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Memphis 3.0

Comprehensive Plan

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2021 Update

Prepared by the City of Memphis Memphis and Shelby County Division of Planning and Development

⬚ figure Recipient of the 2020 Daniel Burnham Award for a Comprehensive Plan American Planning Association

⬚ figure Recipient of the 2019 Outstanding Plan Award Tennessee Chapter, American Planning Association

⬚ figure Recipient of the 2021 Charter Award in the Metropolis, City, and Town Category Congress for New Urbanism

Adopted By: Memphis and Shelby County Land Use Control Board ⬚ figure Jon McCreery, Chairman February 14, 2019

Executive Order ⬚ figure Jim Strickland, Mayor May 14, 2019

Memphis City Council ⬚ figure Kemp Conrad, Chairman December 3, 2019 As amended, April 20, 2021

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Memphis 3.0

The Comprehensive Plan of the City of Memphis, Tennessee

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Foreword by Mayor Jim Strickland

In 2016, we took office on a promise to lead city government to be "brilliant at the basics." We believed that day-to-day excellence of city government was essential to positive growth of our City and over the last three years, we have made significant progress in so many areas that Memphians see and feel every day. In the same year, we also committed ourselves to building our future. And specifically, building a future that means greater population and economic growth in the City. In order to cast this vision for our future, we embarked on the Memphis 3.0 planning process, the first comprehensive plan for the City since 1981.

It doesn’t take long to look around and see so much positive momentum in Memphis. Some $15 billion in recent, current, and future development is happening in the Greater Memphis area, and for the first time in decades, more of that is happening inside our city limits than in the suburbs. A large portion of this investment is centered around our Downtown. And that’s good — Downtown is everyone’s neighborhood, and it’s the soul and core of our city. But as much as we celebrate what’s happening Downtown, it’s just as important what’s happening down the street.

Ours is a neighborhoods-first administration and that is a philosophy incorporated into Memphis 3.0, the long-term plan for our City. Over two years and nearly 200 public meetings and events, our staff working on Memphis 3.0 heard from 15,000 Memphians, and came up with a new strategy for our growth: Build Up, Not Out.

The Memphis 3.0 Comprehensive Plan is a road map to better transportation and transit, investment in our core and our neighborhoods, and investment in opportunities for Memphians. By focusing on centers of activity identified as "anchors," the City’s future will be built on the assets of Downtown and neighborhoods across Memphis. We believe that by focusing on improving the heart of a neighborhood, we can improve the health all around it.

I encourage you to spend time with the Memphis 3.0 Comprehensive Plan. The focus on anchors, emphasis on greater transit frequency, and targeted actions for areas across the City, among many recommendations, provide both high level vision and on-the-ground detail for how the City can Build Up, Not Out over the next 20 years. As we celebrate our City’s bicentennial, it’s up to all of us to work together on building our future in the third century, guided by the Memphis 3.0 plan.

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Jim Strickland, Mayor

ACKNOWLEDGMENTS

Without the support of many dedicated individuals and organizations this plan would not be possible. We thank them for their hard work, expertise and encouragement throughout the Comprehensive Planning process.

CITY OF MEMPHIS

SHELBY COUNTY GOVERNMENT

MEMPHIS AND SHELBY COUNTY LAND USE CONTROL BOARD

ADVISORY BOARD MEMBERS

ACKNOWLEDGMENTS

WORKING GROUP MEMBERS

Abby Miller Abram Lueders – Working Group Co-Chair Alex Turley Allison Donald Alonzo Weaver Amelia Mayahi Amy Schaftlein Andre Gibson – Working Group Co-Chair Andre Jones Andrew Murray Andy Cates Angela Garrone Ann Meadors Anthony Anderson Antoine Hawkins Antonio Adams Antonio Raciti – Working Group Co-Chair April Simmons Archie Willis Avery Cunningham Ben Ledsinger Benny Lendermon III Beverleye Orr Bill Bullock Bob Rogers Bob Wenner Brent Nair Brett Roler Brian Crooks Brian Waldron – Working Group Co-Chair Bridget McCall Brittany J. Williams Brown Gill Bruce Harber Calvin Abram Cardell Orrin Carla Ryan Carol Miller Carter Gray Chad Bowman Charia Jackson Charlie Newman Charlie Santo – Working Group Co-Chair Chelsea Glass Christina Clift Christine Donhardt Clint Richardson Cody Behles Colin McDonald Connie Binkowitz Cynthia Ham Dane Forlines Daniel Ashworth Daniel Pallme Daniel Ward Dave Gramm David Howell Davida Cruthird Dawn Kinard DeAndre Brown Dennis Lynch Dermot Murray Deron Hall Derwin Sisnet Donnell Cobbins Dr. Martin Lipinski Eddie Jacobs Eldra White Elizabeth Ennis Elizabeth Rouse Ellen Roberds Emily Trenholm Eric Bridges Erik Swindle Frank Colvett, Jr. Frank Ricks George Cates Greg Woods Haley Simmons Ham Smythe IV Henry Minor Jackson McNeil James Collins James Simpson James Wells Janet Boscarino – Working Group Co-Chair Janice Banks Jason Jackson Jen Andrews Jenna Thompson – Working Group Co-Chair Jennfier Oswalt Jennifer Marshall Jessica Buttermore Jim Belles Jim Vazquez Jimmie Tucker Joann Massey – Working Group Co-Chair Joe Ozegovich Joel Jassu Joellyn Brazile John Cameron John Cameron John Hochstein John Jackson, III John Lancaster John Lawrence – Working Group Co-Chair John Paul Shaffer – Working Group Co-Chair Johnathan Flynt Jonathan Lombardo Jordan Rudolph Jordan Smith Josh Whitehead – Working Group Co-Chair JT Malasri Juan Self Juanita Ford Boothe Julie Ellis Justin Entzminger Kate Haywood Kathy Cowan Keith Cole Kelly Rayne Ken Milman Kenny Monroe Kerry Roy Kevin Woods – Working Group Co-Chair Kim Grant Brown Kirk Bobo Lan Wang Lar'Juanette Williams Larkin Myers Larry Jensen Larry Smith Lauren Kennedy Lauren Taylor Leo Liriano Les Binkley Levell Blanchard Linda Steele – Working Group Co-Chair Lissa Thompson Lou Conley Luke Yancy Mac Bruce Mack Martin Madeleine Savage-Townes Marcia Lewis Maria Fuhrmann – Working Group Co-Chair Maria Munoz Blanco – Working Group Co-Chair Mark Fleischer Marsha Raus Martin Edwards Mary Wilder Matt Seltzer Megan Higgins Melanie Blakeney Meredith Duvall Mia Madison Michael Boyd Michael Jones – Working Group Co-Chair Michael Shelton Michael Taylor Michelle Stuart Michelle Ye Mihalis (Mike) Golias Mike Fahy Mitchell Lloyd Nabil Bayakly Nathan Ron-Ferguson

ACKNOWLEDGMENTS

WORKING GROUP MEMBERS

Nick Oyler
Nicole Heckman
Nicole Seymour
Nnaemeka (Meka) Eguekwe
Noah Grey
Nora Boone
Patrick Dandridge – Working Group Co-Chair
Paul Schmidt
Paul Young – Working Group Co-Chair
Paula Middlebrooks
Pauline Vernon
Penelope Huston
Peter Nelson
Peter Pace
Phil Coop
Philip Davis
Pragati Srivastava – Working Group Co-Chair
Priyanka Chatterjee
Quincy Jones
Rachel Knox
Randy Richardson – Working Group Co-Chair
Randall Tatum – Working Group Co-Chair
Randy Womack
Ray Brown
Rebecca Hutchinson
Richard Keith
Rita Harris
Ritchie Smith
Robert Knecht
Ronne Adkins – Working Group Co-Chair
Ronnie Brooks
Roshun Austin – Working Group Co-Chair
Rusty Bloodworth
Sabya Mishra
Sajid Hossain
Sandi Klink
Sandra Upchurch
Sara Studdard
Scarlet Ponder
Scott Banbury
Scott Schoefernacker
Sean Healy
Shante Avant
Sheila Cunningham
Siobhan Whitlock
Sonja Owens
Stephanie Ivey
Stephen Edwards – Working Group Co-Chair
Steve Barlow – Working Group Co-Chair
Steve Lockwood
Susan Steffenhagen
Suzanne Carlson – Working Group Co-Chair
Tasha King Davis
Terrence Patterson
Tina Sullivan
Tom Jones
Tom Needham
Tommy Pacello – Working Group Co-Chair
Tony Pellicciotti
Tosha Downey
Tracy Buckley
Tyler Zerwekh
Vaughn Cassidy
Verna Hawkins Lambert
Victoria Van Cleef
Vivian Ekstrom
Yolanda Manning
Youngsang Kwon
Zylavian Watley

COMMUNITY VOLUNTEERS

Alexandra Fountain
Alexandra Harris
Amanda Hill
Amber Adell
Andrea Neely
Andrew Hart
Andrew Mathewes
Angela Hill
Angela McDowell-Baines
Angelica Farmer
Angelica Woods-Smith
Anita Bishop-Anderson
April Avery
Arielle Bryant
Ashley McCall
Ashley Robinson
Alisa Haushalter
Audrey May
Bonnie Good
Brad Rust
Brandon Brooks
Brandon Morrison
Briana Lane
Bridget McCall
Bridgett Bradley
Brittany Petties
Bryden Ward
Byron Cook
Candace Mays
Cari Harris
Carl Garrett
Carnita Atwater
Carolyn Malone
Charles J. Finkley
Chase Thoms
Chee Chew
Chelsea Glass
Chelsea Howard
Cheryl Heard
Chiquita Driver
Connie Binkowitz
Courtney Jones
Daniel Wakefield
Danyelle Carnes
Darah Patterson
Darrin Martin
Daryl Payton
David Groce
Dean Moore
DeAndrea Stone
Deborah Stevens
Deborah Wade
DeQuan Curry
Destinee Hall
Diane Young
Don Autry
Donnell Johnson
Stacy Spencer
Dynesha Clayborne
Eldra White
Elizabeth Burriss
Elvy Rory
Ethan Ferguson
Evan Boulanger
Gremesha Crump
Halima Ingabire
Helen Anderson
Hope Lloyd
Humberto Coronado
Ian Hunter
Iesha Marshall
Jackie Trenthem
Jackson McNeil
Jamal Whitlow
James Kendrick
James Nelson
James Simpson
Jamie Griffin
Jaques Hamilton
Jared Myers

ACKNOWLEDGMENTS

COMMUNITY VOLUNTEERS

Javon McKinnon
Jen Andrews
Jen Krause
Jennifer George
Jeremy Scott
Jeremy Williams
Jessica Mason
Jianyin Roachell
Jimmie Tucker
John Freeman
John Hamilton
John Haynes
John Minervini
John Mitchell
Jonathan Mosley
John Paul Shaffer
Joyce Cox
Joyce Crutcher
Justin Entzminger
Justin Hopson
Kaitlin Grove
Kaje Simpson
Karen Hodges-Hines
Karol Hogan
Kartik Dave
Katrina Kimble
Katrina Robinson- Lee
Keith Staples
Kelvin Bonds
Ken Burns
Kenya Johnson
Kevin Brown
Kristen Schebler
Lamonda Jones
Lavada Wheatley
Lenita Winfrey
Leo Liriano
Libby Ellman
Linda Malone
Lindsay Jackson
Liren Truong
Lisa Dillard
Loretta Owens
Maddy Hirsch
MaEasha Eubanks
Mairi Albertson
Major McNeil
Manny Belen
Margot Alemon
Maria Fuhrmann
Mark Fleischer
Mary Carnes
Maryam Acklin
Matthew Dukes
Matthew Grant
Meagan Rayford
Megan Higgans
Mia Madison
Mickell Lowery
Michaih LeyBayani
Michalyn Easter-Thomas
Molly Lancaster
Myia Nealy
Nadine Smith
Natyl Martinez
Nicholas Oyler
Nidia Logan-Robinson
Nikki Lekhy
Olivia Wilmot
Olor Hughes
Pamela Kiestler
Pat Myers
Patrice Christopher
Patrice Thomas
Patrice Woods
Paul Young
Quincey Morris
Rachel Knox
Ramona Dukes
Randall Thomas
Rayle Hudson
Reagan Drake
Rebecca Hutchison
Rick Abuan
Rick Middlebrook
Robert Hicks
Ryan Mathis
Sally Parrish
Sara Burnett
Scott Guidry
Sharon Evrard
Sheldon Dan
Shelia Massey
Shreya Rangampally
Sophie Kennedy
Sophorn Kuoy
Stacee Zebb
Stacey Smith
Stacy Spencer
Stephanie Bobo
Stephen Edwards
Steve Lockwood
Students of the University of Memphis City and Regional Planning Department
Suzanne Carlson
Syntrell Tate
Tanja Mitchell
Tenisha Harris
Theresa Perkins
Tiffany Casey
TK Buchanan
Tonya Sevion-Cole
Tracey Goodman
Ty Georgeadis
Valentina Henao
Vanessa Braggs
Verlinda Henning
Virgie Banks
Virginia Oceguera
Wesley Williams
Whitney Sykes
Willie Ward Jr.
Yvonne B Acey
Zachary Brian
Zylavian Watley

ACKNOWLEDGMENTS

COMMUNITY AND CITYWIDE PARTNERS

Agape Child & Family Services

Alcy Ball Development Corporation

BLDG Memphis

Boys & Girls Club of Greater Memphis (BGCM)

Bridges USA

Center for Transforming Communities

Community Alliance for the Homeless

Frayser CDC

Gestalt Community Schools

Girl 24

Greater Whitehaven Economic Development Corporation

Heights CDC

Hillcrest Mitchell Heights Neighborhood Association

J.E.S. Community Development Corporation

Juice Orange Mound

Klondike-Smokey City CDC

Knowledge Quest

Latino Memphis

Leadership Memphis/ Volunteer Memphis

Mallory Heights CDC

Memphis Center for Independent Living (MCIL)

Metropolitan Inter-Faith Association (MIFA)

Memphis Medical District Collaborative

Memphis Urban League

Midtown Memphis Development Corporation

Mt. Vernon Baptist Church

Neighborhood Christian Center (NCC)

New Chicago Community Partnership Revitalization CDC

New Memphis Institute

Power Center CDC

Raleigh CDC

RedZone Memphis Inc.

Soulsville Neighborhood Association

Southeast Memphis CDC

Street Ministries

The Stone CDC

The Works CDC

University of Memphis Design Collaborative

Uptown Community Association

Urban Art Commission (UAC)

Urban Land Institute (ULI)

Vollintine Evergreen Community Association

Westwood High School PTSA

WITH SUPPORT FROM

City of Memphis 311

City of Memphis Division of Housing and Community Development

City of Memphis Office of Community Affairs

City of Memphis Division of Engineering

City of Memphis Office of Performance Management

City of Memphis Division of Public Works

Innovate Memphis

Memphis and Shelby County Department of Regional Services (Metropolitan Planning Organization)

Neighborhood Preservation Inc.

Memphis and Shelby County Office of Planning and Development

Memphis and Shelby County Office of Sustainability and Resilience

Memphis Area Transit Authority

Economic Development Growth Engine for Memphis and Shelby County

Memphis and Shelby County Community Redevelopment Agency

Downtown Memphis Commission

City of Memphis Division of Parks and Neighborhoods

CITY AND COUNTY STAFF

John Zeanah, AICP Director Memphis and Shelby County Division of Planning and Development

Nidia Logan-Robinson Deputy Director Memphis and Shelby County Division of Planning and Development

Ashley Cash Administrator Office of Comprehensive Planning

Antoine Hawkins

Angelica Carey Municipal Planner

Bradyn Carson Municipal Planner

Faria Naz Urmy Intern Masters Candidate Dept. of City and Regional Planning University of Memphis

Jennifer Brady Municipal Planner

Melanie Batke Municipal Planner

Roger Ekstrom Municipal Planner

Shepperson Wilbun III

Vivian Ekstrom, AICP Planning Manager Memphis-Shelby County Office of Sustainability

ACKNOWLEDGMENTS

PRINCIPAL CONSULTANT

OPTICOS DESIGN INC.

