Lafayette Study

Nashville Civic Design Center

LAFAYETTE N EIGHBORHOOD

FINDINGS AND RECOMMENDATIONS 2006

ACKNOWLEDGEMENTS

The work represented in this document was done at the request of the Metropolitan Housing and Development Agency (MDHA). The work was produced by the Nashville Civic Design Center staff. The report was written and edited by Gary Gaston, Associate Design Director; with significant contributions by Design Director TK Davis; Design Assistant Stephanie McCullough; design interns Parvathi Nampoothiri, Chris Layda, Jason Walker and Robbie Hayes. In addition, the NCDC would like to thank: Randy Morgan of the Metro Planning Department; Mary Gormley and Paul Johnson of MDHA; Brian Christens, Director of Vanderbilt University Census Information Center and John Vick, Phd student in Community Research and Action at Vanderbilt University; for their contributions to this report. Finally, a special thanks to Parvathi Nampoothiri for producing the beautiful illustrations that appear in this report.

Questions and comments may be directed to: LAFAYETTE NEIGHBORHOOD STUDY Nashville Civic Design Center 138 2nd Avenue North, Suite 106 Nashville, Tennessee 37201 (615) 248 - 4280 voice (615) 248 - 4282 fax info@civicdesigncenter.org www.civicdesigncenter.org

The Nashville Civic Design Center is a 501(c)3 nonprofit organization with funding from the Frist Foundation, the Metropolitan Government of Nashville and Davidson County, the Metropolitan Development and Housing Agency, the University of Tennessee, and Vanderbilt University.

Nashville Civic Design Center: Lafayette Neighborhood page 2

TABLE

Founded in 2000, the Nashville Civic Design Center is a nonprofit organization whose mission is to elevate the quality of Nashville’s built environment and to promote public participation in the creation of a more beautiful and functional city for all. ©2005 Nashville Civic Design Center

OF

CONTENTS

Area of Study

3

Proposal Request

4

Executive Summary

5

Implementation Chart

6

Overview History Principle Streets Existing Conditions Redevelopment Districts Neighborhood Boundaries

8 11 12 14 15

Community Input Neighborhood Assessment Map Neighborhood Assessment Neighborhood Vision Workshop

16 17 19

Recommendations Design and Crime Four Approaches to Crime Prevention Streetscaping - Continuity of Design Traffic Calming - Streetscaping Residential Urban Infill Neighborhood Design, Phase I Neighborhood Design, Phase II Neighborhood Design, Phase III 8th and Lafayette Services Campus 8th Avenue Streetscaping 7th Avenue Streetscaping Lafayette Street CSX Railroad Bridge Gateway Boulevard Public Restroom Facilities Case Studies

20 21 22 23 24 25 26 27 28 30 33 35 36 37 38 39 40

Sources

41

AREA

OF

STUDY

Context of the Lafayette Neighborhood within the city

DOWNTOWN

Rolling Mill

SOBRO

Rutledge Hill

The Gulch

Sudekum & Napier Homes

Nashville Civic Design Center: Lafayette Neighborhood page 3

PROPOSAL REQUEST

MDHA’s PROPOSAL DESCRIPTION: “The 8th / Lafayette Avenue neighborhood is a mixeduse area of our city that includes business owners, homeless service providers and some residential/rental property. Nashville’s primary homeless service providers (The Rescue Mission, Campus for Human Development and the Downtown Clinic) are also located in this footprint. The Rescue Mission shelters 300 to 500 individuals per night. The Campus for Human Development shelters 200 individuals in the winter months, plus offers several day programs for homeless people.

The Downtown Clinic serves approximately 65 people per day. There is a high concentration of Nashville’s homeless population in this area daily.

The primary issue is a history of tension between the business owners, homeless service providers, and homeless individuals in the area. The business owners are increasingly irritated and frustrated with homeless individuals loitering, littering, participating in public substance use, drug trafficking which is periodically heavy, and generally creating a negative atmosphere.

OBJECTIVES • Establish a positive identity for this area, while maintaining the diversity that is present.

• Develop options that will enhance the strengths of the area and promote a positive atmosphere.

• Assist stakeholders in the neighborhood in developing a unified vision.

• Develop a list of suggestions on physical improvements to the area over time, including ways of which to implement suggestions through the use of CDBG funding.

The goal is to alleviate the problems documented above and create a positive atmosphere in the area for all Nashville citizens. The Civic Design Center is known for bringing many diverse parties together and facilitating pro-active discussion to promote change.

The goal is to create a long-term vision that addresses the stated problems with specific action steps and goals for implementation over time. “

Source: MDHA’s Proposal description to the Nashville Civic Design Center

Nashville Civic Design Center: Lafayette Neighborhood page 4

EXECUTIVE SUMMARY

At the request of the Metropolitan Development and Housing Agency (MDHA) the Nashville Civic Design Center conducted a study of the Lafayette - 8th Avenue Area.

Beginning in the Summer 2005, the Civic Design Center conducted a series of meetings in the neighborhood attended by business owners, homeless service providers and residents, as well as members of the NCDC, MDHA, Planning Department and Mayor’s Office of Neighborhoods staff.

Meeting #1: Community Assessment: Discussion of existing conditions (business and property owners) Meeting #2: Community Assessment: Discussion of existing conditions (homeless individuals) Meeting #3: Community Assessment: Discussion of existing conditions (homeless service providers) Meeting #4: Community Visioning Workshop Meeting #5: Presentation of Draft Proposal (business and property owners) Meeting #6: Presentation of Draft Proposal (homeless Individuals / service providers) Publication of Final Proposal

Based on the information gathered at these meetings, the Nashville Civic Design Center makes the following recommendations: • Adopt “Lafayette” as the area's official name, as recommended in The Plan of Nashville.

• Define the “Lafayette Neighborhood” as the area bounded by 4th Avenue to the east, Gateway Boulevard / Franklin Street to the north, the railroad tracks and 8th Avenue to the west, and Interstates 40/65 to the south.

