which is why trees are located within this theme. Participants discussed how trees provide shade for walkers and potential sidewalk dining as well as hold lighting. The amount of people that Our mission is to advocate for civic design visions and actionable change in communities to improve quality of life for all.

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advocated for less trees, more trees, or the same amount were split evenly. Those that wanted less trees discussed how they attract birds and critters and hide the architectural style of buildings. Proponents for more trees suggested finding the right type of trees to support all needs. Commonly discussed compromises included the following.

1. Find ways to integrate more greenery to decrease the temperature in the area and provide shade, which is especially important for daytime engagement 2. Prioritize architectural style over greenery so find small trees that do not cover building facades.

Open Space & Parks NECESSARY INVESTMENT This theme extended itself beyond 2nd Avenue to consider space around it that has the potential to affect Downtown’s overall engagement. Alleyways, connectivity, and the riverfront covered 14 percent of conversations.

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A bar graph of topics discussed related to Open Space and Parks measured by number of mentions. Alley (n=13), 1st+2nd Connectivity (n=28), and riverfront (n=64)

Riverfront Engagement Opportunities for riverfront engagement were the most diverse for all topics considered.

Overall, people were consistently divided between whether or not riverfront engagement is a concern for 2nd avenue or an entirely separate conversation.

First, those that considered the riverfront to be a concern for 2nd avenue identified outdoor dining and family friendly programming as year-round options for enhanced engagement. A few participants cited engagement strategies that Knoxville, Memphis, and Chattanooga have used to enhance their riverfront engagement as precedents to consider. Additionally, many thought the historic legacy of 1st avenue’s utility as importing goods from the river to sell them on 2nd avenue is history to uplift. However, there were many mixed reviews of Fort Nashboro’s ability to contribute positively to the space because it can be a gathering place and subsequent security issue for the area.

Second, those that decided that the riverfront is its own conversation mentioned that there were a different set of stakeholders for the riverfront and it requires more funds than the city has. For this smaller group of participants, 2nd avenue in comparison was identified as more pressing.

Connectivity between 1st and 2nd Avenues Porosity and permeation were two themes that dominated the conversation regarding connectivity between 1st and 2nd Avenue. Porosity considered holes between 1st and 2nd where people could physically move between them. One of the only locations to do this mid-block is through Butler’s Run, which to some extent is hidden to many people. More physical spaces between the streets could provide additional storefront space and help engage both sides. Permeation was considered as the cohesiveness between activity happening on 1st and 2nd Avenues. Some participants mentioned that permeation would require a more functioning 1st Avenue and the riverfront; however, porosity can be the first step in achieving this.

Alleyways Existing alleyways were considered both for their functionality and opportunities of enhancement. Overall, alleyways were identified as existing opportunities for engagement and activity enhancement across the downtown area. While they were Our mission is to advocate for civic design visions and actionable change in communities to improve quality of life for all.

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identified as opportunities, few people provided concrete strategies for engagement.

Like conversations regarding the riverfront, some participants considered the alleyway system as an ongoing conversation amongst more pressing needs.

Transportation ASSESS IMPACT Transportation-related topics covered 13 percent of conversations. An emergent category of on-street designations provided the most diversity of answers while opinions of parking were consistent among participants.

A bar graph of topics discussed related to Transportation measured by number of mentions. Public transit (n=1), micromobility uses (n=8), on-street designations (n=28), pedestrian transport storage (n=3), and parking (n=54)

Parking and Pedestrian Transport Storage Parking was the 5th most frequently discussed topic and was discussed in relationship with on-street designations and pedestrian transport storage. Most participants that discussed parking talked about it in terms of no additional parking and removing street parking. In contrast, some participants advocated leaving parking as is; however, no one advocated for more parking. The main group that discussed keeping parking was Our mission is to advocate for civic design visions and actionable change in communities to improve quality of life for all.

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short-term rental owners because street parking allowed for loading and unloading.

Participants asked for overall better and more intentional curb management. On-street designations that are required are loading zones which benefit for short term rentals, restaurants business operations, ride service, delivery, and trash pick-up. Participants against removing on-street parking also mentioned that it provides a physical and psychological barrier for pedestrians. If on-street parking were removed, adding a barrier to affect traffic is necessary, like parklets or a bike lane.