CONSULTANTS

TECHNICAL ADVISORS

IN MEMORIAM

FUNDERS

LOCAL DESIGN & PLANNING ASSISTANCE

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Contents

Acknowledgments 2

Our Third Century 10 Introduction 11 Plan Overview 14 Our History Shapes Our Future 16 Memphis Today 24 The Community Speaks 32

Our Framework For Change 46 Creating Places for People 47 Our Strategy: Focus on Anchors 52 Cultivating Change 62 Using The Plan 72 Land Use Categories 74 Street Typology and Design 122 Implementation 151 Measuring Success 153

Plan Elements 154

District Priorities 242

Sustaining Our Future 400 Conclusion 401

Appendix A: Transit Vision Report A-1

Appendix B: Small Area Plans B-1

Appendix C: System Plans C-1

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PART ONE:

Our Third Century

Introduction

VISION STATEMENT

IN OUR THIRD CENTURY, MEMPHIS WILL BUILD UP, NOT OUT.

Memphis will be a city that anchors growth on strengths of the core and neighborhoods; a city of greater connectivity and access; a city of opportunity for all.

Memphis can be described in many ways: A city of hard-working, multi-cultural, dedicated people. A city of historical slow growth. A city of giving. A city of grit and struggle. A city with historic significance. A city with a will for greatness. A city of sprawl and low density. A city determined to change. A city with momentum.

Change in a city is inevitable, but residents have the ability to shape the future through participation in the Memphis 3.0 Comprehensive Plan. Much of the way Memphis functions and looks today is a result of actions taken in its second century, from racial segregation and suburban sprawl, to low population growth. But today, Memphis turns the page to its third century with a historic momentum and focus on growth and change.

Since 1970, the City added only 4% more people, but nearly doubled in physical size, resulting in more land and infrastructure like roads, and sewers to maintain, and a lack of population and revenue to support it. Memphis 3.0 provides a comprehensive vision to support existing residents, attract new residents and visitors, and reduce some of the inequities the City has faced since the last general plan was completed in 1981.

For a city that has historically developed based on a growth policy of physical expansion through suburban sprawl and annexation, creating a collaborative vision and following a strategic plan to support the growth and reinvestment of the core city and neighborhoods is a bold step forward. This underscores the importance of the robust and authentic community engagement conducted through the planning process that involved more than 15,000 Memphians.

The Memphis 3.0 Comprehensive Plan is a roadmap for how the City can grow over the next 20 years and in our third century. The plan calls for redevelopment and reinvestment in anchor areas in the core city and neighborhoods, connectivity of people, jobs, businesses, and infrastructure, and expanding equity and opportunity to communities across the City.

To realize the vision of Memphis 3.0, the Comprehensive Plan, it will take everyone.

Comprehensive plan, a general plan designed to guide future growth and actions of a city.

INTRODUCTION

Making of the Plan

For almost 40 years, Memphis has not had a comprehensive plan that sets the City's vision for the future and provides a roadmap for development and improvement. The lack of an updated comprehensive plan allowed Memphis to drift through this period, following an outdated model of growth by physical expansion and annexation. The results are flat population supported only by rapidly growing land area, disinvestment in older areas of the City, and the thinning of resources across a larger physical footprint. Under the leadership of Mayor Jim Strickland, residents, leaders, and stakeholders have developed ambitious, but realistic, strategies for improvement.

The distinctive benefit of a comprehensive plan is that it provides a guide to tackle major issues identified through research, trends, and conversations with stakeholders and residents. In 2019, Memphis will enter its third century with an adopted plan for growth, development, and prosperity.

Memphis 3.0 is a comprehensive plan that aims to transform Memphis into a more prosperous and inclusive city by guiding growth and policy for the next 20 years.

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Desired Outcomes

• The future growth strategy based on anchors and future land use that predicts where investments like housing, infrastructure, and transportation should be made;
• A future land use planning framework aligning development types with neighborhood context, investment potential, and community desires;
• A strategic framework to meet aspirational goals with actions to achieve those goals;
• District plans that recommend opportunities for action;
• A guiding framework for investment in infrastructure, public transit, and civic space that supports efforts to attract and guide growth and investment;
• A guide for City divisions, public agencies, and nongovernmental partners to focus resources and effort in coordination to achieve the plan's vision.

Legal Basis

Under Section 13-4-201 of the Tennessee Code Annotated (the "TCA"), it is the function and duty of a city's planning commission to make and adopt an official general plan for the physical development of the City. Under Joint Resolution and Ordinance Number 2524 approved by the Memphis City Council (the "Council") and Shelby County Quarterly Court on November 15, 1976, the Memphis and Shelby County Land Use Control Board (the "Board") serves as the planning commission for the City of Memphis and the County of Shelby.

TCA Section 13-4-202 provides for the manner in which a general plan is adopted by the Board and the Council. TCA Section 13-4-202(B)(2)(B)(iii) states that, once the general plan is adopted by the Council, all land use decisions in the City shall thereafter be consistent with the plan. For the purposes of defining "consistency," only those elements of the plan related to land use decisions become effective pursuant to the guidance on Pages 72 and 73 of this document. All other sections of the plan are intended as a guide and only for planning purposes. Planning documents adopted into the appendices of the Comprehensive Plan are advisory only and not subject to consistency review.

Due to the time and effort involved in the Memphis 3.0 planning process and the importance of the content, the City desires the plan be adopted by the Land Use Control Board and the Memphis City Council.

Guiding Values

The three plan elements: land, connectivity, and opportunity represent the articulation and culmination of community values that set the foundation for the Comprehensive Plan. The Build Up, Not Out, vision aims to cultivate a sustainable and thriving City that is connected and provides opportunity for all. As plan implementation and land use decisions are enacted, the City should emphasize these core themes to ensure that the recommendations related to growth, sustainability, land development, transportation, and opportunity are positively impacting the City's future. The values expressed by the community through the planning process served as the basis for the plan's vision statement and three plan elements.

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Memphis is a city that VALUES LAND AS AN ASSET. Memphis cannot continue its growth policy of the past. The City will succeed by creating compact communities where land use and density support walkable, active, and transit-served communities.

• Growth in priority redevelopment areas supporting higher density, infill, and mix of uses
• Growth in areas with better transit access
• Growth in business, retail, services, and employment
• Reduced blight and vacancy
• Improved park and greenspace access
• Safe and walkable neighborhoods
• Enhanced neighborhood character
• Protection and enhancement of natural resources and environmental systems

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Memphis is a city of CONNECTED COMMUNITIES. Memphis communities desire greater connectivity and access. For Memphis to thrive, it must expand residents' ability to connect to mobility options, opportunity, and one another.

• Greater access to jobs and businesses for all
• Better access to efficient and reliable public transportation
• Greater access to greenways, bikeways, sidewalks, and other modes of active transportation
• Greater use of existing infrastructure capacity to service growth in development and density
• Readiness for change in technology in City infrastructure

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Memphis is a city of EQUITY AND OPPORTUNITY. Through actions, investments, and citizen-led neighborhood interventions, historically disadvantaged communities must gain greater access to resources and opportunities to succeed and prosper.

• Improved quality of life and economic competitiveness to attract, retain, create, and expand businesses
• Improved access to quality employment, education, and training
• Increased support and resources for small developers and emerging entrepreneurs
• Improvement in middle-class wages and wealth building
• Development without displacement for communities with infill opportunity
• Greater mix of housing types to ensure households at all income levels have affordable, quality options
• Reduced energy burden, especially for those with fewer means

Plan Overview

How the Plan is Structured The Memphis 3.0 Comprehensive Plan is structured into four distinct parts that synthesize the major findings and recommendations. Throughout the two-year planning process, technical studies were generated to provide baseline information related to employment and population projections, neighborhood investment, market potential, and more. Additional studies were conducted to provide detailed information on topics such as housing or transit. The major findings from all studies are included throughout the Comprehensive Plan document.

Plan elements includes goals and objectives based on community values.

Part One: Our Third Century This section discusses the historic development of the City and delivers background context relating to Memphis' demographics and projections needed for recommendations of future growth. Also included in this section is the summary of the two year planning process with details on community engagement and outreach.

Part Two: Our Framework for Change This section presents the plan's theory of change: concentration of density and investment focused in the core and neighborhood anchor areas provides the greatest opportunity for growth and strategic community improvement. The land use framework and street typology should serve to guide future decisions on land use and transportation. Page 46

Part Three: Plan Elements This section includes the major elements that guided public decision-making. The section is comprised of the three elements - Land, Connectivity, and Opportunity. It encompasses Citywide goals, objectives, and recommended actions that support the Build Up, Not Out vision. Page 154

Part Four: District Priorities Each community has unique strengths to build on and major priorities to address. This section shares the community-developed vision and priorities for each of the 14 planning districts, recommendations for land use, and implementation priorities. Page 242

Special Appendix: The Memphis 3.0 Transit Vision (Jarrett Walker and Associates, MATA, Innovate Memphis) was developed to study the current transit network. Through a public process, a revised network was developed that promotes higher frequency. The investment needed to implement the new network was identified as well.

Available on the web, the Market Analysis for Comprehensive Plan (RCLCo, Universal Commercial) provided household, employment, and growth outlook through 2040. The report evaluated housing market strengths to project future housing needs and provided market outlook (or demand) based on land use. A supplementary Fair Share Housing Comparison was conducted to analyze the share of households in Memphis by age range and income relative to all households in Shelby County. The Memphis Technical Report (Strategic Economics) presented a detailed analysis of household change over time, neighborhood reinvestment, employment trends and job access, and commercial land use investment. This report also compared the spatial distribution of public infrastructure investments. The Memphis Residential Market Potential Report (Zimmerman Volk and Associates) includes a migration and mobility analysis to project housing demand based on market potential, income and life stage.

Who will use the plan?

The success of the Memphis 3.0 Comprehensive Plan comes from community-wide adoption, use, and support. Stakeholder groups that helped to create and inform the plan include elected officials, City and County divisions and agencies, developers and investors, community-based organizations, philanthropic organizations, and the public. Continued support and use of the plan by these stakeholder groups is essential to the plan's impact on the future of Memphis.

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Elected Officials

City of Memphis and Shelby County Government leadership should continue to demonstrate commitment to the plan's principles and recommended actions. Legislative bodies of the City and County should adopt the plan and ensure consistency in applying the plan to land use decisions.

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Divisions & Agencies

City and County Division and Agency directors should familiarize themselves with the plan recommendations. Policy and investment decisions should be guided by the plan, and implementation should be carried out through systems planning or participation in small area planning.

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Developers & Investors

For-profit and non-profit developers should consult the plan regarding recommendations for land, connectivity, and opportunity. The plan provides guidance on desired forms, uses, and character of development in and around anchors, in addition to other areas of the City.

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Community-Based Organizations

Community organizations can use the plan to advocate for the recommendations in the plan framework, including the land use plan, the plan elements, and the district priorities. Community organizations will be key partners in implementing many of the recommendations in the district priorities.

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Philanthropy

Philanthropic and charitable organizations are key partners in investing in community development, particularly in areas with low market potential. These organizations will be important partners with the public sector in supporting recommendations in Nurture and Accelerate anchors of the City.

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Public

Our greatest asset, over 15,000 Memphians contributed to the creation of the Memphis 3.0 Comprehensive Plan. The people of Memphis are the experts on their neighborhoods and should continue to shape implementation through their advocacy, actions, and partnership with the City.

OUR HISTORY SHAPES OUR FUTURE

The timeline shows notable events over the City's first two hundred years, capturing the major eras of economic development and population growth.

1819

1819 Memphis is founded by John Overton, James Winchester, and Andrew Jackson. Memphis was one of the first planning communities west of the Alleghenies

1826 Memphis is incorporated.

1857 The Memphis and Charleston railroad is completed, connecting the Mississippi River to the Atlantic Ocean.

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1862 Battle of Memphis: two-hour naval battle after which Memphis surrenders to federal forces.

1873 Alexander H. Dickerson is the first African American elected to the Memphis City Council.

1878 25,000 flee Memphis and 5,000 killed from the City's latest Yellow Fever Epidemic, later initiating a major sanitation reform.

1880 Memphis loses its charter and becomes a taxing district as a result of yellow fever epidemics. It regained home rule in 1883.

1899 Memphis annexed the town of Idlewild as part of "Greater Memphis Movement."

1900 First automobile introduced in Memphis. Commercial Appeal editorializes about this "new danger."

1901 George Kessler plans Riverside Park, Overton Park, and the Parkway system.

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1910 Commission form of City government established.

1916 Harahan Bridge opens, connecting Memphis to the west.

1919

1922 Memphis adopts first zoning code in the state.

1924 Memphis adopts first comprehensive city plan from Harland Bartholomew.

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1935 Riverside Drive opens.

1949 Memphis and Arkansas Bridge completed.

1962 St. Jude Children's Research Hospital established by entertainer Danny Thomas.

1965 Memphis establishes Mayor-Council form of government.

1968 Two sanitation workers are crushed leading to the sanitation workers' strike. On April 4, 1968, Martin Luther King Jr. is assassinated at the Lorraine Motel after giving his "I've Been to the Mountaintop" speech at the Mason Temple the day before.

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1971 Memphians save Overton Park.

1972 Buses are ordered by Federal Judge to ensure full desegregation of Memphis City Schools.

1973 FedEx Corporation moves its operations to Memphis.

1819 308 population ⬚ figure 0.44 square miles

1869 40,226 population ⬚ figure 4.6 square miles

1920 162,351 population ⬚ figure 24 square miles

2019 Our History, Our Future

1979 First AutoZone opens.

1981 Memphis 2000 Policy Plan adopted.

1991 The National Civil Rights Museum opens.

2016 Memphis 3.0 planning process commences.

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Starting in 1851, the City of Memphis began annexing land adjacent to its city limits. This pattern continued over the next 150 years, adding considerable population growth to the City through the 1970s. Since that time, population has generally remained flat, growing only 4% over the last five decades. In order to sustain the population of approximately 640,000 residents, Memphis continued annexation through the 21st century. Today, the City is approximately 324 square miles – 55% larger than the City's size in 1970.

Cotton and Transportation (1850-1890)

During the mid to late 19th century, Memphis served as the major economic and political center for the upper Mississippi Valley. The key drivers for this economic activity were the City’s prime intersection at three states (Arkansas, Mississippi and Tennessee), major rail and water transportation options, and the region's large cotton plantations and slave trade that supported the plantations. Transportation improvements in the 1850s through the 1880s, including the development of the interstate railroad system and the local streetcar system, helped consolidate the City's economic importance into a grid pattern set out by the City's founders, establishing the City's Downtown.

The Civil War had a major impact on Memphis, resulting in a migration into the City of thousands of former slaves fleeing plantations and farms. Memphis also got its start as a major medical center during this period with the establishment of one of the first hospitals for military veterans in the U.S.

Industrial Expansion Fosters Growth within the Parkways (1890-1920s)

Starting in the early 1890s, Memphis solidified its position as a regional powerhouse for production and trade by the addition of manufacturing of wood products and continuing to expand cotton processing. A large part of this success was due to the City's excellent transportation connections

to the rest of the U.S. and the world. By 1920, Memphis also had one of the largest medical complexes that included several thriving hospitals. Throughout this period, the City experienced steady population growth, largely within the boundaries defined by the original parkway system designed by George Kessler in 1903. Neighborhood development during this period was generally characterized by a walkable street network focused around the streetcar system.

Rapid Outward Expansion (1920s through late 1960s)

During this time, the City experienced significant employment growth in the industry and institution sectors. The Firestone Plant opened in 1936, which employed 3,000 workers at its peak; the Defense Depot opened in 1942, employing 5,000; International Harvester opened in 1958, employing 2,000; and in 1962, St. Jude Children’s Research Hospital, which today employs more than 4,000 people. Robust employment opportunities drove population growth out of the traditional city parkway system and included annexation of new suburban neighborhoods. As the City’s boundaries spread outward, new neighborhoods were increasingly built to be more auto-oriented and included large lots, cul-de-sacs, and retail limited to shopping centers and major arterials.

The late 1950s also saw the beginning of urban renewal, resulting in the demolition of “slum” housing (and in some cases middle or upper income African American neighborhoods and cultural centers like Beale Street). These were replaced with public housing, businesses, and parking lots or sometimes left vacant. Building on a long history of struggles for racial equity in Memphis, the Civil Rights Movement also came to the forefront during this period, propelled by the fight for school desegregation, the sanitation workers strike, and the assassination of Dr. Martin Luther King, Jr. in 1968.