• Create a neighborhood association that balances the representation of the various constituencies in the area (business owners, providers and homeless) and anticipates representation of future development (business and residential).

• Promote programs that actively redevelop underutilized and vacant property.

• Build relationships with various foundations, government departments, and non-profit organizations that have a vested interest in revitalization efforts.

• Coordinate future proposals to be consistent with Metro’s 2005 “Strategic Plan to End Chronic Homelessness” Download this report at: www.civicdesigncenter.org/lafayette.html

• Advocate for an increased police presence and enforcement in the neighborhood by decreasing the size of coverage zones in the central precinct.

• Advocate increased civic accountability by Homeless Service Providers in the neighborhood to promote better relations with business owners and future residents.

• Design and build streetscape improvements to 8th Avenue South, including trees, sidewalks, lighting, bus shelters and signage • Improve the lighting, safety and appearance of the spaces on and off site adjacent to the Clinic and Campus for Human Development

Nashville Civic Design Center: Lafayette Neighborhood page 5

• Advocate for the installation of public rest room facilities in key locations throughout Downtown (at least one of these facilities should be located in the Lafayette area).

This booklet contains detailed information explaining and illustrating these recommendations. The following pages outline each issue that was raised during the community meetings.

IMPLEMENTATION CHART

Civic / Government

0-2 Years Create a Neighborhood Association that balances the representation of the various constituencies in the area (business owners, providers and homeless) and anticipates representation of future development (business and residential) to advocate for the implementation of the suggestions in this report

2-5 Years 5+ Years Determine the future of the Greyhound Bus Endorse funding, design and construction of a Station in light of a proposed new Convention downtown magnet elementary school with playCenter and if necessary, conduct a study to ground/urban space as recommended in determine the best alternate site The Plan of Nashville on the blocks bounded between 4th and 5th Avenues, and Peabody and Elk Install a public restroom facility within the Streets study area that is properly maintained Research the possibilities of recruiting a culinary Promote programs that actively redevelop institute to the neighborhood to provide training, Enforce licensing, permit and restrictions underutilized and vacant properties jobs and entertainment venues on itinerant food vendors in the neighborhood Encourage increased civic accountability by service providers in the Lafayette Neighborhood (includes expanded cleanup and surveillance efforts)

Commercial

Utilize the Lafayette Neighborhood’s abundant art supply and photography businesses in promoting the area as the “Design District”

Parks / Greenways

Encourage CSX to remove overgrowth and Reconsider existing green spaces within underbrush along the tracks throughout the neighborhood to determine if the area the neighborhood has reached the point of developing a neighborhood park Maintain the existing unprogrammed green spaces within the neighborhood (for long-term future use)

Nashville Civic Design Center: Lafayette Neighborhood page 6

Create new commercial opportunities along Lafayette (possibly with some form of incentive program) spurred by the construction of the Lafayette streetscaping plan

Continue commercial growth, particularly retail opportunities, spurred by the growing residential population

Create a green space, surrounded on all sides by public streets, linking 7th Avenue and Ewing Street (see page 26)

IMPLEMENTATION CHART

Residential

0-2 Years Identify vacant lots and buildings that can be redeveloped as housing; these properties could be made available to non-profit developers who specialize in building housing in transitional areas Develop mixed-use scattered site affordable housing in the neighborhood (utilize low income tax credit programs for funding)

Streets

2-5 Years 5+ Years Work with non-profit residential developers Develop mixed-income housing throughout the that specialize in constructing mixed-use Lafayette Neighborhood buildings (with upper floor housing) Consider sponsoring a housing design competition, to bring attention to the area, that focuses on designing high-quality housing for purchase in the neighborhood

Construct 8th Avenue South streetscaping Construct 8th Avenue South Streetscaping Complete construction of Gateway Boulevard plan between Franklin St. and the CSX plan between Broadway and Franklin St. and monumental civic space at the intersection Railroad Bridge (see page 25) (Gateway Boulevard / see page 22) of Gateway Boulevard, Lafayette Street and 8th Avenue Redesign alleys behind the Clinic and Construct 8th Avenue South Streetscaping Campus for Human Development plan between the CSX Railroad Bridge and Connect Division Street to Ash Street via a new according to the suggestions in this report Division Street (see page 22) vehicular / pedestrian friendly bridge, linking Music (see page 30) Row and Midtown to the Gulch, Lafayette, Metro Construct Lafayette Avenue streetscaping Campus, Rolling Mill Hill and the Cumberland River Clean up, paint, and illuminate the plan between 7th Avenue and the (as suggested in the Plan of Nashville) CSX Railroad bridge, creating an iconic interstate (see page 22) gateway into downtown Nashville; consult with TDOT to resolve clearance issues Consider converting 5th and 6th Avenues (south of Demonbreun Street) from 1-way Apply for matching funds from TDOT’s to 2-way design, to aid in connectivity in new “Tennessee Roadscapes” program for the neighborhood roadway beautification projects. www.tennessee.gov/tdot/roadscapes/ Install lighting on all streets throughout the neighborhood, including alleys Install street lighting on 7th Avenue S. between Lafayette St. and the CSX Rail tracks

Nashville Civic Design Center: Lafayette Neighborhood page 7

OVERVIEW HISTORY Historic map of downtown Nashville, ca. 1990: Tennessee State Library and Archives

SOUTH OF BROADWAY (SoBro) Historically the area South of Broadway has rarely been considered a whole district. The topography changes drastically from East to West and North to South. From the high points on Rutledge Hill to the historically named “Black Bottom,” known as such because of frequent flooding, black mud and stagnant pools of filthy water. The railroad gulch on the western boundary forms a distinct separation, one that long held the area in isolation because of the inability of horse drawn carriages to descend and ascend the steep slopes. In the 1880’s wooden viaducts were constructed across the Gulch, and in 1888 electric trolley cars began service, opening the west for its future expansion.

In the 1960’s, construction of the interstate system further isolated the area by forming a wall along the southern edge of the district.