1. Maintain current parking on street and surface level lots, but have better curb management and breakup surface spaces with trees or art 2. Remove street parking to allocate more space for enhancing the pedestrian experience and add more parking for micromobility uses (bikes and scooters)

On-Street Designations, Transit, and Micromobility Conversations around transit predominantly centered around what type of traffic participants imagined on 2nd Avenue to best take advantage of what the street has to offer. Transportation allowed on the street ranged from all forms of traffic, including 2-way traffic, to having a pedestrian only street. There was no clear indication of what people most strongly preferred; however, most participants agreed that transportation was a major factor in the overall identity of the street. Participants that wanted to continue one-way or two-way traffic justified that it would enhance permeation and slow traffic down on the street without shutting it off to private autos altogether.

Alternatively, those that wanted to prioritize pedestrians and alternatives to private autos discussed programming the street or making it a pedestrian only street. Alternative uses included flex lanes, where lanes would change depending on the time of day and pop-up programming, where the street would shut down more frequently to promote pedestrian engagement, or modified use for only pedestrian transport, such as bikes and scooters, and public transportation. This was promoted as a compromise. A permanent pedestrian only street would be where 2nd avenue, or parts of it, would be transitioned to a pedestrian plaza. Supporters of this emphasized a plaza as an opportunity for local business owners and enhanced pedestrian experience.

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Overall, micromobility was only mentioned a few times. This may be due to the designated bike corridor being on 3rd avenue. The few people that mentioned scooters wanted less of them since they are an eyesore and safety hazard to non-riders and riders alike.

1. Making all forms of traffic work together a little bit better to include bikes, pedestrians, and private autos. This could be through a programmed street, such as flex lanes, or permanent designations 2. Develop parking lane into wider sidewalks to enhance pedestrian experience such as sidewalk cafés and programming opportunities like street festivals, parades, and pop-up shops.

Overall, current transportation designations are seen as an inhibitor or enabler for walkability and pedestrian experience. It was seen by many participants as one of the many root causes for obstacles in engagement.

Food Resources STRENGTHEN EXISTING ESTABLISHMENTS In Shaping Healthy Communities, access to healthy and affordable food is incredibly important. Since 2nd Avenue is not a traditional residential neighborhood, food was considered as a broader theme. Overall, food covered 6 percent of the conversation and topic highlights include food as a place descriptor, restaurant ownership type, dining style, food affordability, and proximity to grocery.

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A bar graph of topics discussed related to Food Resources measured by number of mentions. Restaurant ownership type (n=2), proximity to grocery (n=1), food affordability (n=2), dining style (n=19), and food as a place descriptor (n=27)

Food as a Place Descriptor and Restaurant Ownership Type Most prominently, food was used to discuss attachment to place. In many introductions, participants' first memories of 2nd Avenue, as Nashville natives and non-natives, was the food they ate there and the company they shared the food with. Further, nearly all mentions of restaurants were those that were locally-owned. Some of those restaurants have been long gone, but many remained up until the pandemic or the bombing. While many wanted these establishments to come back, they understood that the characteristics of these establishments are what could be more productive to fixate on.

For example, some of the only family friendly options on 2nd Avenue were restaurant destinations for special events such as birthdays and reunions which strongly impacted 2nd Avenue’s identity as being a place for all ages and during all times of the day. Overall, food was not only used to describe the environment, but it was also a draw for being on 2nd Avenue in the first place.

Dining Style Dining style conversations prioritized diversity in meal times and outdoor dining. Many participants, particularly those who work downtown, advocated for more lunchtime options. This was supported by 2nd Avenue inviting all hours of engagement as well.

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Collectively, there was a strong preference for sidewalk dining on 2nd Avenue to enhance the pedestrian experience and engagement with local businesses. The logistics of sidewalk cafes were discussed in relationship with on-street designations, quality of walkability, and parking. Implementation ideas ranged from parklets to widening sidewalks to having a completely pedestrian dominated street to which the effect of sidewalk cafes would be inherently different for each one. One concerning variable for the opportunity of sidewalk cafes were the conditions of the trees and birds it would attract. 1st Avenue was also considered as an ideal area for sidewalk cafés in relation to river engagement.

Food Affordability and Proximity to Grocery Conversation around food affordability was mostly centered around having a diversity of options throughout the day. The cost of food was often implied through the time of day.