Post-Industrial Memphis (1970 through 2008)

Like many other cities in the U.S., Memphis saw a decline of manufacturing employment beginning in the 1970s. While manufacturing remained an important part of the economy, new job growth was increasingly driven by other sectors. Most notably, the City emerged as a transportation and logistics hub, starting with the opening of FedEx near the Memphis International Airport in 1973. As in previous eras, the City’s central location within the U.S. and transportation infrastructure continued to be key assets driving growth. With the shift away from river and rail-based trade toward air-based shipping, jobs moved from the Mississippi River, the Port, and the railroads to the airport in the City’s southeast.

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Image shows a bustling Madison Avenue in the 1920s. Historic-Memphis.com.

Employment in retail and the service sectors also increased rapidly during this period, with new office and retail space increasingly located to the south and east.

This shift in Memphis’ economy was accompanied by changing neighborhood dynamics. Many older neighborhoods lost population and households, while growth continued to occur in the suburbs. Continued annexations of new suburban neighborhoods helped maintain the City’s population at around 650,000 from the 1970s on. In addition to economic factors, this pattern of outward expansion accompanied by disinvestment in existing neighborhoods was also related to complex social and political factors. Some of these factors include the demolition of housing in the core due to urban renewal (which continued into the 1970s), City and County Government policies that facilitated suburban development and annexation by expanding urban services to undeveloped land, and the departure of many white households to the suburbs in response to school and neighborhood desegregation. It was during this time-period that the City’s last comprehensive plan,

OUR HISTORY SHAPES OUR FUTURE

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Memphis 2000 Policy Plan Map. Blue outline shows urban service boundary recommended by the 1981 Comprehensive Plan.

the Memphis 2000 Policy Plan, was adopted in 1981 by the Memphis City Council and the Shelby County Board of Commissioners. Memphis 2000 recommended a series of policies relating to economic development, land use, housing, transportation, and public facilities. One of the core recommendations that drove policy development in the Memphis 2000 Plan was the creation of the Urban Service Boundary (USB) which allowed for outward, sprawling growth beyond the City's current jurisdiction. From 1995 to 2007, nearly 60,000 new single family homes were built in Memphis and unincorporated Shelby County. Of those built in unincorporated areas, many were annexed into the City during this period.

Throughout this time period, civic and community leaders began to set the stage for the revival of the City center, with historic preservation efforts and infrastructure projects like the development of the Downtown trolley system, tourism and entertainment projects like Mud Island and the Pyramid, and the redevelopment of Beale Street. Beginning in the 1990s, the Memphis Housing Authority began to redevelop the City's public housing as mixed-income developments under HUD's HOPE VI Program, resulting in renewed interest in living in and around Downtown, and the relocation of some of the original low-income residents.

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Map from City of Memphis 2017 presentation on "Right-sizing Memphis." The map identified areas that could potentially be de-annexed based on their original year of annexation.

Great Recession and the End to Annexation (2008-2016)

The 2000s saw an acceleration of de-industrialization, culminating in the Great Recession (2008-2011) which resulted in major job losses in manufacturing, transportation and logistics, as well as in other sectors. While the overall Memphis economy has regained the jobs lost during the recession, the recovery was driven by the service sector (including health care, accommodation and food services, and administrative and support services). Transportation and logistics employment has grown since 2011, but total employment in this sector remains below pre-recession levels. At the same time, manufacturing employment has continued to decline.

The Great Recession also saw a dramatic slowdown in the pace of Memphis' outward growth. Since the end of the recession in 2011, local and state policy changes have made it much more difficult to continue the pattern of growth through annexation. As annexations have slowed, Memphis' population has increased slightly - reaching a high point of 657,000 in 2015, with much of the recent growth occurring within the City's existing boundaries. While new single family home development has slowed considerably from an annual average of more than 4,000 between 1995 and 2007 to an average of 900 between 2008 and 2016, multifamily and mixed-use development has rebounded.

OUR HISTORY SHAPES OUR FUTURE

De-annexation and a New Era of Development (2016 to present) In 2013, the City's ability to easily annex land became more difficult with the passage by the Tennessee State Legislature of Public Chapter 441, Acts of 2013, which established an annexation moratorium through May of 2014. Following that, Public Chapter 707, Acts of 2014 was enacted which voided the City's authority to annex land without written consent from property owners in the affected area or without holding a referendum. Since then, the City has evaluated the financial impact of de-annexation in an effort to respond to community desire and to promote sustainable, urban growth.

At the time of the production of this plan, the City has moved forward with the deannexation of the Eads and River Bottoms areas effective January 1, 2020, and the Southwind-Windyke, Rocky Point, and South Cordova areas effective January 1, 2021. The net result of these deannexations is a decrease in population by 1% and a reduction in land area by 10%. Alongside these actions, in 2017, the City discontinued the extension of sanitary sewer infrastructure outside the City of Memphis corporate boundaries, aligning with the Build Up, Not Out vision of this plan.

This effort to strategically shrink the City's physical footprint coincides with historically high reinvestment and construction activity. In 2018, Memphis saw over $1.5 Billion invested in combined residential and commercial construction, marking the fourth straight year of over $1 Billion in construction activity. With more in the pipeline, the early years of implementation of Memphis 3.0 will be part of the City's recent development boom.

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The map above shows the chronology of annexations for the City of Memphis, with darkest being the oldest annexation areas and lighter colors representing the newer annexation areas.

Photo: David Roseberry

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633,104

Population in 2020

US Census Bureau 2020

I love Memphis' soul and genuine authenticity. Low cost of living. Opportunity! -survey respondent

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12.4

Visitors per year (in millions)

Memphis Convention & Visitors Bureau Annual Report 2019

Memphis is a green city and there is so much to do. -survey respondent

100

Miles of Greenways

MidSouth Greenprint

46%

Home Ownership

ACS 2019, 5-Year

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The people - it’s Memphis’ greatest strength. There are a lot of people that really want the best in this city.. -stakeholder respondent

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#1

City for Black Entrepreneurs

Fast Company Magazine

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44

Daily Transit Routes

MATA

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15,000

People engaged in 3.0 process

Office of Comprehensive Planning

"The best things about Memphis are the climate, trees, water quality, overall cost of living, a revitalized downtown. -survey respondent

Memphis 3.0

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"I live right next to the University of Memphis and the best thing is the walkability. -survey respondent

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41,700

Number of Minority Owned Businesses

The 800 Initiative

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9,145

Acres of Park land

The Trust for Public Land

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34

Median Age

ACS 2019, 5-Year

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"Memphis has smart, genuine people. -survey respondent

Our Third Century

Memphis Today

Population and Households The City's current population is approximately 650,000 residents (251,000 households). The City's population increased from 646,000 to 660,000 since the last comprehensive plan was developed in 1981, falling to its lowest population during that period in 1990 at 610,000. Memphis' population is projected to increase 10% by 2040, representing the largest increase since 1960. Household growth is projected at 0.4% per year for Shelby County, with Memphis' share of that equating to approximately 74% by 2040. On average, that is about 1,300 new households per year in the City between now and 2040. This provides the opportunity to direct population growth in a way that supports existing neighborhoods, employment centers, available infrastructure, and the transit system.

Memphis’ population is projected to increase 10% by 2040.

Age and Population Although there are a lot of young people in Memphis, nearly 70% of all households have no children under the age of 18. While many families make housing decisions based on proximity to a preferred school, this data is evidence that most people make housing decisions based on other preferences. A study conducted for the Comprehensive Plan by Zimmerman Volk & Associates estimates that 52,000 households, or one-fifth of all Memphis households, move within the City annually, representing significant churn within the market. Demand exists within the City, but preference and quality to meet the needs of housing consumers must be addressed by existing and new supply of housing.

The City has historically lagged behind surrounding communities in Shelby County in attracting and retaining middle-age and middle-income households. Memphis attracts more than a fair share of households of individuals under 35, but as residents age, many choose to move elsewhere. Providing a broad range of housing types and addressing quality of life factors, particularly in areas that succeed in attracting households of individuals under 35, will be important for Memphis to maintain a fair share across age and income segments.

Fair Share Analysis. Shown above is the share of households in Memphis compared to all of Shelby County by age and income segments. Chart Source: ESRI, RCLCo.

The population of Memphis is aging. Nearly 23% of Memphians are 55 or older. As the 2040 plan horizon approaches, individuals 35 years and older today will begin to shift toward retirement age. Research shows, on average, men and women in the U.S. live five years longer than in 1980. There is demand today for different housing options to address accessibility needs of older adults. As preference grows for people to live in smaller units, redevelopment of existing housing stock and new development should include more townhomes, condominiums, or apartments. Zoning changes that encourage accessory dwelling units (ADUs), multi-family housing, and mixed use are critical in supporting older adults to remain in existing communities or live near family. Development should be encouraged in areas with greater walkability and access to transit to accommodate a range of population groups, including an aging population.

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Educational Attainment. Shown above is educational attainment for the population 25 and older in the City of Memphis in 2015. Most of the population 25 and older has at least a high school diploma or equivalent. Chart Source: ACS 2015 5 Year 2015.

Educational Attainment The education levels of Memphis residents have increased significantly over the past decade and a half, although overall educational attainment is low compared to national averages and peer cities. Between 2000 and 2015, the number of Memphians with less than a high school degree decreased by 28%, while those with a bachelor’s degree or higher increased by 21%. Despite the gains in educational attainment, Memphis still had a relatively smaller number of college-educated workers compared to the U.S. in 2015 and lower wages relative to national wages. Of the top 20 occupations in the Memphis region, fewer than half of Memphians are paid a median wage of $30,000 or higher in 2016.

Poverty/Low Income Levels High foreclosure and bankruptcy rates, low household incomes, and other factors have created a situation in which many households in Memphis struggle with financial instability. Compared to the State of Tennessee and Nashville, the poverty rate is ten percentage points higher and median incomes are almost $15,000 lower in Memphis. Demographics in areas of highest vacancy show incomes lower than the median household income for the City. This underscores the need for policies and actions addressing equitable economic development, decreasing household costs, improved transit service, and increased access to opportunity.

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Social Equity. The map shows poverty and social inequity. The lighter the color, fewer jobs available and social equity is a concern. (Source: ESRI; Greenprint 2014).

Existing Land Use and Density The City’s development patterns have led to segregated land uses with a significant amount of land used for single family residential. About 60% of all housing within the City is single family detached. The City’s zoning and segregated uses has put more burden on the average resident attempting to conduct his or her day-to-day business. According to the 2015 5-year American Community Survey (ACS) estimates, on average, it takes a Memphian 22 minutes to travel to work, putting more of a financial and quality of life burden on individuals. For those that use public transit, most have a commute of 60 minutes or more.

Low density and sprawl in Memphis have left the City and its 650,000 residents with infrastructure challenges related to maintenance and upgrades. Compact building design within existing communities can take advantage of existing infrastructure like roads, sewers, and public assets (like parks, schools, etc.). By increasing density and reducing land consumption, the City can reduce municipal capital spending. Even as the City explores de-annexation for certain areas, the population density remains low when compared to other major cities. Other associated costs of density are social in nature, people spend more time traveling from place to place as opposed to enjoying spaces and time with their friends, colleagues, and family members.

In some planning districts where density is higher than the City average (like Lamar, Jackson and Core districts), infrastructure could

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Population Density. The above map represents people per square mile for the City of Memphis from 1990 to 2015. As the City grew and spread out over the years, density has decreased. Chart Source: US Census Bureau 1990, 2000, 2010; ACS 2015 5 Year 2015.

Existing Land Use

The map below shows existing land use by parcel.

• Residential
• Commercial
• Industrial
• Institutional/Civic
• Recreation/Natural Resources
• Transportation/RR/Utilities
• Vacant Land

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be improved by additional investments that support walkability, multimodal transportation options, and compact development. In more suburban areas with small pockets of medium to high density (like Frayser and Hickory Hill), more significant interventions would need to occur to improve connectivity and support transit access.

The built environment, including public spaces, can shape and support health outcomes. These amenities can come in the form of parks, open spaces, cultural institutions, and public art. However, not all are accessible for all Memphians nor are they the same quality in every neighborhood. It is essential that all Memphians have equitable access and high quality vibrant civic spaces to support health outcomes and social cohesion.

Housing Stock

More than 52% of the City’s housing stock (this includes single family and multi-family residences) was built before 1969. As the number of housing units in Memphis increased over time, household growth was too slow to generate sufficient demand for the older houses in older parts of the City. Costly housing maintenance and resulting neighborhood deterioration prompted individuals with the financial means to move to newer neighborhoods in the eastern part of the City. This is especially true along the North and South corridors of the core city where home repairs have become too costly without financial assistance for those with lower incomes.

Research shows a correlation between aging housing stock and energy burden. Individuals who live in areas with homes built in the 1950s and earlier face higher energy burdens, or pay more for utilities and water usage, than others in the City. A report released by the American Council for an Energy-Efficient Economy (ACEEE) found that Memphis households pay 6% of their annual income on energy costs, higher than any major city in the nation. In lower income communities, average energy costs equate to 13% of annual income.

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Vacant land by land use. The map above shows vacant land by land use based on existing zoning districts (78 square miles of vacant land). This excludes open space zoning like floodways, conservation, agriculture, etc. Source: Shelby County Assessor Parcel Data, 2016; Bluff City Snap Shot 2015.

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Land Use by Land Area. The chart above shows land use by land area in the City of Memphis. Over half of all land in the City is either residential or vacant land.

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Year Built. The above chart represents the year built for homes in the City of Memphis. The majority of homes in the City were built between 1950 and 1979.

Vacancy and Blight As homes were built and occupied in newer subdivisions in the ever-expanding fringe of the City, many of Memphis' older neighborhoods experienced significant vacancy and blight. Most unoccupied buildings of various uses (residential, commercial, and industrial) throughout the City are suffering from structural issues and deferred maintenance further contributing to the overwhelming number of vacant and blighted structures. A vacancy rate of 16% for housing units, 10% for other uses (office, industrial, and retail space), and 56 square miles of vacant land has left the City with areas with weak housing markets and low demand. Blight comes not only in the form of unoccupied, unmaintained structures, it can include vacant lots, high weeds and grass, substantial amounts of trash scattered in a neighborhood, or illegal dumping. In the fall of 2016, it was reported that 48,452 parcels (about 13%) in the City have an indicator of blight.

Housing Affordability Nearly half of households spends more than 30% of their incomes on housing (the standard measure for housing affordability), indicating a need for not only more affordable housing, but a balanced market approach with a focus on housing affordability, type, and quality. Often, people with disabilities will require affordable housing options with universal design to meet their needs. Memphis can expect about 1,300 new households per year between now and 2040. Of the new households projected to choose Memphis as their

Universal Design, the design of buildings, products, or environment to make them accessible to all people, regardless of age, disability, or other factors

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Housing Value. Housing value is the ACS respondent's estimate of how much the owner-occupied property (house and lot, mobile home and lot, or condominium unit) would sell for if it were for sale or the "price asked" if it is on sale. Source: ESRI; ACS, 2015)

home, research shows an overwhelming preference for multifamily units (47%) followed by a split demand for renovated single family housing stock and new single family construction (24% and 23% respectively). A market analysis completed for the plan indicates a surge in interest for single-family attached housing, creating room in the market for missing middle housing and increasing density and affordability in strategic areas of the City. Missing middle housing is a range of multi-unit or clustered housing types compatible in scale with single-family homes that help meet the growing demand for walkable urban living. Examples include duplexes, triplexes, fourplexes, and cottage courts similar to the mix of building types that can be found in older areas of the City.

With more than half of Memphians being renters, it is pertinent that renters and their needs are included within the market approach. According to a 2016 Report by the Memphis Division of Housing and Community Development, there are 4,200 rental units in the City that are considered substandard housing.

Homeownership

Homeownership, a key mechanism for building and transferring wealth, has declined in most parts of the City. The overall share of Memphis households who own their home was 46% in 2019 (a 3% decrease from 2015) while homeownership rates for the U.S. were nearly 64% during that same time period. The decline in homeownership was not uniform across the City; it was experienced primarily by African-American households and located more in certain districts than others such as Frayser, South, Jackson, and Oakhaven-Parkway Village. These factors increase the difficulty for the majority of Memphis’ population (African-Americans and other people of color) to build and transfer wealth and move out of poverty.