The Lafayette Neighborhood lies within the westernmost portion of SoBro. The Nashville Scene coined the “SoBro” name during the mid-1990’s, when controversy over the proposal by state and local government to build a six-lane cooridor through the area, connecting I-40 to I-24, boiled over. In 1995 a three-day charrette, sponsored by the Scene, brought together 19 design professionals from across the nation and more than 100 Nashvillians to develop a vision for the area. The resulting plan, entitled The Plan for SoBro was published and became a significant basis for the Metro Planning Department’s most recent update of the Subarea 9 Plan, adopted in December 1997. This update applied many of the guiding design proposals from The Plan for SoBro into official policy.

Nashville Civic Design Center: Lafayette Neighborhood page 8

OVERVIEW HISTORY “The Plan for SoBro� suggested creating a series of interconnected public spaces. Drawing, 1997: Warren T. Byrd and Stephanie Bothwell

Describing this area as a neighborhood is currently grasping, since there is virtually no existing residential housing stock. The primary residents are the homeless, who utilize the Nashville Rescue Mission and the Campus for Human Development for nightly accommodations. Businesses in the area include artist and photography supply stores, publishing houses, auto repair facilities, machine shops and multiple adult entertainment establishments. The area has a general feeling of neglect, which is remarkable, considering its proximity to downtown.

What is most notably lacking in Lafayette is housing.

For the area to become a viable neighborhood, housing must be developed. Signs indicate that it is quickly approaching, if from the outside. The Gulch, a hip and youthful area that is quickly filling with residential development, restaurants and nightclubs, borders Lafayette to the west, while the Rutledge Hill and Rolling Mill Hill neighborhoods border to the east. Both areas are expanding quickly and have plans that are currently in the implementation phase.

When built out, each of these neighborhoods will be the home to over 2,000 residents. In addition, the Downtown neighborhood lies to the north of Lafayette. Recent studies show that by the year 2010, the residential population of downtown could exceed 10,000 people.

In the midst of all this adjacent development, one can see the importance of creating a plan for the future of Lafayette.

Kreyling, Christine (2005). The Plan of Nashville: Avenues to a Great City. Vanderbilt University Press, 185-188.

Nashville Civic Design Center: Lafayette Neighborhood page 9

OVERVIEW HISTORY

OF

HOMELESS SERVICE PROVIDERS

CAMPUS FOR HUMAN DEVELOPMENT

NASHVILLE RESCUE MISSION

DOWNTOWN CLINIC

The Campus for Human Development is a non-proďŹ t faith-based organization that provides services to the homeless in Nashville. It was formed in 1995 by the merger of Room in the Inn, The Guest House, and Faith Organizations in Covenant for Understanding and Service (FOCUS), and is an extension of the outreach ministry of more than 250 Nashville congregations with programs that have been in operation since 1969. The Campus provides shelter services, a respite care program, a day center, educational programs, homeless preventions services, case management, direct assistance ministry, a Hispanic services program, a congregational help line, and alcohol and drug treatment (in partnership with the Nashville Metro Public Health Department). In 1994, Room in the Inn and FOCUS moved into the current location at 532 8th Avenue South, a facility owned by MDHA, with Guest House relocating there in 1995. The decision was made to merge Room in the Inn with the other services to create a single site of services for the homeless. The current location was chosen because a number of homeless providers, including the Salvation Army and Metro Health Service Center (later to become the Metro Health Clinic) were already located in the area.

The Nashville Rescue Mission was established in 1954 to provide food, shelter, and services to the homeless persons. It provides support and long-term treatment to individuals with addictions and other debilitating problems. The mission moved to its current location on April 1, 2001 from two separate facilities on 7th and 8th Avenues near Demonbreun Street to the old Sears building at the corner of 7th Avenue South and Lafayette Street. The dilapidated building was purchased for $480,000, and the Mission spent nearly $6 million on renovations. The Mission moved to this location because it one of the few locations allowed by city zoning.

The downtown clinic has been in operation since 1985, and provides healthcare to homeless persons in Nashville. The clinic is operated by the Metro Public Health Department in partnership with the Campus for Human Development. It provides primary medical care, alcohol and drug treatment, mental health services, dental services, and transportation to medical and social service appointments. Funding sources include the U.S. Department of Health and Human Services, Tennessee Department of Health, MDHA, and the Nashville Metro Government. It is located in a facility owned by MDHA at 526 8th Avenue South near the Campus for Human Development.

The Nashville Rescue Mission is spending $7.3 million this year to help an estimated 6,500 men, women and children. Services at the Mission include overnight shelter and three meals daily, work therapy, life-recovery and education programs, and Christian education and daily worship. The Mission does not accept government funding

Source: Oral history interview with service providers, conducted

by Nashville Civic Design Center staff; Fall 2005

Nashville Civic Design Center: Lafayette Neighborhood page 10

OVERVIEW PRINCIPAL STREETS Lafayette Street

GATEWAY BOULEVARD

The Lafayette Neighborhood is transversed by two major regional “pikes.” These traditional pikes were once Nashville’s primary connection to the Middle Tennessee Region, but have since been supplanted by the interstate system. Now they primarily serve as arterials roads that service the commuters of Davidson and adjacent counties.

Gateway Boulevard is scheduled to open in the Spring of 2006. It is the newest addition to Nashville’s street network system, and represents one of the most ambitious street projects in the city’s history. Born out of The Plan for SoBro, Gateway is what became of “Franklin Corridor,” the high capacity road proposed in the mid-1990’s to connect I-40 to I-24.

LAFAYETTE STREET (Murfreesboro Pike)

8th Avenue South

8TH AVENUE SOUTH (Franklin Pike) Franklin Pike enters the city from the south, becoming 8th Avenue around the I-440 interchange. Through the Lafayette Neighborhood, it is designed as a fourlane road.

A trip into Nashville along 8th offers dramatic vistas towards downtown, and overall is a fairly pleasant experience. That is, until passing underneath Interstate 40, where 8th begins a dramatic transformation into a dismal, and less than ideal sequence of arrival.