For example, lunchtime options would be more affordable than dinner options. Overall, affordability was compared to current options and defined as “less expensive” rather than something more specific. Second, no one mentioned grocery options. It is unclear why proximity to grocery stores was not discussed because it is not needed or was deprioritized as other things were more pressing.

Housing LOW PRIORITY Of all themes, housing was mentioned the least with only making up 3 percent of all discussion. The categories that arose within this theme were housing type, unhoused residents, and affordability.

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A bar graph of topics discussed related to Housing measured by number of mentions. Housing affordability (n=0), unhoused residents (n=3), and housing type (n=17)

Housing Type and Unhoused Residents A few people discussed the residential aspect of 2nd Avenue as something that contributed to the environment and its overall identity. They attributed this to residential land use providing a “small town feel” which further distinguished 2nd Avenue as different from Broadway. Additionally, many people were concerned for unhoused residents having access to proper resources and overall enhancing the safety for everybody.

However, this measurement of discussions regarding unhoused residents is flawed in its representation for the group. That is, there were only a few people that discussed unhoused residents; however, for those that did it was a main concern for them contributing to an over representation. Most people who were concerned with unhoused residents identified as business owners. Furthermore, conversations regarding unhoused residents were often coupled with criminal activity. This assumption among participants that unhoused residents contributed to higher levels of crime was not properly considered as two distinctly different phenomena.

Many participants recommended simultaneously providing more resources and adequate shelter for unhoused residents near 2nd avenue as well as increasing security in the area. These conversations highlighted prevention, such as shelter resources and increased lighting, over intervention strategies which often resulted in calling the police.

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Ultimately, however, this sample is particularly biased because no unhoused residents were present at the listening sessions, nor have been surveyed intentionally.

Housing Affordability No participants in any of the 12 breakout rooms considered housing affordability on 2nd Avenue as a pressing issue. This may result because of the high concentration of short-term rentals on the street. For instance, multiple 2nd Avenue residents mentioned that they also own short-term rentals so while they maintain their residence, they also maintain a business. This is to some extent at odds with people advocating for more residential living regarding housing type.

Conclusion This data analysis and discussion represents stakeholders that were present at the initial listening sessions; however, ongoing work has been put in to understand stakeholders beyond those that were able to be present. This data, however, can be used as a baseline for exploring opportunities for revitalization efforts on 2nd Avenue. Funding for writing this report was provided by the Sandra Schatten Foundation.

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Appendix 1: Topic Definitions Theme

Topic

Topic definition

Neighborhood Design and Development

Architectural Style

Descriptions of style of buildings and building aesthetics Diversity of use of buildings including mixed use, residential, singular, business, etc. as well as zoning restrictions Identities of street users considered in the built environment design Considerations of trash removal and cleanliness Consideration of times of high engagement and high use Promotion of preserving historic design, aesthetics, or legacy Discussion of types of parking, uses of parking, and alternatives to current parking Bike and scooter storage space for street users Designations of transportation options on the street Relationship between the street and bikes, scooters, and other forms of individual non-auto transportation Types of moving vehicles allowed to operate on 2nd Ave, including public transportation Describe one's attachment to place through food consumed on the street Style of dining including location, time of day, and type Cost of food, including diversity of options and price ranges Grocery options and food alternatives to restaurants Descriptions of ownership and preferences for certain types

Land Uses

Built Environment Identity Trash Time of Day Historic Preservation Transportation

Parking Pedestrian Transport Storage On-Street Designation Micromobility

Transit

Food Resources

Food Place Description Dining Style Food Affordability Proximity to Grocery Restaurant Ownership Type

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Walkability and Pedestrian Safety

Security/Safety

Housing Affordability

Anything to enhance sense of safety or presence of enforcement Existence of or opportunities to interact with street users Physical infrastructure and psychological engagement to increase pedestrian experience Conditions of trees on the street Descriptions of type and purpose of housing Descriptions of unhoused residents on or near 2nd Ave or implications of lack of housing Cost of living

Riverfront Alley 1st +2nd Connection

Engagement between river and 2nd Ave Conditions or usage of alleyways Mobility between 1st and 2nd Ave

Street Engagement Quality of Walkability

Housing

Trees Housing Type Unhoused Residents

Open Space and Parks

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