Economic Outlook

Memphis is home to FedEx World Headquarters, St. Jude Children’s Research Hospital, AutoZone World Headquarters, and International Paper World Headquarters, among other business and industry leaders. Today, the transportation and warehousing sector is the major industry driving the Memphis economy, with additional specializations in health care, medical technology manufacturing, other selected manufacturing industries, and tourism. For many decades, Shelby County has held a dominant position in the transportation and warehousing sector as compared to the U.S. and peer regions; however, in recent years, other regions have outpaced Memphis in job growth in this sector. Memphis also has specializations in administrative and support services, specialized medicine, medical technology manufacturing, resource-intensive manufacturing and materials processing and manufacturing.

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Median Household Income. The chart above represents the median household income for the City of Memphis from 1980 to 2015 compared to the national median household income. The income amounts are adjusted to reflect 2015 dollar values. Chart Source: US Census Bureau 1980, 1990, 2000, 2010; ACS 2015 5 Year

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Transportation, Warehouse, and Wholesale Employment, 2014. The map above shows concentrations of the current transportation and warehousing industry. Source: Strategic Economics, 2017; Longitudinal Household Employment Dynamics, 2014.

MEMPHIS TODAY

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Market-Driven Residential Investment Shed. The map above highlights the potential population and employment growth area (in yellow) based on past trends. Blue and red dotted lines illustrate where industrial and office development is likely to occur. Green dotted lines indicate areas of potential residential stabilization.

food and beverage manufacturing, and tourism and entertainment.

In addition, the City is taking steps to diversify its economy by attracting knowledge-based jobs. Compared to the U.S. and peer regions, Memphis has a relatively low percentage of jobs in professional services, information, finance, and management, but there have been signs of progress in recent years. These knowledge-based sectors are projected to drive economic growth nationally in the coming years. Efforts by University of Memphis, EpiCenter, StartCo, and others have poised Memphis to take advantage of this growth.

In recent years, Memphis' market has experienced a trend of movement of existing households and jobs among competing areas of the City. While there have been some significant developments, particularly development of new housing units and movement of industry leaders to Downtown Memphis, market forecasts anticipate that market-driven residential, retail, and office development will concentrate in a "cone" from Downtown, along the Poplar corridor, edging out to Germantown Parkway. Areas south of Downtown, near the Memphis International Airport, along the Lamar Avenue Corridor, and areas in the northeast portion of the City show potential for new industrial development and redevelopment.

While the City has spread to 324 square miles, the City is strategically moving to target imited infrastructure resources. Short-term City and regional infrastructure plans are focused on directing resources to address critical needs in existing neighborhoods and economic development target areas. This includes major road improvements, repaving existing streets, bridge maintenance, and bicycle and pedestrian improvements and refocusing on the maintenance of the existing sewer system, rather than continuing the historic pattern of

The City has 82 square feet of retail per person – compared to 23.5 square feet nationally.

outward expansion.

Retail and Industrial Land

Job growth is projected to be slow and steady through 2040, amounting to about 26,000 new jobs. The greatest job gains are forecasted in leisure and hospitality, construction, and education and health. The City's retail supply has grown faster than the population. Between 2000 and 2017, the City's total retail inventory grew by an estimated 17%. In comparison, the population grew by 1% between 2000 and 2015. New development will be necessary to replace older strip malls and shopping centers, which may not meet the preferences of modern retailers (especially national chains). Overall, however, the City of Memphis has an estimated 82 square feet of retail space per person, compared to a national average of 23.5 square feet per person, which is considered an oversupply.

Projections show industrial and flex jobs will likely be developed in areas where there is existing industrial activity and new or modified buildings such as the Oakhaven area, Pidgeon Industrial Park, President's Island, and on the borders of Frayser and Raleigh. It is unlikely that new industrial operations will inhabit areas with vacant and outdated industrial space due to the age of infrastructure and the distance from other industrial activity without targeted investments.

Transportation and Related Costs

As employment growth and commercial investment shifted from the core, this created accessibility challenges for workers. More than 50% of jobs in Memphis are concentrated in three general areas: the Core City (Downtown and Midtown), East Memphis, and the area east of the Memphis International Airport. On average, it takes Memphians 22 minutes to travel to work by car and 60 minutes or more by public transportation.

The Center for Neighborhood Technology reports that the average cost of car ownership in Memphis is $11,465 a year, including insurance, maintenance, and gas. For households that earn less than the median household income ($41,228), this cost can be nearly one-third of their gross income. By aligning land use and transportation planning, better decisions can be made to connect the community to support access to jobs and businesses by all modes and create a more frequent and connected transit system.

Improved transit can help address financial burden on residents by better supporting Memphians who have no vehicle available and reducing their need for automobile ownership. The Memphis Area

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Average Housing and Transportation Costs. The chart above represents the average housing and transportation costs for the typical Memphian. The Center for Neighborhood Technology identifies transportation as typically the second highest expense for a household next to the cost of housing. Source: Adapted from https://htaindex.cnt.org/fact-sheets/ for Memphis, TN

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Local Transit Funding. The above chart shows the local transit funding per capita for Memphis' peer cities from 2009 to 2013. Source: Adapted from Innovate Memphis: Transit Funding Working Group White Paper 2016, page 12

Transit Authority (MATA) has faced declining ridership, service cuts, and maintenance issues in recent years while still trying to provide reliable transit service. The City's land use and growth patterns have hindered the ability of MATA to operate frequent service and the agency has prioritized providing coverage to all areas of the City. A network of low-frequency routes limits people's ability to quickly travel from their homes to their jobs. As a part of the plan, a short and long-range Transit Vision was developed and which increases frequency and provides

The Community Speaks

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A priority of the Memphis 3.0 planning process was to reflect the needs and desires of Memphians by seeking contributions from as much of the community as possible, transparently and authentically. The multi-phase participatory process included multiple avenues for Memphians to share opinions and make recommendations on city and district-level strategic actions. Planners worked with local organization partners, artists, architects, and nonprofits to identify and understand the assets and issues of Memphis from the people who interact with the City daily, shaping the plan's guiding principles and leading to the City's vision: BUILD UP, NOT OUT.

Citywide Input

The Memphis 3.0 planning process was grounded in a commitment to community involvement where a fair, equitable, and accessible process gave every resident a chance to speak up about the future of Memphis. The Comprehensive Plan guides growth and seeks to reverse negative outcomes related to sprawl and disinvestment. Through an understanding of the assets and issues of Memphis from the people who interact with the City daily, the Build Up, Not Out vision was developed.

To sustain the plan and ensure that it states the vision of the future as decided by the people, the plan set out to reflect the true needs and desires for Memphis by seeking contributions from as much of the community as possible, and as authentically and transparently as possible. The participatory process included multiple avenues for people to share their voices, view findings, and make recommendations on City priorities and district-level strategies and actions.

The engagement from residents throughout the two-year planning process provided major takeaways for the planning team that informed future initiatives and Comprehensive Plan updates. Relationships between the City and its residents require a foundation built on trust and commitment to continuous improvement. This includes a transparent and honest government responsive to the needs and requests of a neighborhood, along with the understanding engagement is not a one-time transaction but an ongoing commitment.

Before the planning process was underway, a nine-question electronic survey was administered through the Memphis 3.0 website and Facebook and taken by 524 individuals. In the survey, people were asked about their likes and dislikes of Memphis, ideas for improving the City, and thoughts on what it would take for Memphis 3.0 to be a success. The survey also polled individuals on the best ways to obtain their input. Overwhelmingly, people said social media/online tools or community meetings were the best ways to involve them in the planning process. The planning process kicked off November, 2016, with 14 public meetings in 14 days, debuting a robust, standard-setting community involvement approach. Throughout the process, the Office of Comprehensive Planning (OCP) of the Division of Planning and Development (DPD) worked with technical advisors with unique perspectives on community engagement. OCP and local partners received training and assistance with strategy development to aid in reaching a multitude of audiences throughout Memphis.

Throughout the process, OCP and its partners engaged more than 15,000 individuals (which included almost 5,000 surveys), partnered

More than 15,000 Memphians participated in the planning process.

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THE COMMUNITY SPEAKS

with 44 Citywide and neighborhood organizations and enlisted over 60 Memphis 3.0 Ambassadors who volunteered to assist in event coordination and recruitment during the Comprehensive Plan. With every public event, a primary goal was to gain as much knowledge of residents' experiences in Memphis to fuel research of effective strategies and policies from other cities, along with funding opportunities. It was equally important to educate participants on existing conditions in the City and how the intervention of planning for the future could positively impact the City.

Phase 1: Background

From December, 2016, through February, 2017, the engagement efforts of Phase One: Background were aimed at understanding, through community discussion, what the public considered as strengths, weaknesses, and opportunities of the City. At the start of 2017, OCP held 14 public meetings, attended by nearly 1,400 residents. Simultaneously, OCP conducted an online survey with 524 people between the ages of 17 and 89 (the median age was 53). OCP created four core commitments that came out of the initial meeting discussions to guide the engagement process: Transparent, Responsive, Flexible and Community-Oriented. The planners developed an inventory of current conditions in the City of Memphis based on the responses. This helped planners see where issues like blight, vacancy, and lack of opportunities/access to employment occur the most and how insufficient transit was contributing to them. Lack of quality transit prompted the planning initiative to create a Transit Vision with Innovate Memphis and Memphis Area Transit Authority (MATA). This inventory later led to a list of 44 best practices that were presented to residents in the second phase.

OCP received more than 15,000 comments over the three months of Phase One. The comments highlighted assets in Memphis: what keeps them here and what they appreciate about them. Participants also identified a multitude of challenges and issues. Those challenges and issues can be summarized in 10 Common Themes as shown on the bottom of the page.

Phase 2: Vision and Goal Setting

Phase Two was centered around visioning and goal setting, aiming toward a set of shared priorities for the City over the next 20 years. By narrowing down the 10 Common Themes, the team identified draft goals for the Comprehensive Plan and gained feedback from residents on how they shape the future vision of Memphis.

From March through August, 2017, OCP held 11 public meetings, gave six presentations with an opportunity for questions and answers, and attended five community events with other partners. Later, these findings were reported back to the public through four Citywide presentations. Approximately 880 residents attended. Ages of individuals ranged from 12 years old to 91 years old (the median age was 45). After funding was raised to conduct the Transit Vision planning process, collaborative efforts between OCP, Innovate Memphis, MATA, Metropolitan Planning Organization (MPO), and community partners began to survey and gain feedback from residents.

Many of the comments reiterated what was previously stated in the first phase, presenting specific issues and opportunities for change that were most valuable to residents. People generally wanted to see the Comprehensive Plan work toward the following issues, which later became early goals of the plan: additional transportation

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options; increasing reliability and frequency of bus service; streets and neighborhood redevelopment to support density and schools; increase access to healthy food, quality parks and public facilities; strategically reuse empty lots for neighborhood redevelopment or address environmental concerns like flooding; create more programs for youth; promote programs to renew blighted properties; protect the Memphis Sand Aquifer; and implement programs to reduce waste; and to explore and promote renewable energy resources.

Phase 3: Future Growth and Scenario Planning Phase Three was to better understand Memphians' values and how they translate into the future growth and redevelopment of the City's neighborhoods. This phase aided the final refinement of the vision and goals and established a preferred growth scenario for the next 20 years.

Four workshops were held across the City between September and November 2017 to discuss where new housing, jobs, and redevelopment should be prioritized based on three growth frameworks: following the trend pattern of growth, growth in the core and along major corridors, or growth around neighborhood centers. This round of engagement was challenging as it involved asking more than 2,000 residents to discuss trade-offs and to select one value over other values to determine a growth framework for the City. OCP conducted eight engagements at other events, worked with six partners to engage their stakeholders, hosted three presentations, and conducted online and paper surveys. Ages of individuals engaged ranged from 12 years old to 91 years old (the median age was 45).

Participants spoke out against following growth trends and favored a balanced approach to growth with half expressing a preference for increased growth in the core and along major corridors and the other half expressing a preference for growth focused in neighborhood centers of activity.

Phase 4: District Planning and Plan Development Phase Four, the largest engagement phase, involved dividing the City into 14 geographic districts and assigning planners to each district to develop district-based visions, strategies, and guiding actions for the next 20 years. This phase involved extensive outreach and publicity, along with balancing different modes of engagement from large public meetings to individual interviews or focus groups.

Between November, 2017, through August, 2018, the planning team combined its efforts with various organizations, artists, and architects/designers. In all 14 districts, a series of three workshops were conducted to envision the future of the neighborhoods. Workshop One asked community members to identify assets, challenges, and places of opportunity in their neighborhood. Workshop Two involved coordinating neighborhood tours based on feedback from the first workshop as a way to invite more residents to solidify their ideas and community goals. At Workshop Three, the planning team shared a draft vision and objectives based on the feedback heard in the district and worked with community members to amend or affirm those objectives and develop future actions.

With the help of local artsists selected by the Urban Art Commission, outreach expanded and 4,500 residents were part of the process. Participation varied by districts, ranging from 10 people to 100 people at each of the district workshops. As a part of the process, OCP promoted building capacity and supporting

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THE COMMUNITY SPEAKS

the local economy. With support from BLDG Memphis, neighborhood partners were selected and funded $1,500 to $2,000 to help support the work of the Comprehensive Plan. Of those funds, only $500 was dedicated to supplies and the remainder was used to compensate for time. Twenty-eight neighborhood partners were contracted for the process and paid a total amount of $62,000. OCP also identified caterers and tour operators from the local districts to support by providing food and transportation for district meetings. During the same time period, $9,200 was paid to food service providers and $8,100 to local tour operators.

District outcomes varied based on the geography, people, and issues relevant to the area. Generally, participants identified a common vision that supports the needs and desires within a district. Individuals and stakeholders identified current and potential places of activity, referred to as anchors in the planning process. These anchors would be the priorities within districts and would focus future efforts on creating mixed-use centers and areas of opportunity.

Youth Engagement

OCP worked with different community involvement partners such as Boys & Girls Club, Bridges, Streets Ministries, and schools to include youth voices throughout the process. Twenty-five percent of Memphis' total population is below the age of 17 (ACS 2011-2015). With a quarter of the population needing jobs, homes, and places to connect as they age, it is in the best interest of Memphis to continue improving youth services and creating assets throughout the City in order to create the types of communities where residents want to remain.

OCP held four workshops with youth to discuss location preferences for new housing, new jobs, and redevelopment. OCP conducted eight pop-up engagements at other events, gave three presentations and conducted an online and paper survey at events to gain participation of youth. In most engagements, youth identified places they wanted to see change, future growth, and development in the City. The information gathered from these youth exercises informed the plan's goals and objectives, along with identifying community assets and places of importance throughout the districts. Nearly 500 young people were engaged in youth-specific workshops, with the majority of ages between middle and high school.

Most of the public comments from youth were incorporated into the district plans as their feedback was more specific to geography. Generally, youth had many ideas and suggestions for improving public spaces. Some mentioned small parks in areas that are vacant, adding lakes in flood zone/prone areas, and decreasing block lengths to make walking more appealing and pleasurable. Many discussed safety and gave planners the opportunity to share complete streets design techniques that increase safety and activity in the area.

BLDG Memphis

The Office of Comprehensive Planning (OCP) directed the community engagement during the Memphis 3.0 planning process and sought collaboration with local organizations to assist in gathering input from the Memphis community. OCP partnered with BLDG Memphis, a non-profit coalition that provides capacity building through its network of involved community development corporations (CDCs) and other organizations. The agency has been on the forefront of incremental urbanism and policy development to improve communities in the City, supporting neighborhood planning efforts for several years. BLDG Memphis supported the 3.0 effort by developing and refining community engagement strategies, coordinating site logistics, and identifying and supporting neighborhood partners.

In collaboration with BLDG Memphis, OCP posted Requests for Proposals (RFP) that encouraged leaders or organizations to apply for a small grant ($1,500 to $2,000) to assist in educational outreach. These neighborhood partners were integral in helping with events and information distribution such as publishing ads in newspapers, airing ads on local radio stations, and designing community t-shirts. BLDG Memphis hosted ‘partner orientations’ for community groups, planning staff, architects, and artists to identify engagement strategies that were specific to the district. BLDG Memphis also co-facilitated planning workshops throughout the process.