Murfreesboro Pike enters the city from the southeast, becoming Lafayette Street. It cuts diagonally to the northwest across the downtown street grid and terminates at the intersection of 8th Avenue.

Because of its diagonal path, numerous interesting and somewhat awkward intersections are created.

The street is six lanes wide.

A 1933 aerial photograph reveals that Murfreesboro Pike (Lafayette) originally ended at Second Avenue.

Lafayette was connected to 8th Avenue sometime between the years of 1933 and 1964, presumably to connect to 8th Avenue (Franklin Pike); thus allowing more options for entering downtown and the West End. Today, because of its width and numerous connections to the downtown street grid, Lafayette rarely seems congested, even during morning and evening commute times. Furthermore, traffic counts do not justify its large right-of-way.

Gateway will introduce a grand urban boulevard into SoBro, an area known for its discontinuous street system. Gateway will also be an economic redevelopment tool, spurring investment in the previously underutilized district. Design Guidelines have also been crafted to ensure that building heights and appearance are suitable.

Under current plans, Gateway Boulevard will connect the new Gateway Bridge from First Avenue to 8th Avenue. Initially, only the portion between 1st and 4th has been constructed, but later plans call for its completion to 8th Avenue. Preliminary drawings indicate a large civic space will be created at Gateway’s termination, where it will converge with Lafayette and 8th Avenue South.

Gateway Boulevard Rendering (see page 38)

Nashville Civic Design Center: Lafayette Neighborhood page 11

OVERVIEW EXISTING CONDITIONS Images taken within the neighborhood

Poorly maintained streets and blocks add to the perception that the Lafayette neighborhood is dangerous and blighted. This perception is a strong deterrent to redevelopment of the neighborhood. Areas such as the examples shown in these images are a common sight within the neighborhood.

Public areas, such as streets and sidewalks, should be repaired and cleaned by the Department of Public Works. Private blocks that are deemed blighted and in disrepair should be acquired and redeveloped into a mix of uses.

The land can then be sold or given to a company with a redevelopment plan. This development should contain a heavy emphasis on housing, with at least 20% devoted to creating affordable units.

This model has worked successfully in other areas of the city, particularly the Hope Gardens Neighborhood in North Nashville, where a once crime ridden area has now become a thriving neighborhood.

Nashville Civic Design Center: Lafayette Neighborhood page 12

OVERVIEW EXISTING CONDITIONS - ASSETS Images taken within the neighborhood

Within the Lafayette Neighborhood there are numerous assets which help create a distinctive atmosphere and personality for the area. From the many architectural gems to an unexpected hot dog grill, these places serve as draws to a large group of people who would otherwise not visit.

It is critical that the neighborhood retain these buildings and build upon their successes.

Nashville Civic Design Center: Lafayette Neighborhood page 13

OVERVIEW REDEVELOPMENT DISTRICTS Map showing MDHA Redevelopment Districts that are adjacent to the Lafayette Neighborhood

Nashville Civic Design Center: Lafayette Neighborhood page 14

OVERVIEW NEIGHBORHOOD BOUNDARIES Aerial photograph with adjacent developments shown (The Gulch and Rolling Mill Hill)

Nashville Civic Design Center: Lafayette Neighborhood page 15

COMMUNITY INPUT NEIGHBORHOOD ASSESSMENT MAP Map created from comments voiced during the community neighborhood assessment meetings

Nashville Civic Design Center: Lafayette Neighborhood page 16

COMMUNITY INPUT NEIGHBORHOOD ASSESSMENT

The “Community Assessment” consisted of three separate meetings held with the three main constituents of the Lafayette Neighborhood (business / property owners and residents; homeless residents; homeless service providers).

To develop a better understanding of the existing conditions of the Lafayette Neighborhood, participants were encouraged to discuss their perception of the boundaries of the area and determine whether it had been correctly defined.

Next, they were asked the following questions: QUESTIONS: 1. Identify significant or defining events in the neighborhood in the past few years.

2. Describe the neighborhood (physical, social, communal) as though talking to a stranger.

3. List and locate on the map three places you would avoid and at what times of the day.

5. Name three or more sites in the neighborhood that you consider public places.

6. Name at least three features that make the neighborhood special and unique.

7. Share any other ideas / reflections on the past or lessons learned.

RESPONSES TO QUESTIONS: Question #1 Mission locating along with Campus and Clinic; Adult businesses; Cummins Station; Union Station; Industrial ID, Selected police enforcement; Gulch development; Gateway-Shelby coming through; Rolling Mill Hill; Feeding program; Lack of significant changes; Transitional living; Crime up and down during certain hours; More police presence; Change in attitude about care for environment; Business community interested in homelessness; Lack of business night solicitation; No convenience store; No grocery store; No employment; Entertainment districts; Lack of public safety; Lack of after school programs; Parades; Marathon; Neighborhood; Sears moving; Businesses closing; Less sleeping on streets; Conditions at the Mission improving; Better relationship with the neighborhood Question #2 “Don’t want to go there;” “Locked doors;” Distribution center; Variety of services; Caught between the Gulch and SoBro; Mix of creative people-businesses; Gateway to downtown from the south and east; “Stay Out;” City abandonment; Dumping ground; Not safe at night; Police don’t do anything (why bother calling?); “Out of sight, out of mind” (police attitude); Drugs; Demonbreun Bridge; Cummins Station; Frist Museum; Loitering; No safety; Epicenter of crime; Industrial; Selected police enforcement; Lowest form of social living; High concentration of homeless; City doesn’t do much to improve area; “Mission is a good thing and is trying to positively change things in people’s lives (vs way the Mission used to be); Lot of drug use; Empty buildings; People coming in to hire cheap labor; Lot of entertainment (clubs, Rocketown); Difference in income of people in neighborhood between night

Nashville Civic Design Center: Lafayette Neighborhood page 17

and day; Prime property in area to do low income housing (market for higher income housing affected by lower income persons); “Be very careful;” Watch wallet; Mistaken perception about people who live there; Strip joints bring in wrong crowd; Homeless everywhere, nowhere to go; Lack of green space-no vegetation; Hard at night Question #3 Adult bookstore along the interstate; Under railroad bridge; Mission; Campus; Clinic; Alleys; Ewing Street by railroad tracks; Any place out of sight; After hours businesses; Anywhere outside the Mission area, especially at night; Bus station after 5pm; Male prostitution at 5th Ave and Lafayette Question #4 Lack of public spaces; Cannery; Arnold’s Restaurant; Cummins Station; Eddie’s (Warner Building); Dan’s Cafe; Antique Mall; Estell’s; Downtown Public Library; Campus for Human Development; Mission; Trinity Church and lot across street Question #5 Skyline view; Trinity Church; Hot Diggity Dog; Ft. Negley; Frist; Architecture; Historic Buildings; HousingLofts; Cannery Row; Stablehouse-historic structures from Plantation; Cummins Station; Union Station; Music Row Roundabout; Clinic; Mission; Campus; Rose Park School; Adventure Science Center; Low cost business start up; Lots of potential; Easy access; Railroads; Number of homeless

COMMUNITY INPUT NEIGHBORHOOD ASSESSMENT (CONTINUED) Map created during the vision workshop

Question #6 Enlarging-improvements to 8th Ave into town; Morebetter restaurants; Rescue Mission as festival site without Mission; Create interest along 8th; Median on Lafayette and 8th with lighting; Short-lived attempts to create change; Close alley, vagrant-homeless population has dominated the area-makes area a place to be avoided; Devoted police lacking; Service providers won’t take responsibility; Mission is somewhat responsible; Design District for Nashville; “Don’t be out at night;” Important to know that not all people are causing trouble, drugs, etc.; People have preconception about the area that prevents them from coming; Property owners-city-TDOT need to improve with lighting, painting, landscaping, fix-up, etc.; Need affordable, low income housing as part of mixed income community; Do things for people who live in Mission since they are most of the residents; Educational park on homelessness (model after Bicentennial Mall); Create housing with employment options-programs-life skills options; Aftercare; Create ways to give back to the neighborhood; Create job training programs; Improve perception to public; Housing that attracts businesses; Weed out the few bad guys that give a bad name; Start a homeless community watch program; Involve homeless in responsibility of monitoring the area; Capitalize on human resources-skills-willingness to help of homeless population; Concern with Gulch creeping over to area; No more clubs; Protect existing “healthy” businesses; Affordable housing; Quality businesses for the future

Nashville Civic Design Center: Lafayette Neighborhood page 18

COMMUNITY INPUT VISIONING WORKSHOP

The Visioning Workshop brought together all groups from the neighborhood to participate in a design workshop that focused on the future of the neighborhood.

The following questions were asked of the participants.

The answers were recorded in note form and as drawings on maps.

RESPONSES TO QUESTIONS:

Question #5

Question #1

Improvements to the Mission; Move the Clinic to Lafayette; Clubs along 8th, Drexel, and Lafayette bring sepearate set of issues; Change zoning from “red light district;” Connect Gateway Boulevard to the Gulch; Change Menages to “Mary Catherine Drexel” Museum; Remove adult bookstores, swinging clubs; Strip clubs; Change alleys; Change underpass; More affordable housing; Add more restaurants; Add more coffee houses; Keep church and courtyard; Keep homeless agencies; Add restrooms and trash cans; Don’t want to change much because of fear of displacement

Would not take visitors to this area; Antique Mall; Estelles; Arnolds; Cannery Row; Holy Trinity Church; The Mission; Historical markers located in the neighborhood

QUESTIONS: 1. If you could have three or more attractions to take out-of-town visitors to in your neighborhood, what would they be?

2. Name three or more sites you want to be public places in the future, where people can meet and freely discuss community issues or gather.

3. Name three or more natural or man-made features that could make your community special and unique in the future.

4. Name three or more streets, paths (i.e., greenway or trail), and edges (i.e., river) that could make your community better in the future.

Question #2 Challenge to find existing public gathering places; Sculpture park @Lee/8th/Lafayette; Hot Diggity Dog; Holy Trinity Church; Cannery Row; Lot behind Mission; Reflections building.

Question #3 Convert old buildings to housing; Peabody/5th Ave/ Lafayette triangle; Union Mission-convert to green space; Homeless agencies; Holy Trinity; Views to downtown; AME Church Publishing House; Daylight covered spring that once ran through the area (verify that it existed); old buildings/warehouses that are close to railroad tracks.

Question #4

5. What areas of your neighborhood do you want to change (and what kind of change do you want to see) and what areas do you want to keep the same?

Lafayette and 8th; 7th Avenue; Railroad bridge; Drexel Street; Alley parallel to Drexel; Train yards/tracks

6. What 10 things would bring the biggest improvements to your neighborhood and the city in the future?

Nashville Civic Design Center: Lafayette Neighborhood page 19

Question #6 Public transportation; Completion of Gateway Boulevard; Lighting; Graffiti clean up; Railroad bridgegeneral improvements and upkeep; Improvements to buildings; More connections; More pedestrian scale; Streetscape improvements-medians-planters; More residential with mixed incomes; More of a retailcommercial draw; Roundabout @ 8th / Lafayette; Public art; Green space-open space; Move homeless agencies; Increase police presence; More food services; Art galleries; Convention Center; Removal of adult businesses; Neighborhood watch; Alley control by business owners; Widen 6th,7th and Drexel; Tie in Museum, Ft. Negley, and Ball Park with area; “Design District;” Litter patrol out of provider population; Storage places for personnel belongings; Signage; Historical museum; Anchor retail store; Public restrooms; Information kiosk; Covered place to wait for work-transit stop; Library; Dining hall for homeless; Program transition be Gulch and Lafayette Neighborhood; Alley improvements; Grocery store; Laundromat; Dollar store; Service center

RECOMMENDATIONS DESIGN

AND

CRIME

Based on mapped GIS data available on the Metro website, reported crime in the past 28 days for this site does not appear to be higher than in the surrounding areas of downtown. There is virtually no reported violent crime in this area. Accepting that there may be unreported crime in this area, as well as a high perception of crime, the information in this section is intended to address the reduction of both actual criminal activity and perceived criminal activity.