Artists and Planning

In a unique partnership, OCP contracted with the UrbanArt Commission (UAC) to broaden the representation of community voices by embedding artists in the district planning process. UAC has expertise in the creation of public art and project management. Through the partnership, UAC commissioned three artists: a documentarian/storyteller, a musician and writer, and a visual artist to support Memphis 3.0. Each artist worked with a team of planners and architects to enhance communication and outreach to Memphians across 14 districts.

Over the course of the planning process, the artists engaged approximately 1,600 residents. These numbers, but more importantly, anecdotal accounts were made possible through sound recordings, focus groups, youth arts collaboration, and individual storytelling or interviews. The information gained from working with UAC artists provided a unique way to view urban planning issues and reflects the different engagement methods of individual artists and their styles.

Yancy Villa-Calvo

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Yancy Villa-Calvo worked in the Core, Lamar, Oakhaven-Parkway Village, East, and Jackson districts. Yancy created GEMS (Go Explore Memphis Soul) to explore, share, and dream about the City. Yancy travelled around neighborhoods with the GEMS mobile, a traveling art piece loaded with eye-catching tools for people to record, draw, and write down what they love, dislike, and hope for their neighborhoods. She met with business owners, assisted in translation for events and documents, and worked with youth in schools to write essays that were glazed to pottery pieces. Yancy held more than 110 group interviews with over 1,000 individuals, and over 522 GEMS.

Alex Greene

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Alex Greene's ReMix Memphis project conducted 55 engagement events in the North, Core, University, Westwood, and Southeast Districts. Greene recorded sounds around the City, capturing residential, transportation, and natural environments. Participants rated their reactions to each field recording (positive, negative, or neutral). Participants supplied answers to the prompt, "The sound of __ is so Memphis." A sampling of public opinion on noises common to Memphis life, and a poll of sounds evoking the City's identity, emerges from more than 4,000 responses. Finally, Greene solicited tracks from 24 producers and musicians in the City who mixed his field recordings creatively with their own music.

Neili Jones

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Neili Jones was hired to work with staff planners in the districts of Frayser, South Memphis, Whitehaven, Raleigh, and Cordova. Her work during the Memphis 3.0 process was to collect stories from individuals and groups to understand the experiences in their neighborhoods and during their time in Memphis. She utilized photographs to probe residents on their thoughts, hopes, complaints, and general questions on the City and their districts. Neili held 70 interviews with different community organizations and leaders from around the City.

Growth Scenario Exercise

Phase 3 of the plan's engagement process began with a series of community discussions around key findings on the history of growth, forecasted growth patterns and its effect on communities, and determination of community values for future growth. To guide the community discussions, three examples of future growth were developed - Trend, Core and Corridors, and Neighborhood Centers - to engage the community in the conversation on patterns of how the City could grow.

Land across the City was evaluated on several factors that influence development capacity. Parcels of land were assigned one of five categories: open space, agriculture, developed, undeveloped and under-developed. Development status was further analyzed by growth controls, such as zoning and land suitability factors, including density levels, environmental constraints, land use, and availability of infrastructure, to arrive at scenarios allocating new residential, commercial, and industrial growth forecasted for the City.

Trend: building off a market forecast, this scenario assigns new growth within the forecasted trending area and adjacent areas. This scenario generally follows the theory that growth should be focused in or near areas of existing market strength.

Core and Corridors: this scenario assigns new growth first in the Downtown area and radiates in all directions along corridors of greatest concentrations of residential, commercial, and industrial density.

Neighborhood Centers: this scenario assigns new growth in neighborhood-centered clusters throughout the City with less consideration for existing market strength or activity.

Key outcomes of each scenario were organized into value-based statements. In Phase 3 of the plan's community outreach, participants identified the values most important to them by thinking and discussing about future growth in the City. Once values were discussed and agreed upon among table members, participants reviewed growth allocations by individual planning district. Participants then reviewed a map of their selected scenario. Scenario maps organized growth allocations in each planning district into four tiers: very low, low, medium, and high. This allowed for input on an area-by-area basis. Tables made group recommendations on how they would change allocations based on their selected scenario.

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Growth Scenario Exercise. Residents were able to adjust the intensity of growth allocations per district.

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Ability To Develop. Areas of currently developed, undeveloped and under-developed were modeled and mapped above.

Growth Scenario Exercise

Based on approximately 2,000 responses in public workshops, online interactions, community meetings, and pop-ups, the public preference in the growth scenario exercise was split between the Core and Corridors and Neighborhood Centers scenarios, but clear on the community's values that the Comprehensive Plan should focus on smarter use of land, on providing greater connectivity and access, and by prioritizing opportunity and equity.

The growth scenario exercise provided a guiding framework for the manner in which the plan process initiated the development of the focus on anchors and the Future Land Use Planning Map, the Comprehensive Plan's guide for future growth.

On the maps below and to the right, projected new activity in office and retail (in square feet) in shown in red, residential (in dwelling units) shown in yellow/brown, and industrial (in square feet) shown in purple. The darker the color the more intense the development.

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Neighborhood Centers: this scenario assigns new growth in neighborhood-centered clusters throughout the City with less consideration for existing market strength or activity.

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Trend: building off a market forecast, this scenario assigns new growth within the forecasted trending area and areas adjacent. This scenario generally follows the theory that growth should be focused in or near areas of existing market strength.

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Core and Corridors: this scenario assigns new growth first in the Downtown area and radiates in all directions along corridors of greatest concentrations of residential, commercial, and industrial density.

Other Partners

OCP worked closely with the City's Office of Community Affairs to share plan information and identify neighborhood partners. The University of Memphis Design Collaborative (UMDC) and University Neighborhood Development Corporation (UNDC) were instrumental in involving students, planners, and volunteers along with publicizing events and gathering attendees.

Although 3.0 workshops and meetings are open to all members of the public, OCP made special considerations to ensure that people from all walks of life had equal opportunity to participate. OCP identified 12 local social service organizations that serve many hard-to-reach populations daily in order to expand collaboration, outreach, and opportunities for plan input across the City.

Citywide involvement partners were selected due to their extensive networks with populations like those who live at or below poverty or are homeless, people with disabilities, non-English speakers, families and youth, young professionals, and seniors. These partners played a crucial role in mobilizing their networks and creating the circumstances required to hear directly from groups on the key issues that affect them.

The principal involvement methods used by partners included focus groups, stakeholder interviews, surveys, and presentations. Community feedback through the partners was used to inform Citywide goals and objectives and district priorities for the plan. Each partner had participation goals unique to their network and organization. Community involvement partners used a myriad of tactics to achieve their outreach goals and often surpassed engagement with their service recipients due to their persistent efforts. Each partner was unique, as were their choices used to interact with diverse Memphian populations.

Agape Child and Family Services: Supports parents and children through a two-generation poverty reduction model, aiming to provide healing for family units and the community through school-based initiatives, workforce development, early childhood services, community safety, and trauma-focused support. Agape engaged its staff and site directors into this process by posting flyers of upcoming Memphis 3.0 events and through more detailed engagements at community cafés at their four sites. In total, Agape surveyed 274 Memphians.

Boys and Girls Club of Greater Memphis (BGCM): Enables young people to reach their full potential by providing various resources, training, and support groups in healthy lifestyles, good character and citizenship, academic success and career success. BGCM shared information through their youth and senior meals program and allowed OCP team to conduct two-day urban design workshops at eight of their sites. 480 youth were engaged in the process.

Bridges USA: Provides students experiential learning activities to empower diverse relationships, prepare them for secondary educational opportunities and careers while engaging them in civic affairs in their communities. Staff co-developed a curriculum to engage youth around urban planning values, including what they wish to see come from the 3.0 planning process. Youth also completed a visual survey of places they love and places they want to change in Memphis. 120 youth were engaged in the process.

Community Alliance for the Homeless: Provides planning, technical assistance and service coordination to public and private agencies that are working to end homelessness in Memphis and Shelby County. Community Alliance hosted seven presentations and focus groups with its network of partners around issues and policy change to address and decrease homelessness. Community Alliance allowed OCP to survey more than 200 homeless individuals to better understand their situations and where systematic change should be prioritized during the annual Homelessness Connect event. They invited OCP to host focus groups and conduct surveys with network partners, reaching 675 Memphians in total.

Latino Memphis: Connects clients to needed services and educational/career advancement opportunities while ensuring that Latinos become an integral part of Memphis. Latino Memphis provided translations of documents, surveys, and public meetings in Spanish, Vietnamese, and Arabic and conducted many surveys and focus groups in Spanish.

Leadership Memphis/Volunteer Memphis: Mobilizes volunteers to make a difference and assists community organizations and businesses in developing successful employee engagement programs for volunteer opportunities. Working with Volunteer Memphis, OCP developed a Volunteer Ambassador Board (VAB) with more than 60 trained members and assisted at popup engagements and recording or facilitating community meetings.

Metropolitan Inter-Faith Association (MIFA): Offers a variety of scheduled programs and assistance to support the independence of vulnerable seniors and families in crisis. Presentations by OCP were made at MIFA's Senior Companion luncheons. MIFA also hosted its own engagement events, held stakeholder interviews and assisted in recording and facilitating meetings held at six community centers, engaging 785 Memphians.

Memphis Center for Independent Living (MCIL): Supports people with disabilities to live or transition to living on their own by offering comprehensive independent living programs, including advocacy, training, resources, and peer support. Through focus groups and accessibility scavenger hunts, MCIL staff and volunteers surveyed 177 Memphians with disabilities and asked about their experiences in Memphis.

Memphis Urban League (MUL): An interracial, nonprofit organization that provides direct services and policy advocacy to help individuals and communities reach their full potential. These programs include employment preparation, job placement, youth development, and educational support. MUL staff administered surveys at job training events that helped refine plan goals and objectives.

Neighborhood Christian Center, Inc. (NCC): Guides families toward stability and sustainability through ministries and empowerment programs, including employment education for women, early childhood and youth programs, marital support, ministry groups, and food/service assistance. Together, OCP and NCC staff conducted transit vision surveys at NCC events such as toy and heater drives; educated individuals on the Memphis 3.0 process, including posting flyers in 10,000 Christmas food boxes; and facilitated three stakeholder group interviews. NCC offered its space where the planning team and artists worked during the district planning phase, and engaged 500 Memphians in total.

New Memphis Institute: Works to attract, develop and retain talented young professionals in Memphis. New Memphis Institute administered surveys and education on the Memphis 3.0 process at two annual events, meeting with 140 young professionals.

Streets Ministries: Recruits staff and trains mentors to develop authentic relationships with youth and help them in academic, spiritual, and physical achievement. Streets Ministries invited the OCP team to conduct two-day urban design workshops at their two sites and allowed planners and artists to work out of their facility during the district planning phase.

Advisory Board

Early in 2017, OCP established a 17-member Advisory Board for oversight related to the quality of the plan and process. This board was primarily composed of foundations who supported the Memphis 3.0 plan, City leadership, nonprofit leaders, and leaders in the development community. The advisory board ensured the vision and priorities of the plan were driven by the community and recommendations would result in benefits for communities across Memphis. The advisory board was essential in providing aid to working group structure, ensuring meaningful community involvement, and ensuring that research and reports produced for the plan were of high quality and use.

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THE COMMUNITY SPEAKS

Working Groups

At the beginning of the planning process, a working group structure was developed to provide technical assistance and research support for prioritized topical issues. These groups, made predominately of practitioners and subject matter experts, studied issues relevant to the City, reported on trends, and offered best practices. Each working group consisted of 12 to 30 professionals with a wide range of subject matter expertise. The members of working groups were representatives of state and local government agencies, private sector leaders and employees, planning practitioners, architects, non-profit agencies, students, and individuals from institutions of higher learning. These groups were regularly involved during the early phases of the plan and helped to identify significant issues, refine objectives, and inform policy development for the plan. Shown below are the twelve working groups and the topics they studied.

The breadth of information that is covered in the plan makes it critical to include a range of professionals throughout the development phase. Political will must also be developed to ensure broad implementation. Many recommendations made in the plan cannot be achieved by government alone; therefore, it is pertinent to include other leaders, decision-makers, and individuals with varying viewpoints to ultimately support research, adoption, and implementation.

01 Art Design Preservation: Topics included cultural resources, historic preservation, public art, and design guidelines

02 Blight and Neighborhood Improvement: Topics included transitional land use, reclamation and reuse of vacant land, code enforcement, parcel surveying and monitoring, and multifamily development barriers

03 Civic Common Areas and Open Spaces: Topics included parks, community centers, libraries, open spaces, and other City-owned facilities

04 Complete Streets: Topics included bike and pedestrian infrastructure and design, accessibility, and mobility

05 Efficiency and Conservation: Topics included renewable energy, alternative fuel vehicles, sustainable procurement, green buildings, and solid waste reduction

06 Freight: Members of the MPO's Freight Advisory Committee addressed recommendations for aligning the Regional Freight Plan with policy direction for automobile, air, water, and rail

07 Housing and Infill Development: Topics included affordability and cost burden, rental housing, homeownership, public housing, neighborhood preservation, growth, and development

08 Land Use and Development: Topics included land use, zoning, Unified Development Code, mixed-use communities, transit-oriented development, infrastructure, and incentives

09 Next Generation: Topics included autonomous vehicles, expanded fiber network, cybersecurity, smart grid technology, and smart parking

10 Resilience and Adaptation: Topics included green infrastructure, climate change adaptation, mitigation of natural hazards, post-disaster economic recovery, and other environmental protection issues

11 Transit and Demand Management: Topics included multi-modal transit and access, regional transportation and jobs, parking

12 Workforce and Entrepreneurial Development: Topics included attracting minorities, underrepresented sectors, entrepreneurship support, and institutions

THE COMMUNITY SPEAKS

Planning Districts

Each of the districts was assigned a team of planners, architects, and artists to work with residents in creating a unified vision with shared goals and strategic actions. Please see individual plans in the District Priorities section of the document.

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I am a Memphis GEM

“ The people - it’s Memphis’ greatest strength. There are a lot of people that really want the best in this city and want to see the City moving in the right direction. And that’s what it’s going to take to move the City in the right direction, is the people.

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4,903 survey responses

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“ People need to stop apologizing and feeling embarrassed of being from Memphis. We do have a great legacy. There’s a lot of good things that happened here and are happening.

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217 Stakeholder Interviews

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183

public events held

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UP TO $2,000

funded for community partners

Memphis 3.0

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Newspapers

Radio ads

T-shirts

Marketing Materials Used

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The community is at a tipping point and direction, the schools are improving, and the community is becoming even more diverse, especially through the Hispanic population.

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1,674

people reached by artists

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PART TWO:

Our Framework For Change

Creating Places for People

As Memphis celebrates its bicentennial and turns the page to its third century, it is clear a new framework for growth is needed to change the trajectory of the core city, neighborhoods, and the City. The vision of Build Up, Not Out guides that path and supports investments in communities, people, and access to shape the third century.

Population growth in Memphis peaked in the 1970s, reaching just shy of 650,000 residents in the 1980 Census. Since that time, the population of the City has been maintained at that level by continuing a policy of aggressive annexation consistent with the recommendations of the last comprehensive plan, the Memphis 2000 Policy Plan. That plan signaled a new urban service boundary beyond the limits of the City, leading to extension of sewers and roads, and ultimately new development that was settled and eventually annexed into the City. While this growth policy was successful in maintaining the population levels of the City, it expanded the City’s geographic footprint by nearly 100 square miles, reaching its largest size in 2013 of 324 square miles at a population density below 2,000 persons per square mile.

The net result of these growth policies included destabilization and disinvestment of older neighborhoods in the central city, areas such as North and South Memphis, as a stable population shifted into other areas of an expanding region. Many of these communities today, while rich with history, neighborhood pride, and social and physical assets, experience high percentages of land and building vacancy and depressed markets.

If this trend is continued in future years, modest growth is forecasted for Memphis, primarily focused in a “cone” spanning along the Poplar Corridor from Downtown Memphis to the eastern edge of the City. Areas that attract new growth and investment are expected to be places with good access to jobs, but the City will continue to see high rates of residential and commercial oversaturation of land, and thus high rates of vacancy.