Criminal Theory suggests that most crimes are committed because of a perceived opportunity such as easy access, places to hide, absence of a clear definition between public and private space, poor lighting, landscape planting that can conceal an offender’s presence, and similar design related issues.

Crime Prevention Through Environmental Design (CPTED): www.cpted.com.au CPTED is a set of concepts based on the idea that people’s behavior can be changed by altering characteristics of the environment.

• Promote natural surveillance, maximize visibility.

• Promote natural access control, guiding people coming in and out of an area.

• Promote territorial reinforcement and attributes that express and encourage ownership • Promote maintenance of the environment.

The Rational Offender Perspective • Offenders often operate in a rational fashion; They prefer to commit crimes that require the least effort, provide the highest benefits, and pose the lowest risks.

• Because of this, sites can have “natural guardians.”

• Physical features may influence reactions to potential offenders by altering the chances of detecting them and by shaping the public vs. private nature of the space in question.

Lighting • External light fittings should not be accessible; fixtures should be recessed or concealed.

• Pipes and cables should be concealed.

• Street lighting not only provides light at night, but also shows a pride and sense of ownership in the community.

• Light pedestrian walkways, not just roads or windows, at a pedestrian scale.

• Street lighting should enhance the quality of space at night, not just light it.

• Shadows and potentially dark corners should be considered when applying lighting. Also consider landscaping to prevent the blocking of light.

• Rigorously maintain lighting (bulbs, etc.).

Gating • Gate private alleyways with non-climbable gates.

Graffiti on a SoBro Building Signs of neighborhood ownership

Landscaping • Should not impede natural surveillance.

• Climbing plants can cover walls subject to graffiti.

• Can be used to prevent access to private spaces (i.e. hedges).

Preventing Vandalism and Graffiti • Utilize strongly textured surfaces or strongly patterned surfaces that are not too large.

• Damage to applied surfaces is particularly pronounced when the surface color is very different from the color of the material below it.

Overgrowth can limit the ability to detect criminal activities

Nashville Civic Design Center: Lafayette Neighborhood page 20

RECOMMENDATIONS FOUR APPROACHES

TO

CRIME PREVENTION Poor physical conditions of the streets and alleys can be linked to criminal activity

There are four approaches to making a location more resistant to crime; each of these approaches can reinforce the others separately or collectively.

1. Housing design or block layout: reduce availability of crime targets, removal of barriers that obscure offenders, increase physical obstacles to crime 2. Land use and circulation patterns: attention to walkways, paths, streets, traffic patterns, location of public buildings and hours of operation 3. Territorial features: signs of occupation by vigilant residents, cleanup and beautification, demonstrate watchfulness (closely linked with fear of crime) not actual crime 4. Physical deterioration: reduce signals of vulnerability – this influences not only how potential offenders behave, but also how residents/business owners behave – securely close vacant dwellings, remove trash and abandoned cars, raze deteriorated vacant buildings, repave sidewalks (perhaps with bricks)

Reduce signs of “Incivility” • These are signs that make people feel vulnerable because they suggest to residents that the public officials and agencies charged with maintaining order were incapable or unconcerned about following through.

There may be other objectives in the area that conflict with designing to reduce crime (i.e. equal housing opportunities, economic development) – these goals must be balanced.

Sources: Taylor, R., Harrell, A. (1996). Physical Environment and Crime. Report presented to the National Institute of Justice.

Colquhoun, I. (2004). Design Out Crime: Creating Safe and Sustainable Communities. Architectural Press.

Nashville Civic Design Center: Lafayette Neighborhood page 21

RECOMMENDATIONS STREETSCAPING - CREATING

A

CONTINUITY

OF

DESIGN

Aerial photograph of downtown Nashville with areas highlighted for current and future streetscaping

8th Avenue and Lafayette Street represent two major entrances into Nashville. The addition of adequate streetscaping would provide safer and more appealing pedestrian, biking and automobile experiences, and potentially spur economic redevelopment along these important corridors.

This drawing illustrates examples of how 8th Avenue, Lafayette Street and Gateway Boulevard can be built-out over several years to achieve a uniďŹ ed appearance.

Nashville Civic Design Center: Lafayette Neighborhood page 22

RECOMMENDATIONS TRAFFIC CALMING - STREETSCAPING Church Street, Nashville

Main Street, Nashville

Traffic calming is a mixture of physical measures that can improve the appearance of a street while also improving safety conditions for pedestrians and cyclists.

In Nashville there have been several examples of streetscaping projects that have altered the character and feel of neighborhoods. These include Main Street, Church Street and Capitol Boulevard, 12th Avenue South, Jefferson Street, Nolensville Road (Woodbine), The Gulch, Shelby Avenue, and soon Dickerson Pike.

Streetscaping is one component to traffic calming.

Streetscaping includes the addition of sidewalks, landscaping, trees, light fixtures, benches, trash receptacles, neighborhood identity signage, etc.

On-street parking also serves to calm traffic. In addition, the parking is useful to businesses located along the streets.

Nashville Civic Design Center: Lafayette Neighborhood page 23

Market Street, Chattanooga

RECOMMENDATIONS RESIDENTIAL URBAN INFILL Laurel House, affordable housing, Nashville Photograph courtesy of Gary Layda

Mixed-use development, Cincinnati

Urban infill is the use of vacant land, or the restoration and rehabilitation of existing structures or infrastructure in urban areas. This approach is typically used in urban neighborhoods that were once active but have fallen into disrepair, encouraging the successful reuse of these sites.

Mixed-use infill buildings can include retail commercial space at the ground level with one or two levels of office space and residential housing above.

Buildings are positioned close to the sidewalks, typically with on-street parking that shields pedestrians from the traffic.