Recent years have shown a shift in the pattern in which development and investment is occurring in the City. Regionally, approximately $15 billion in investments have taken place or been announced, with the majority occurring in the City of Memphis. Of that, a larger share of growth is taking place in the City’s core, including Downtown and the Medical District.

To sustain this momentum and expand opportunity to neighborhoods across Memphis, the City must embrace a new growth policy that targets investment and growth in defined areas rather than continuing attempts to spread resources with no strategic guidance.

CREATING PLACES FOR PEOPLE

A city exists for the people who call it home. The character and quality of the places where those people live, work, play, and gather play a large role in the quality of the lives lived there. The Memphis 3.0 Comprehensive Plan lays out a vision for how Memphis and the diverse places within it will evolve during its next century. This vision supports places that are safe, beautiful, and accessible, and which offer opportunities for learning, livelihood, investment, and community. It is these places that can improve the lives of the people who inhabit them. Different places fill different roles in the lives of Memphians, but taken together, the palette of places found in Memphis defines the physical character of the City and provides the settings for daily life in the City they call home.

In order to create goals and actions for places in Memphis, it is necessary to understand what patterns and similarities exist between different places. While Memphis is made up of a countless number of different places, all of them are categorized in different place types to make it easier to understand the physical form and character that make up the City.

Place types are categories to capture the unique characteristics and contribute to making a "place" — a location that is distinct from the areas around it. Although many different factors influence an area's

Place types are categories that attempt to capture the unique characteristics that contribute to making a “place” — a location that is distinct from the areas around it.

Place Types

Citywide Anchors

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Walkable, mixed-use hubs of activity that bring the City together, accessible by multiple modes of transportation. These places are where people from throughout the region gather to do things.

Community Anchors

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Walkable, mixed-use hubs of activity located at the heart of well-connected residential communities, accessible by multiple modes of transportation. These places are where neighbors gather to do things.

Communities

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Residential areas that make up the majority of the City. These may be areas near Downtown with small blocks and narrow streets, or suburban locations with large lots and winding streets.

CREATING PLACES FOR PEOPLE

unique sense of place, the place types in this plan focus primarily on the physical characteristics of a place.

Similar patterns of physical form can be observed across the City. Street networks can be well-connected grids or winding cul-de-sacs. Buildings can be located close together or spaced farther apart. Front yards can be large, small, or non-existent. Land uses can be mixed vertically or horizontally or separated. Analyzing these characteristics in different places across the City helps to establish place types.

Land uses are the types of activities that are allowed to occur in a particular location.

Place types make it easier to identify and understand the physical building blocks that make up the City of Memphis. This in turn helps to make standards and regulations more effective by making it possible to tailor them to the types of places that exist throughout the City.

Corridors

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Auto-oriented commercial strips along major streets. These areas have mostly retail and service uses that rely on automobile traffic for access and visibility.

Special Use Areas

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Places where industrial, logistical, and transportation activities define the physical form. These are generally single-use economic centers with long blocks and few intersections.

Parks and Civic Spaces

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Natural areas, civic and institutional uses, parks, greenways, and recreational areas that may be defined by topography and waterways more than street networks.

CREATING PLACES FOR PEOPLE

Characteristics of

Walkable Neighborhoods

Walkable describes places where a person can (easily) walk or bike to fulfill most daily needs. These environments allow for use of automobiles, but do not require one for most trips.

Building up, not out, means creating more places where people can and want to walk from their homes to everyday destinations such as school, work, shopping, and recreation. A combination of infrastructure improvements and amenities can help to make a walkable environment where walking is safer and more comfortable. Solutions should be context-sensitive and tailored to what makes the most sense in different parts of Memphis.

Greenline connections and multi-use paths can provide pedestrian and cyclist connectivity between neighborhoods, schools, parks, and other amenities in parts of the City where streets don’t yet accommodate multi-modal users.

Transit use can be promoted through more comfortable walking environments that make it safer and more pleasant to walk to and from transit stops.

Signage, lighting, markings on the street, and pedestrian refuges in medians can help make pedestrian crossings more visible and safer. Street lights scaled for both automobiles and pedestrians help to make streets safer and more comfortable for all users.

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Pedestrian pathways help make cul-de-sacs and dead-end streets better connected to surrounding amenities in areas with limited street network connectivity.

Bike share stations near schools, jobs, shopping, and other amenities provide more options to get around without a car.

CREATING PLACES FOR PEOPLE

Smaller block sizes allow for better street network connectivity which encourages walkability by providing more route choices and reducing walking distance to get between destinations.

Density makes it possible to locate more services close by to where people live. Even small increases in density can make neighborhood businesses more viable.

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Locating businesses near neighborhoods makes it easier for neighbors to run errands and satisfy daily needs without needing to drive. A reliable pool of customers also makes it easier for small businesses to enter the market.

Traffic-calming strategies like roundabouts and painted curb bump-outs at intersections help to slow traffic and make streets safer for pedestrians, cyclists, and drivers alike.

Storefronts encourage walking by providing visual interest that’s always changing.

Mixed-Use A mix of uses in close proximity to one another helps to reduce travel distances between jobs, school, shopping and residences, making it more attractive to walk or bike between destinations.

Walkable places look different, but they all facilitate better access and more options for how to get around.

Our Strategy:

Focus on Anchors

Anchors are the places where communities do things together. In some cases, they are places where Memphians from across the City gather to work, shop, learn, play, and celebrate. In others, anchors might serve primarily the people who live nearby. Anchors are where the action is or has been, and where it will be in the future.

Just as an anchor steadies a ship, community and Citywide Anchors in Memphis are meant to provide steady support for the neighborhoods around them. Anchors may be places of unique historic and cultural significance, or they might just be the place where neighbors rub elbows while buying a gallon of milk or stopping by an event at the local community center. In any case, they are places that support and empower surrounding communities by providing vital daily goods and services while reinforcing the unique identity of Memphis communities.

By focusing on these places, Memphis 3.0 can positively impact the largest number of Memphians.

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OUR STRATEGY: FOCUS ON ANCHORS

Why focus on Anchors?

Anchors are not just places where people come together, they are also where commerce, services, and civic activities intersect. They are where both residential density and density of activity are highest in Memphis. As such, they provide an opportunity for new investments and services to positively impact the largest number of Memphians.

Building up, not out, means reinvesting in existing places. In order to realize this vision, vacant lots will need to become sites for infill, disinvested places will need to receive investment and redevelopment, and underutilized land will need to be repurposed for higher and better uses that improve the quality of life in Memphis.

Infill is when development occurs in vacant or underutilized sites within an existing developed area.

Adding housing, jobs, and services in places where these uses already exist, or where they have existed in the past, can be a cost-effective way for the City to grow its population and jobs without growing its footprint. Focusing growth and reinvestment on infill locations makes it possible to better use existing infrastructure. Where infrastructure already exists, there can be less need to invest in new infrastructure to accommodate growth.

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Anchors. This anchor is a destination for walkable services, retail, and leisure.

In instances where existing infrastructure does need to be upgraded to accommodate growth, nearby residents and businesses relying on that infrastructure receive an improved level of service and reliability, benefiting both new and existing residents and businesses.

Infill development also helps the City of Memphis provide services and conduct maintenance more cost-effectively. The City’s low population density makes it difficult to operate utilities and services. Higher densities allow more people to be served within a smaller geographic area. This means fewer miles of pipes and roads need to be maintained in order to provide service to the same number of people.

Similarly, by locating housing near jobs and services, Memphis residents can save time and money by avoiding long trips to access everyday services. Anchors are places that are or could become the kind of environments that encourage walking, cycling, transit, and other alternatives to driving a car. They are places where driving is one of several options rather than a requirement for getting around in a safe and convenient manner.

Density of housing, jobs, and activities will also help transit in Memphis operate more effectively. Buses and trains work best when they pickup and dropoff more people at fewer stops. Since people prefer not to travel far to get to a transit stop, it makes sense to locate many destinations within close proximity. Many anchors are located in places where transit exists or has been proposed, so focusing new investment and redevelopment at these locations will help to support a more convenient and effective transit system for Memphis.

The benefits from investments made in anchor locations impact more than just the people living and working in the anchor. Because anchors are centers of activity for entire communities, strengthening an anchor helps to strengthen the communities around it. Anchors are often where people go to visit community centers, libraries, civic and religious institutions, shops, restaurants, and other frequent destinations. As places that bring people together, anchors help to stabilize the identity of Memphis communities.

In the past Memphis has grown by creating new places. Memphis 3.0 provides a vision for growth that instead focuses on investing in existing places to help them evolve to reach their full potential as centers of life for Memphis communities.

Anchor Types

All anchors are walkable, mixed-use places, but that does not mean that they are all the same. Some anchors may be no larger than a few buildings while others may encompass several adjacent blocks. Some anchors may serve primarily the people that live around them while others may draw people from across the City and the region.

Several distinct anchor types have been identified to help better understand existing conditions and to provide a framework to determine how anchors should evolve in the future. The characteristics used to define different anchor types are generally those that can be regulated through Memphis' zoning code, which will serve as a critical tool to help guide the evolution of anchors in the future.

Physical characteristics differentiating one anchor type from another include the height, form, and spacing of buildings, the pattern of the street network in and around each anchor, and the extent of the anchor — whether it extends for just a couple of buildings, a full block, or multiple adjacent blocks.

All anchors are walkable, mixed use places, but that does not mean they are all the same.

All anchors are mixed-use. In many anchor types, uses may be mixed vertically, where residences or offices are located on upper floors above shops and services on the ground floor.

The anchor types introduced below are derived from patterns and places found in Memphis. They provide a framework to support the creation and rejuvenation of authentic and enduring places for the community.

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Neighborhood Crossings

Neighborhood Crossings provide convenient services to the surrounding residential neighborhoods in which they are embedded, allowing neighbors to walk or bike there. A Neighborhood Crossing can serve as a destination where neighbors rub elbows, and when thriving, can contribute to community character and identity.

Neighborhood Main Streets

Neighborhood Main Streets provide retail and services to the surrounding neighborhoods. They serve as walkable or bikeable destinations where community members can meet multiple daily needs in a single trip. When thriving, they are nodes of activity that enliven a neighborhood.

Urban Main Streets

An Urban Main Street provides retail and services to surrounding neighborhoods in a pedestrian-friendly environment, making it possible to accomplish several errands in a single trip. An Urban Main Street is a center of activity and supports a shared sense of community.

Urban Centers

An Urban Center includes a vertical mix of uses, featuring civic and cultural institutions that serve many neighborhoods or the entire City and which may anchor the center. An Urban Center is a destination for walkable retail, service, and leisure. It is accessible from across the City by multiple modes of transportation

Urban Core / Downtown

The urban core, which includes Downtown, is the anchor for the City of Memphis. The Urban Core is a Citywide destination where people work, live, shop, and play. It is accessible from across the City by multiple modes of transportation

Medical and Institutional Campus

Medical District and Institutional Campus anchors are characterized by a mix of building types and sizes that primarily serve a single institutional use and may include supportive uses and activities. These anchors are walkable places that catalyze activity in adjacent mixed-use anchors.

OUR STRATEGY: FOCUS ON ANCHORS

Memphis 3.0 Anchors

The map below lists all anchors and anchor neighborhoods for the City of Memphis and provides corresponding locations by intersection or landmark on the following page. To view a larger version of this map, go to http://memphis3point0.com/plans-and-maps.

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OUR STRATEGY: FOCUS ON ANCHORS

FRAYSER

01 Northgate Center
02 Dellwood & Steele
03 Delano & Watkins
04 Corning & Watkins
05 Frayser & Watkins
06 Frayser Plaza
07 Whitney & Overton Crossing
08 Frayser Village
09 Frayser Gateway

NORTH

10 Harbor Town
11 Chelsea & Thomas
12 Chelsea & Ayers
13 Firestone & Breedlove
14 Brown & Watkins
15 Jackson & Watkins
16 Springdale & Brown
17 Chelsea & Hollywood
18 Douglass Park
19 Jackson & Evergreen
20 Jackson & Hastings

CORE

21 Pinch District
22 St Jude
23 Poplar & Danny Thomas
24 Downtown
25 South Main
26 Madison & Danny Thomas
27 Lauderdale & Vance
28 Mississippi & Georgia
29 The Edge
30 Poplar & Alabama
31 Ayers & JW Williams
32 Memphis Medical District
33 Crosstown
34 Poplar & Cleveland
35 Cleveland & Madison
36 Methodist University Medical Center
37 Union & Belvedere
38 Netherwood & Willett
39 Lamar & McLean
40 Overton Square
41 Cooper Area
42 Central & Early Maxwell/ Fairgrounds

SOUTH

43 Third & Crump
44 Mississippi & Walker
45 Third & Belz/ Mallory Heights
46 Lauderdale & Mallory
47 Lauderdale & Rosewood
48 Neptune & Walker
49 Soulsville
50 Kerr & Gaither
51 Elvis Presley & Alcy
52 South & Alcy Ball

WESTWOOD

53 Ford & King
54 Third & Mitchell
55 Third & Fairway/Levi Library
56 Third & Raines
57 Third & Ford
58 Third & Weaver

WHITEHAVEN

59 Elvis Presley & Raines
60 Southwest TN Community College
61 Elvis Presley & Shelby Dr

RALEIGH

62 Raleigh Egypt
63 New Covington & Austin Peay
64 Raleigh Springs Mall
65 James Road/Old Raleigh

JACKSON

66 Graham & Chelsea
67 Wells Station & Reed
68 Wells Station & Grey
69 Macon & Berclair
70 Janice & Berclair
71 Macon & Wells Station
72 Macon & Victor
73 Macon & Homer
74 Given & Isabelle
75 Summer & National
76 Summer & Graham

UNIVERSITY

77 Broad Avenue
78 Lester
79 Tillman & McAdoo
80 Oak Court
81 Colonial Village
82 Dunn & Cherry
83 University of Memphis Park Avenue Campus
84 Park & Getwell
85 University of Memphis
86 Highland Street
87 Binghampton Gateway
88 Highpoint Area
89 Poplar & Highland
90 Merton & Oxford

LAMAR

91 Orange Mound
92 Brentwood Park
93 Getwell & Sharpe
94 Sherwood
95 Lamar & Kimball
96 Lamar & Airways

OAKHAVEN & PARKWAY VILLAGE

97 Winchester & Tchulahoma
98 Shelby & Tchulahoma
99 Perkins & Knight Arnold
100 Mendenhall & Knight Arnold
101 Mendenhall & Winchester

CORDOVA

102 Old Cordova
103 Trinity & Germantown Parkway/ Fischer Steel
104 Dexter & Germantown Parkway
105 Mullins Station & Whitten Road

EAST

106 Poplar & Truse
107 Poplar & Mendenhall
108 Sea Isle
109 White Station & Quince
110 Poplar & Ridgeway
111 Ridgeway & Quince
112 Walnut Grove & Brierview/Baptist Memorial
113 St. Francis

SOUTHEAST

114 Kirby & Raines
115 Winchester & Ridgeway
116 Kirby & Winchester

OUR STRATEGY: FOCUS ON ANCHORS

Anchors Can Influence Surrounding Neighborhoods

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Anchor A place where people in the community gather to do things together.

Anchor Neighborhood An area around the Community Anchor that is less intense than the anchor but more intense than the edge.

Anchor Neighborhood Edge The furthest extent of an anchor’s area of influence.

Higher Intensity ↑ ↓ Lower Intensity

Anchors

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Higher Intensity ←

Anchor Neighborhood

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Anchor Neighborhood Edge

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→ Lower Intensity

Anchors Can Influence Surrounding Neighborhoods

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Citywide Anchor:

• Downtown
• Medical and Institutional Campus

Anchor Neighborhood:

• Urban
• Mix of Building Types

Anchor Neighborhood:

• Mix of Building Types
• Primarily Single-Unit

Downtown is a walkable anchor for the City of Memphis. It is characterized by multi-story buildings with a vertical mix of uses and civic and institutional buildings that attract people from the entire region. Other Citywide Anchors include areas where medical or educational campuses exist.

Urban Core / Downtown

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Medical and Institutional Campus

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Medical and Institutional Campus

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OUR STRATEGY: FOCUS ON ANCHORS

Anchors Can Influence Surrounding Neighborhoods

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Community Anchor:

• Urban Center
• Urban Main Street
• Neighborhood Main Street

Anchor Neighborhood:

• Mix of Building Types

Anchor Neighborhood:

• Primarily Single-Unit

Main Street and Urban Center Walkable, vertical or horizontal mixed-use centers comprised of multi-story block-scale and house-scale buildings, most of which are attached, lining two facing blocks and extending for several adjacent blocks.

Urban Center

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Urban Main Street

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Neighborhood Main Street

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OUR STRATEGY: FOCUS ON ANCHORS

Anchors Can Influence Surrounding Neighborhoods

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Community Anchor: ● Neighborhood Crossing

Anchor Neighborhood: ● Primarily Single-Unit

Neighborhood Crossing

Small, walkable mixed-use centers comprised of house-scale buildings embedded within otherwise residential neighborhoods. Some neighborhood crossing anchors can evolve to become mixed-use centers.

Neighborhood Crossing

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Neighborhood Crossing

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Neighborhood Crossing

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Cultivating Change

The Memphis 3.0 Vision sets a new course for the City of Memphis with the result all neighborhoods have the opportunity to benefit from growth and change in the City.

In this vision, change is for the better. By planning and coordinating how and where change happens, this plan seeks to catalyze private development and public investment to maximize the benefit to all Memphians. Every place in Memphis has room for improvement and thousands of Memphians from across the City offered ideas for how different kinds of change could contribute to a better Memphis. This plan captures those ideas and provides a framework for distributing positive change across the City, especially to places that have not benefited from change in the past.

Change in Memphis will benefit everyone but doesn't look the same everywhere. For some communities, change might mean transformative reinvestment and redevelopment that brings in new buildings, businesses, and amenities, while for others change might mean better sidewalks and small-scale infill on vacant lots. Whether living in a community that seeks to change a lot or one that desires more modest change, this plan guides change so that quality of life is improved for all of Memphis.

Change is context-sensitive, not all or nothing. This plan seeks to honor and support existing places that make Memphis special. The land use categories introduced by this plan are based on existing and historic urban form patterns found in the City, even those places where significant change is encouraged it is rooted in the unique character of Memphis.

The community shared common issues, values, and practices they want to see for the future of Memphis.

Change is driven by the community. The planning process asked communities what kind of improvements they value and what scale of change is appropriate for their corner of the City. Identifying where change is desired is important so that City policy, private developers, and philanthropies know where to focus their efforts in order to maximize the benefits that their investments provide to the community. The land use map serves as a blueprint for where change will be encouraged, with a special focus on anchors and anchor neighborhoods. Based on places the community identified a desire for change and there is

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Vision Wall. A Whitehaven resident prioritizes her top issues on the vision wall during a district workshop. Top issues from the vision wall were recorded and grouped into themes that dictated the overall vision statement for the district.

existing infrastructure and civic facilities, when change occurs in these places, its benefits are magnified to benefit surrounding communities as well. While all parts of Memphis will naturally experience change, the intensity of that change can be influenced by the goals and actions included in this plan. Where change will occur is identified in the Land Use Plan and is focused on Anchors and Anchor Neighborhoods. How change will occur in these places is defined in the following section.

CULTIVATING CHANGE

Degree of Change

The way a community changes depends on the cumulative impact of many individual changes. Over the course of several years, many small changes can have as much of a transformative impact as a single large change. This plan identifies how different types of change, captured through goals and recommended actions, can impact places throughout Memphis.

Change can be small or large or anywhere in between. During community workshops and tours, Memphians were encouraged to consider a range of options for change by both "thinking small" and "thinking big." Their responses helped to define degrees of change that capture different communities' appetite for change.

The three degrees of change identified in this plan set a vision for how much change will be encouraged in different places in Memphis. They provide a menu of implementing actions that can help to match communities' appetites for change with the amount of support and investment that is appropriate for realizing that degree of change.

Nurture

Nurturing actions provide stability in places that have experienced decline or where there is not sufficient market activity to drive change. Investments by the City and philanthropies will support incremental change to improve the lives of existing residents and promote additional future investment.

Accelerate

Accelerating actions encourage early stage and beneficial change that is underway, but requires additional support to realize its full potential. A mix of investments by the City, philanthropies, and the private sector drive transformative change to realize the community’s vision for a place.

Sustain

Sustaining actions support existing character. Infill development should improve the built form and enhance multi-modal transportation options. Investments primarily by the private sector will support steady market growth for community stability.

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Neighborhoods with low market demand or experiencing higher vacancy and disinvestment can be nurtured by catalytic public investments and incremental improvements.

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Areas seeing real estate market investment and have infill opportunities can be accelerated with public and private support.

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Historic districts or areas that wish to see no change in form or development activity should be sustained with regulations that support current conditions.

How Does Investment Respond to Degree of Change?

The way a community can change or be supported depends on the cumulative impact of many individual changes. The plan identifies how combinations of different types of change, captured through goals and recommended actions, can impact different places in Memphis. The Degree of Change, nurture, accelerate, and sustain, set a vision for how much change will be encouraged in different places in Memphis and what types of investment is likely to be supported in those areas.

The diagram below illustrates types of small, large, or sustaining change can be applied to an anchor or anchor neighborhoods based on the degree of change. The degree of change also influences the types of investment an area is likely to attract. Red money icons indicate private investment, blue money icons indicate public investment, and the green money icon represents philanthropic investments.

Primarily Urban Neighborhoods

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Primarily Single-Unit Neighborhoods

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Nurture Nurture actions rely primarily on public and philanthropic resources to stabilize the existing pattern of a place.

Accelerate Accelerate actions rely on a mix of primarily private and philanthropic resources, along with some public resources to intensify the existing pattern of a place.

Sustain Sustain actions rely primarily on private resources to maintain the existing pattern of a place.

Transition Transition actions transform the existing pattern of a place to accommodate a more viable range of uses.

Nurture

Nurture areas rely primarily on public and philanthropic resources to stabilize the existing pattern of a place.

Actions for Nurture anchors and anchor neighborhoods are meant to:

• Stabilize the community
• Protect and support community assets
• Protect and stabilize existing affordable housing
• Promote activities that will stimulate market activity

Ways to Nurture:

• “Road diets” — reduce the number of lanes to make room for wider sidewalks, bike lanes, and/or on-street parking
• Improve pedestrian realm (sidewalks, crosswalks, planting buffer and street trees, street lights, street furniture)
• Repurpose vacant land as temporary civic space
• Grants for small business frontage improvement
• Reduce number of curb cuts to improve pedestrian and cyclist safety (access management)
• Enhance connectivity to transit network
• Introduce or improve bike lanes and sidewalks
• Improve public access points (covered bus stops, benches)
• Improve public services (trash cleanup and collection)
• Control scale and frequency of signage
• Plan community programs on streets or vacant lots (markets, festivals)
• Upgrade infrastructure to improve flood control and internet access
• Improve existing parks and civic buildings and spaces
• Allow increased density and building height
• Allow a broader mix of uses

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Accelerate

Accelerate areas rely on a mix of primarily private and philanthropic resources along with some public resources to intensify the existing pattern of a place.

Actions for Accelerate anchors and anchor neighborhoods are meant to:

• Improve public realm and infrastructure
• Improve multi-modal transportation options
• Speed up development activity
• Increase density
• Increase mix of uses
• Promote and protect affordable housing

Ways to Accelerate:

• Increase building height
• Allow greater mix of uses
• Attract retail and service uses that cater to larger-scale markets
• Reduce building setbacks or establish build-to lines
• Construct new streets or pathways to increase connectivity within large sites
• Consolidate smaller lots into larger parcels that are more attractive for development
• Consider tax increment financing (TIF) districts
• Improve or create parks and civic assets
• Promote pedestrian-oriented infill development
• Reduce surface parking in favor of structured parking and parking demand management options

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Sustain

Sustain areas rely on limited public support and private resources to maintain the existing pattern of a place.

Actions for Sustain anchors and anchor neighborhoods are meant to:

• Support existing market conditions
• Support maintenance of public realm and infrastructure
• Facilitate private investment and development that is contextually compatible
• Address building form with infill development

Ways to Sustain:

• Promote infill that is contextually compatible
• Maintain most existing zoning standards (not in conflict with future land use)
• Change street cross-sections to promote multi-modal transportation options
• Enhance connectivity to transit network
• Apply/Uphold historic overlay district overlays
• Address regulatory barriers to quality development
• Reduce number of curb cuts to improve pedestrian and cyclist safety (access management)
• Encourage "curb to door" pedestrian and ADA accommodations
• Construct new streets or pathways to increase connectivity within large sites
• Improve public access points (covered bus stops, benches)
• Improve public services (trash cleanup and collection)
• Control scale and frequency of signage
• Upgrade infrastructure to improve storm water runoff
• Improve existing parks and civic buildings and spaces
• Allow increased density and building height
• Allow a broader mix of uses

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CULTIVATING CHANGE

Degree of Change Map

This map shows the anchors and degree of change. To view a larger version of this map, go to https://www.memphis3point0.com/maps.

■ Anchors

■ Accelerate

■ Nurture

■ Sustain

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CULTIVATING CHANGE

Types and Examples of Change

Many parts of communities can change. Communities were encouraged to think small, making small changes through incremental improvements, and think big, making transformative changes through larger interventions about ways anchors and the areas around them could change to support and improve their neighborhoods. Many communities identified areas that already act as anchors with a mix of uses and high activity; however, some communities identified nodes that have the opportunity to become a future anchor due to location, the built form, or historic events.

A diverse mix of neighborhood-appropriate housing choices makes a neighborhood accessible to a variety of families and residents. Low fences or walls around the perimeter of a lot, help to reinforce the public realm, or public common area, and define the street as a public outdoor room. Frontages such as porches and stoops encourage sociability and activation of the street, making a safer, more inviting environment for pedestrians. Neighborhoods feel more people-oriented and pedestrian-friendly when parking is located at the rear of a lot, behind a building, or behind a landscape or architecture screen. Short blocks with frequent intersections provide convenient routes for pedestrians. With the additional street frontage, more buildings can face and activate sidewalks.

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New Anchors Small changes to new anchors could include landscaping, streetscape improvements, and temporary spaces for businesses at sidewalk edges to help form a center of activity. These changes can be made where buildings and lots are privately owned and they are unlikely to see major changes in the near term.

New Anchors Bigger changes that may include infill, new development at the sidewalk edge, or around public space in areas where there is a desire for urban character and new buildings.

Pedestrian Facilities. Changes may include adding new sidewalk and crosswalk in commercial and residential areas, or around public space in areas where there is a desire for urban character.

CULTIVATING CHANGE

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Public space. There should be welcoming spaces for the community to gather. New activity can occur in parking lots or vacant lots, including the introduction of a new public park and improvements to adjacent facades, especially in areas with limited access to parks and open space.

Site Frontage. Small changes like temporary or mobile buildings can create space along the sidewalk in places where demand for new buildings is minimal. Bigger changes may add new buildings where redevelopment is located at the sidewalk edge and frontage elements shade the sidewalk, creating a welcoming environment.

Parking. Small changes include minimizing curb cuts, adding trees, and repurposing parking areas for people-oriented uses at small parking lots or areas with capacity for on-street parking. Bigger changes include relocating parking to the rear so that new or expanded buildings can locate at the sidewalk edge for visibility.

CULTIVATING CHANGE

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Building Intensity Small changes can include filling in the “missing teeth” with new buildings that maintain existing heights in areas where demand for new buildings is minimal. Bigger changes can involve infill and redevelopment to allow substantially greater height in places where there is demand for more building space.

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Bike Facilities Small changes may create shared roads for bikes and cars with road paint, signage, and bike racks on the sidewalk. Bigger changes to support biking can involve a two-way protected bike lane on well-used routes near Community Anchors.

Using The Plan

Legal Basis

Tennessee Code Annotated Section 13-4-202 provides for the manner in which a general plan is adopted by the Board and the City Council. TCA Section 13-4-202(B)(2)(B)(iii) states once the general plan is adopted by the Council, all land use decisions in the City shall thereafter be consistent with the plan. For the purposes of defining "consistency," only those elements of the plan related to land use decisions become effective pursuant to the guidance on the following pages. All other sections of the plan are intended as a guide and only for planning purposes.

Future Land Use Planning Map Purpose

The heart of the Memphis 3.0 Comprehensive Plan is the Future Land Use Planning Map. The Future Land Use Planning Map helps guide the City on land use decisions, streets, transportation, transit, public investments in infrastructure and civic spaces, and investments and incentives in housing, neighborhoods, and job centers. The value of the Future Land Use Planning Map is its clarity and predictability in how these resources can be invested in Memphis.

Between November, 2017, through August, 2018, the planning team combined its efforts with various organizations, artists, and architects/designers to engage Memphians in all 14 districts in a series of three

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Future Land Use Planning Map. The Future Land Use Planning Map recommends uses for all areas of the City based on community input, existing conditions, market potential, and the plan’s vision.

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Land Use Categories. Each land use is described in detail on the following pages. This detail is essential to understanding what the designation recommends.

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District Land Use. A more detailed version of each district's Future Land Use Planning Map is found in Part 4. District Priorities.

workshops conducted to envision the future of the neighborhoods that shaped the Future Land Use Planning Map. Each set of district workshops culminated in a draft map for the area.

It is important to understand what the Future Land Use Planning Map is not. The Future Land Use Planning Map does not replace or change zoning. The Future Land Use Planning Map does not have the authority to allow the uses shown to be built by-right; it guides. Only the zoning code (the Unified Development Code or UDC) and decision-making bodies such as the Memphis City Council, Memphis and Shelby County Land Use Control Board, and Memphis and Shelby County Board of Adjustment can allow uses to be built. In those instances where a request goes before one of these bodies, the Future land use planning map is a guide for the decisions made. The guidelines, review, and process for applications subject to historic zoning through the Memphis Landmarks Commission do not change as a result of the Comprehensive Plan.

Zoning and Overlays

Adopted land use does not alter, circumvent, or supersede established zoning or overlays in the Unified Development Code (UDC). The zoning map in the UDC is not changed as a result of the adoption of the Comprehensive Plan, nor does the effect of zoning change. Proposed developments that meet zoning standards are still by-right. And proposed developments requiring a variance from zoning standards still require approval from City Council, Land Use Control Board, Board of Adjustment, even if they conform to recommended land use.

Likewise, areas of the City that are zoned with an overlay (such as the Midtown Overlay) or historic overlay (or local Landmarks district) are not changed as a result of plan adoption. If anything, these areas are strengthened by the recommended land use, degree of change, and recommended actions of the plan. Any changes to zoning as a result of recommended land use will be addressed in a Small Area Plan, which is described in more detail in a later section of the plan.

In order to reinforce this point, the following language shall be added to the UDC: "The Memphis 3.0 General Plan shall be used to guide land use decisions but not in any way supplant the regulations of this Code [the UDC], including but not limited to its Zoning Map or Overlay Districts. A determination of consistency with Memphis 3.0 shall not supersede the approval criteria and findings of fact required for individual land use decisions, as provided in this Code."

Decision Criteria

Pursuant to the legal basis of the plan, the test of "consistency" with the plan is only applied to land use decisions, or when an application is made to change or deviate from zoning. The steps below describe the decision process that will be used to determine consistency, and that will be added to the UDC. This criteria is to be used by staff from Office of Planning and Development (OPD) and Office of Comprehensive Planning (OCP) to review development proposal applications submitted to OPD in order to make an interpretation of consistency in their staff recommendations. This criteria is intended to guide the various bodies in position of making decisions on applications in their interpretations of consistency, as well. In instances where a determination is made that consistency is met, this does not constitute or require approval of a proposal. A determination of consistency shall not supercede the approval criteria and findings of fact for individual land use decisions as provided in the Unified Development Code (UDC).

When making land use decisions, the Land Use Control Board, Memphis City Council and Board of Adjustment shall consider all of the following elements of the Memphis 3.0 General Plan in its determination of consistency:

1. The Future Land Use Planning Map;
2. The land use category descriptions and graphic portrayals, including whether the proposed use would be compatible with the zone districts listed in the zoning notes, the proposed building(s) fit the listed form and location characteristics, and existing, adjacent land uses and zoning;
3. The degree of change map;
4. The degree of change descriptions;
5. The objectives and actions articulated in Goal 1, Complete, Cohesive Communities; and
6. Any other pertinent sections of the Memphis 3.0 General Plan that address land use recommendations.
7. When making recommendations to the Land Use Control Board, Memphis City Council and Board of Adjustment and when consulting with applicants on the appropriateness of a particular land use application, the Office of Planning and Development shall consider all of the sections of the Memphis 3.0 General Plan cited in Paragraphs 1 through 6 of this Sub-Section in its determination of consistency.