These photos offer examples of infill development in urban neighborhoods. The character of the new buildings fits into the neighborhood but does not imitate the existing historic structures. Affordable housing is typically a component of these developments, as it ensures a diverse and balanced neighborhood.

Loft-style housing in The Gulch, above commercial space.

Photograph courtesy of Nashville Urban Venture, LLC

Nashville Civic Design Center: Lafayette Neighborhood page 24

Warehouse buildings like this one on Eighth Avenue offer excellent potential for loft housing development

RECOMMENDATIONS NEIGHBORHOOD DESIGN, PHASE I (0-2 YEARS) Plan for the Lafayette Neighborhood

see page 28

8th

Phase I focuses on the intersection of 8th Avenue South and Lafayette Street, the alley behind the Campus for Human Development and the Metro Clinic, 7th Avenue South, and the CSX Railroad Bridge.

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Nashville Civic Design Center: Lafayette Neighborhood page 25

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RECOMMENDATIONS NEIGHBORHOOD DESIGN, PHASE II LAFAYETTE STREET (2-5 YEARS) Plan for the Lafayette Neighborhood Phase II, extending the streetscaping along Lafayette to the I-40 interchange (see page 38)

Nashville Civic Design Center: Lafayette Neighborhood page 26

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RECOMMENDATIONS NEIGHBORHOOD DESIGN, PHASE III (5+

YEARS)

The long term vision plan for the Lafayette Neighborhood anticipates and reflects the continued growth of Downtown, The Gulch, and Rolling Mill Hill.

The Lafayette area becomes a mixed-use neighborhood with its own distinct identity

Nashville Civic Design Center: Lafayette Neighborhood page 27

RECOMMENDATIONS 8TH

AND LAFAYETTE

Illustration of proposal for intersection of 8th Avenue South and Lafayette Street

The design focuses on the intersection of 8th Avenue and Lafayette Street.

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enu Av

• Creates a focal point at the intersection of 8th Avenue and Lafayette by installing crosswalks and a distinctive paving pattern • Provides a pull-off lane for northbound buses, creating a safer environment for pedestrians and commuters, while preventing traffic backup • Creates a highly visible gateway at the intersection of 8th and Lafayette that offers an opportunity for neighborhood identification signage (see page 29)

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Nashville Civic Design Center: Lafayette Neighborhood page 28

RECOMMENDATIONS 8TH

AND LAFAYETTE

Illustration of proposal for intersection of 8th Avenue South and Lafayette Street

Existing conditions

Nashville Civic Design Center: Lafayette Neighborhood page 29

Neighborhood identity / Gateway signage

RECOMMENDATIONS SERVICES CAMPUS Plan for reconfiguring the alley behind the Homeless Service Providers (Metro properties in black)

Drexel Street

The design focuses on the area behind the Campus for Human Development and the Metro Clinic. The intention is to create an internalized campus-like space, which is easier to clean and monitor, and offers a safer environment for the individuals who use the facilities.

8th Ave South

Currently, the entrance to the Campus for Human Development is located in the rear of the building and the entrance to the Clinic is on 8th Avenue. This design proposes moving the clinic entrance to the rear of the building and closing the alley that connects to 8th.

Metro Clinic

Improved alley conditions include new paving, lighting, fencing and landscaping.

• Utilizes the vacant parking lot located behind the Clinic and Campus

Closed Alley

Campus for Human Development

• Relocates the entrance of the Metro Clinic to the rear of the building • Proposes closing off section of alley connecting to 8th Avenue.

• Widens the alley connecting Drexel Street to the the parking area behind the service providers.

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Nashville Civic Design Center: Lafayette Neighborhood page 30

RECOMMENDATIONS SERVICES CAMPUS Existing conditions

By internalizing the design of the homeless service providers, loitering activity is removed from the fronts of the buildings along 8th Avenue South, where it is a perceived negative by local business owners and commuters. The design allows for a higher level of surveillance behind the building, and creates an aesthetically pleasing environment for the heavily pedestrianized area.

Illustration of proposal for alley behind Campus and Clinic

Nashville Civic Design Center: Lafayette Neighborhood page 31

RECOMMENDATIONS SERVICES CAMPUS Existing conditions

The alley that connects Drexel Street to the parking lot behind the Campus and Clinic is widened for twoway trafďŹ c, lighting and landscaping is added, and the fencing around the vacant parking lot is replaced with a higher quality metal with operable gates.

Illustration of proposal for the alley behind Campus and Clinic

Nashville Civic Design Center: Lafayette Neighborhood page 32

RECOMMENDATIONS 8TH AVENUE SOUTH STREETSCAPING Plan / Section for 8th Avenue South

The right-of-way of 8th Avenue is fairly narrow as it passes through the Lafayette Neighborhood. The plan calls for, where possible, streetscaping that includes new sidewalks, street trees and lighting. The roadway remains four lanes (two in each direction). In some areas, street trees will not be possible because of the width limitations. Lighting and usable sidewalks should be continuous throughout the entire study area.

Nashville Civic Design Center: Lafayette Neighborhood page 33

RECOMMENDATIONS 8TH AVENUE SOUTH STREETSCAPING Existing conditions

Image showing streetscaping proposal for 8th Avenue South

Nashville Civic Design Center: Lafayette Neighborhood page 34

RECOMMENDATIONS 8TH AVENUE SOUTH STREETSCAPING Existing conditions

The plan for 7th Avenue calls for the addition of streeting lighting, trash receptacles, and street trees (where possible).

Nashville Civic Design Center: Lafayette Neighborhood page 35

Image showing streetscaping proposal for 7th Avenue South

RECOMMENDATIONS LAFAYETTE STREET Plan / Section for Lafayette Street

The plan calls for a major redesign of Lafayette Street.

Lafayette’s six-lane design is too wide for its current (and future) capacity needs. The plan suggests that the six-lane road be reduced by one travel lane in each direction between 8th and 4th Avenues. This reduction will allow for the addition of on-street parking and a bicycle lane. In addition, the plan calls for a generous sidewalk with a double row of street trees, as well as new sidewalks and lighting.

Wherever possible, curb cuts are reduced so that the sidewalks are minimally interrupted, thus reducing the conflict between pedestrians and automobiles. Future buildings should be built to the edge of the street right-of-way to form a continuous street definition.

Streetscaping plan for Lafayette.

For full size drawing, see page 27

Nashville Civic Design Center: Lafayette Neighborhood page 36

RECOMMENDATIONS CSX RAILROAD BRIDGE Existing conditions

The CSX Railroad Bridge was identiďŹ ed by participants in the community meetings as a major area of concern.

It is cluttered with trash, broken bottles and human feces, and is perceived as dangerous because of its lack of lighting and maintenance.

The Plan calls for the cleaning, painting and lighting the bridge, creating a beautiful and distinct gateway into downtown. A wonderful opportunity also exists for public art to be incorporated into the design of the bridge. A partnership with the Metro Arts Commission is an important ďŹ rst step in the implementation of this project.

Nashville Civic Design Center: Lafayette Neighborhood page 37

Illustration of design proposal

RECOMMENDATIONS GATEWAY BOULEVARD Long term view of Gateway Boulevard

Under current plans, Gateway Boulevard will connect the new Gateway Bridge from First Avenue to 8th Avenue. Initially, only the portion between 1st and 4th has been constructed, but later plans call for its completion to 8th Avenue. Preliminary drawings indicate a large civic space will be created at Gateway’s termination, where it will converge with Lafayette and 8th Avenue South.

Nashville Civic Design Center: Lafayette Neighborhood page 38

RECOMMENDATIONS PUBLIC RESTROOM FACILITIES Automoatic public toilets, such as the one below, are self-contained, self-cleaning units that are open 24 hours a day

The lack of public restroom facilities in downtown Nashville is an issue for the general population and tourists, and for the homeless it is a serious problem.

For the average person the lack of public restrooms can be an inconvenience, but using a private restroom in a shop or restaurant is often permissible. Homeless individuals are most often denied access. This lack of access can be considered a general public health issue.

The Plan calls for expanding restroom facilities in downtown public spaces and parks.

Currently, only the Bicentennial Mall and The Downtown Public Library offer restrooms that are open to the public. Riverfront Park, Hall of Fame Park, and the soon to open Public Square have no public facilities. Future public spaces and parks should be required to incorporate public restroom facilities into their designs.

Numerous cities throughout the United States, Canada and Europe are dealing with the issue of public restrooms by installing these types of toilets. San Diego, San Francisco, New York and Toronto are all excellent case study cities for their public restroom programs.

The automatic toilet resolves the issue of maintenance, but the initial purchase cost of these units is very expensive. Cities have pursued creative ways of ďŹ nancing these so that the city assumes no part of the cost of purchase or operation.

Most of the cities that utilize automatic public toilets pay for them through the sale of advertising rights.

Typically, a company will furnish the toilet and provide maintenance in exchange for the right to advertise within the city.

A comprehensive study should be done to identify the key areas in downtown Nashville where these facilities should be located.

AUTOMATIC TOILETS One solution to the issue of public restrooms is the automatic toilet. These are free standing, self-contained, self-cleaning, one-person washrooms that are open 24 hours a day. After every use, the toilet seat retracts into the wall, where it is disinfected and steam dried for the next user. High-pressure water cleans the oor, and there is sink for washing hands. The toilets cost a quarter to use for 15 minutes. Tokens are made available for distribution to people who are homeless.

Nashville Civic Design Center: Lafayette Neighborhood page 39

CASE STUDIES OTHER CITIES’ APPROACHES

TO

HOMELESSNESS

A number of cities have begun to realize that addressing the problems of homelessness is an essential component for downtown revitalization. Homeless individuals typically dwell in downtown areas where resources such as food and support services are most available. They often spend a great deal of time on the street and are perceived by downtown business owners as problems and deterents to the downtown’s economic recovery. Partnerships between business organizations and service providers in numerous cities have begun to coordinate their existing efforts to address, in a balanced way, the needs of people who are homeless and the general public’s interest in promoting the public health, safety, and welfare of the downtown area. These partnerships require that the different interests and competencies of businesses and service providers come together to address a community concern, a relationship that must be based on respect, trust, and leadership.

For further information on the Lafayette Neighborhood Revitalization Project and other case studies, visit our website:

www.civicdesigncenter.org/lafayette Reports available for download: 10-Year Plan to End Chronic Homelessness in Nashville (2004) http://www.nashville.gov/sservices/homeless/ strategic_plan.htm International Downtown Association. Addressing homelessness: Successful downtown partnerships.

Report, (August 2000).

Nashville Civic Design Center: Lafayette Neighborhood page 40

SOURCES

HOMELESSNESS AND HOUSING 10-Year Plan to End Chronic Homelessness in Nashville (2004) http://www.nashville.gov/sservices/homeless/ strategic_plan.htm Plan to End Homelessness in Chattanooga (2004) http://www.chattanooga.gov/Files/HomelessBlueprint. pdf

CRIME PREVENTION (sources for pages 20 and 21 of this report) Taylor, R., Harrell, A. (1996). Physical Environment and Crime. Report presented to the National Institute of Justice.

Colquhoun, I. (2004). Design Out Crime: Creating Safe and Sustainable Communities. Architectural Press.

Plan for the Eastside in Vancouver (1998) http://www.city.vancouver.bc.ca/COMMSVCS/Planning/dtes/strategies.htm People Need Affordable Housing http://www.bringingamericahome.org/housing.html Davis, S. (2004). Designing for the Homeless. University of California Press.

University of Arkansas Community Design Center; affordable housing competition entry; http://uacdc.uark.edu U.S. Department of Housing and Urban Development.

Priority: Home! The Federal Plan to Break the Cycle of Homelessness. Washington, D.C. May 1993 Weinstein, B. L., Clower, T. L. (2004).

International Downtown Association. Addressing homelessness: Successful downtown partnerships.

Report, (August 2000).

Nashville Civic Design Center: Lafayette Neighborhood page 41