Land Use Categories

LAND USE CATEGORIES

LAND USE CATEGORIES

LAND USE CATEGORIES

LAND USE CATEGORIES

LAND USE CATEGORIES

LAND USE CATEGORIES

COMMUNITIES

Anchor Neighborhood - Primarily Single-Unit

AN-S

Primarily Single-Unit Anchor Neighborhoods are characterized by house scale buildings between one and three stories high. A mixture of detached and semi-detached homes fills this residential designation around the anchor location, mostly consisting of single-family homes or duplexes. These neighborhoods are located within a 10-minute walk of the anchor, making residential more accessible for pedestrians to anchor amenities.

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COMMUNITIES

Anchor Neighborhood - Primarily Single-Unit (AN-S)

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Hickory Hill

LAND USE CATEGORIES

COMMUNITIES

Anchor Neighborhood - Mix of Building Types

AN-M

Mix of Building Types Anchor Neighborhoods are a combination of one to three-story house-scale buildings with building scale large home and apartments of up to four stories close to anchors and along corridors. In these neighborhoods is a mix of attached, semi-detached, and detached residential, all located within a 10-minute walk from the anchor destination. Any mixed-use is along corridors, allowing shopping destinations to connect between mixed-use and residential neighborhoods.

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LAND USE CATEGORIES

COMMUNITIES

Anchor Neighborhood - Mix of Building Types (AN-M)

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N. Tucker between Madison Ave. and Court Ave.

LAND USE CATEGORIES

COMMUNITIES

Anchor Neighborhood – Urban

AN-U

Urban Anchor Neighborhoods are destinations for public and private amenities that are within walking distance to a Citywide Anchor. Most buildings are between three and seven stories with an occasional high rise and are a mixture of attached and unattached. The scale of buildings is largely at the block level with some multiplex footprints, making an Anchor Neighborhood - Urban a diverse living and shopping community surrounding a local anchor. Green space may be interspersed to provide community common space.

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COMMUNITIES

Anchor Neighborhood - Urban (AN-U)

⬚ figure Edge District, Photo Credit: Downtown Memphis Commission

COMMUNITIES

Primarily Single-Unit Neighborhood

NS

Primarily Single-Unit Neighborhoods are located greater than a half-mile outside of any anchor destination. These neighborhoods contain mostly detached, house scale residences, serving mostly single-family style living. This is considered the typical suburban community that is not as walkable or accessible from an anchor.

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LAND USE CATEGORIES

COMMUNITIES

Primarily Single-Unit Neighborhood (NS)

⬚ figure Belle Meade

LAND USE CATEGORIES

COMMUNITIES

Primarily Multifamily Neighborhood

NM

Multifamily Neighborhoods are characterized by their house and block size buildings that are a combination of attached, detached and semi-attached homes. These neighborhoods are major residential hubs that consist of apartment complexes and condominiums, and located greater than a 10-minute walk outside of the closest anchor.

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COMMUNITIES

Primarily Multifamily Neighborhood (NM)

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East Memphis

LAND USE CATEGORIES

ANCHORS

Neighborhood Crossing

A-NC

Neighborhood Crossing anchors are characterized by primarily detached house-scale buildings anchored by community institutions. Neighborhood Crossings provide convenient services to the surrounding residential neighborhoods in which they are embedded, allowing neighbors to walk or bike there. A neighborhood crossing can serve as a destination where neighbors rub elbows, and when thriving, can contribute to community character and identity.

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LAND USE CATEGORIES

ANCHORS

Neighborhood Crossing (A-NC)

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Orange Mound, Park Ave at Cella St

LAND USE CATEGORIES

ANCHORS

Neighborhood Main Street

A-NMS

Neighborhood Main Street anchors are characterized by attached and detached mixed-use buildings that line the perimeter of the block along a street and may span several adjacent blocks. Neighborhood Main Streets provide retail and services to the surrounding neighborhoods. They serve as walkable or bikeable destinations where community members can meet multiple daily needs in a single trip. When thriving, they are nodes of activity that enliven a neighborhood.

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LAND USE CATEGORIES

ANCHORS

Neighborhood Main Street (A-NMS)

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Madison Ave, west of S Cleveland St

LAND USE CATEGORIES

ANCHORS

Urban Main Street

A-UMS

Urban Main Street anchors are characterized by attached mixed-use buildings that span multiple blocks along a street. An Urban Main Street provides retail and services to surrounding neighborhoods in a pedestrian-friendly environment, making it possible to accomplish several errands in a single trip. An Urban Main Street is a center of activity and supports a shared sense of community.

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LAND USE CATEGORIES

ANCHORS

Urban Main Street (A-UMS)

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South Main between GE Patterson and E Butler

LAND USE CATEGORIES

ANCHORS

Urban Center

A-UC

Urban Center anchors are characterized by attached buildings that continue for multiple blocks along a street. An Urban Center includes a vertical mix of uses, featuring civic and cultural institutions that serve many neighborhoods or the entire city and which may anchor the center. An Urban Center is a destination for walkable retail, service, and leisure, but accessible from across the city by multiple modes of transportation. Green space may be interspersed to provide community common space.

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ANCHORS

Urban Center (A-UC)

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Poplar at Mendenhall

LAND USE CATEGORIES

ANCHORS

Urban Core/ Downtown

A-DT

Downtown is the anchor for the City of Memphis. It is characterized by mid and high-rise mixed-use buildings placed close to the sidewalk to create a thriving pedestrian environment which is supported by high quality streetscapes and public spaces. Downtown is a Citywide destination where people work, live, shop, and play. It is accessible from across the City by multiple modes of transportation. Green space may be interspersed to provide community common space.

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ANCHORS

Urban Core/ Downtown (A-DT)

⬚ figure Downtown

LAND USE CATEGORIES

ANCHORS

Medical & Institutional Campus

A-C

Medical and Institutional Campus anchors are characterized by a mix of building types and sizes that primarily serve a single institutional use and may include supportive uses and activities. These anchors are walkable places that catalyze activity in adjacent mixed-use anchors and provide a transition of building form and scale where they are adjacent to residential neighborhoods. These areas are accessible from across the city by multiple modes of transportation Green space may be interspersed to provide community common space.

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ANCHORS

Medical & Institutional Campus (A-C)

⬚ figure University of Memphis

LAND USE CATEGORIES

CORRIDORS

Low Intensity Commercial & Services

CSL

Low Intensity Commercial and Service areas consist of low-rise buildings accessible mainly by a car and can encompass up to 5 acres of land for one building. These service areas are outside of the anchor boundary and are usually located along a corridor or within its own area of multiple commercial and service amenities.

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LAND USE CATEGORIES

CORRIDORS

Low Intensity Commercial & Services (CSL)

⬚ figure Summer Ave. at Bartlett Rd.

LAND USE CATEGORIES

CORRIDORS

High Intensity Commercial & Services

CSH

High Intensity Commercial and Service areas are similar to low intensity areas in that they also attract residents from near and far for various commercial businesses and can service greater than a 3-mile radius. These areas are auto-oriented and located outside of anchors. Building sizes can vary in height, but have a much greater floor footprint with often more leasable space than low intensity areas, and often will not be suitable for future intensification of the area.

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CORRIDORS

High Intensity Commercial & Services (CSH)

⬚ figure Wolfchase Mall, N. Germantown Pkwy.

LAND USE CATEGORIES

PARKS & CIVIC SPACE

Open Spaces & Natural Features

OSN

Open Spaces and Natural Features are mainly natural features with a focus on preservation and sometimes allow for passive recreation, such as wildlands, wetlands, or waterways. These lands mainly perform environmental functions that allow for natural wildlife and ecological interactions to occur, therefore, necessitating conservation practices when applicable.

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PARKS & CIVIC SPACE

Open Spaces & Natural Features (OSN)

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Wolf River

LAND USE CATEGORIES

PARKS & CIVIC SPACE

Public & Quasi-Public Buildings & Uses

PQP

Public and Quasi-Public Building areas are public buildings used for recreation or as an institution, such as schools, churches, community center, libraries, and civic buildings. These places are easily accessible by foot or automobile and have formal access points that address the street. Public and/or recreational buildings and spaces may be temporary uses.

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PARKS & CIVIC SPACE

Public & Quasi-Public Buildings & Uses (PQP)

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Hickory Hill Community Center

LAND USE CATEGORIES

PARKS & CIVIC SPACE

Parks & Recreational Facilities

PR

Parks and Recreational Facilities are designated public spaces that are meant to be walkable with forms of active and passive recreation. These areas usually contain formal access points from the street and can be any size up to a regional park.

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PARKS & CIVIC SPACE

Parks & Recreational Facilities (PR)

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Hickory Hill Park

LAND USE CATEGORIES

SPECIAL USE & EMPLOYMENT AREAS

Industrial

Industrial areas are primarily higher intensity forms that are not suitable next to neighborhoods. These active areas are located on land where it is productive for the continued existence of high impact manufacturing and would not need to change to another usage. Industrial areas are usually located alongside highways and thus are majorly accessed by cars, trucks, and freight infrastructure.

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LAND USE CATEGORIES

SPECIAL USE & EMPLOYMENT AREAS

Industrial (I)

⬚ figure ADM Southern Cotton Oil Plant at Chelsea and Fairfax

LAND USE CATEGORIES

SPECIAL USE & EMPLOYMENT AREAS

Industrial Flex

IF

Industrial Flex land allows for mixed-use, which makes this land versatile for development and employment as it is also not on conservation lands or floodplain. This area is lower intensity manufacturing, usually at the scale of one to three stories and can be located next to residential neighborhoods due to their low emissions of sound, light and air pollution.

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LAND USE CATEGORIES

SPECIAL USE & EMPLOYMENT AREA

Industrial Flex (IF)

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Getwell Road

SPECIAL USE & EMPLOYMENT AREAS

Transportation & Logistics Facilities

TL

These land areas are known for their transportation and logistics employment services, such as airports, ports, railyards, and other freight uses. These facilities usually require large areas of land and are mainly accessible by highways. Transportation and Logistics Facilities generate a large amount of regional employment due to the needs of varying skill levels and involve dispersal of goods regularly.

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SPECIAL USE & EMPLOYMENT AREAS

Transportation & Logistics Facilities (TL)

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Memphis International Airport

LAND USE CATEGORIES

TRANSITIONAL AREAS

Transitional Neighborhood

TN

Transitional Neighborhoods are distressed neighborhoods with high vacancy rates mixed with existing residential activity that will continue over the long term. These neighborhoods are sometimes left over from environmental hazards such as flooding and brownfields and/or other conditions that make future investment difficult and are often unable to recover.

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Westwood

TRANSITIONAL AREAS

Transitional Commercial

TC

Transitional Commercial areas are commercial areas that have faced decline and disinvestment over years. These areas are usually saturated with vacant business fronts that are intended to transition from outdated commercial uses to more appropriate uses over time but not prioritized for reinvestment.

⬚ figure Chelsea Ave

LAND USE CATEGORIES

TRANSITIONAL AREAS

Transitional Industrial

TI

Transitional Industrial areas are identified by the declining or abandoned industries located on and around the site. These can sometimes be classified as brownfields, vacant industrial parcels, or places no longer suitable for industrial use since land values no longer are conducive to intensive development and/or location is in a sensitive environmental area or near residential. These spaces are better to transition into open space and/or passive recreation which may require environmental remediation, but may be put back to productive use.

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Warford Rd

Future Land Use Planning Map

This map shows future land use for all areas of the City of Memphis. To view a larger version of this map, go to https://www.memphis3point0.com/plans-and-maps.

• Anchor Neighborhood - Primarily Single Unit
• Anchor Neighborhood - Mix of Building Types
• Anchor Neighborhood - Urban
• Primarily Single Unit Neighborhood
• Primarily Multifamily Neighborhood
• Neighborhood Crossing
• Neighborhood Main Street
• Urban Main Street
• Urban Center
• Urban Core / Downtown
• Medical & Institutional Campus
• Low Intensity Commercial & Services
• High Intensity Commercial & Services
• Open Space & Natural Features
• Public & Quasi-Public Buildings & Uses
• Parks & Recreation Facilities
• Industrial
• Industrial Flex
• Transportation & Logistics Facilities
• Transitional Neighborhood
• Transitional Commercial
• Transitional Industrial

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Street Typology and Design

The concept for future land use for Memphis started with input from the public on future growth scenarios, and was refined through the process of identification of place types and selection of Citywide and Community Anchors. For growth to achieve the goals related to Land, Connectivity, and Opportunity, the Comprehensive Plan concurrently developed a streets typology and map to serve as the basis for a new Major Roads Plan for the City and a new Transit Vision map to connect anchors, communities, and employment centers with more frequent transit service. Further, the Comprehensive Plan draws inspiration from the Mid-South Regional Greenprint by identifying opportunities to connect anchors, communities, and centers by the network of green space recommended in the regional Greenprint plan.

Coordination of land use and transportation are essential for a successful plan of growth, but seldom are these elements developed concurrently. By designing a streets typology focused on more dense, walkable streets, a frequent transit network that places greater emphasis on ridership and support of transit-oriented communities, and support for commerce and industry in the City, the plan aims to build the types of communities desired by Memphians and in line with the plan's vision.

Street Type Classification and Future Land Use

Street types classification for the Memphis 3.0 Comprehensive Plan began with a review of the street classifications in the existing Memphis Roadway Regulatory Plan. The goal is to illustrate how a more nuanced menu of street types could fit into the role of Thoroughfare, Connector, and Neighborhood Streets. The existing streets and contexts in Memphis appear in a higher variety of designs as well. Based on a process of reviewing the existing streets in the City of Memphis, 10 street types were generated for the purposes of the Comprehensive Plan. The goal was to classify streets at a comprehensive planning level by showing more than only three street types, but not the multiple street types as shown in the Complete Streets Project Delivery Manual (CSPDM). Detailed designs and typical sections from the CSPDM can be derived from these 10 street types.

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STREET TYPOLOGY AND DESIGN

The Applicability Matrix (shown on the following page) shows the 10 street types matched up with the future land uses generated in the Comprehensive Planning public workshop process. The streets are matched to the place types based on context, applicability, and appropriateness to the land uses and densities/intensities of the specific place types. Based on the proposed land uses, the Local, Avenue, and Boulevard Streets are universally applicable across all districts. The other street types are more specialized and are classified by appropriateness to the land uses.

Design of Mobility System - Street Types Mapping

As Memphis plans for the next 20 years, the community should focus on building a mobility system that offers choices and focuses on moving people. Memphis residents and visitors should have multiple options for the routes they take to reach destinations and options for the mode of travel, whether it be by car, transit, bicycle, or walking. The system should also be consistent with and sensitive to the surrounding context of the future land use it serves. The Street Types Map illustrates the Memphis 3.0 Street Types and begins to reveal recommended focus corridors and connections over the lifespan of this plan, both for motor vehicles and for active transportation. The plan is augmented by development of a street typology designed to be safe and attractive for all users, regardless of how they move, serve the future land use’s place types, and support the surrounding natural and built contexts.

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After the future land uses and street types were generated through the public input process and existing conditions analysis, maps of each district were generated that classify every street in Memphis into one of these street types. Street types and the Street Types Map should be considered a guide or planning level analysis. Combination of the City's Roadway Regulatory Plan, Complete Streets Project Delivery Manual, and the street type, along with further analysis of applicability of future land use, traffic volume, and functional classification should inform the creation of a Streets Plan for the City to replace the outdated Major Roads Plan.

APPLICABILITY MATRIX

STREET TYPOLOGY AND DESIGN

Street Typology and Design Mobility projects proposed for Memphis should include a combination of road enhancements and expansion of the existing greenway/pathway system. The street types are depicted on the Street Types Map. Street designs are illustrated in the typical sections in the following pages. Two key differences exist between these street typologies and those previously used in the City: first, they are context-specific and are related to particular future land uses developed as part of the Memphis 3.0 planning process. The street types and future land uses are correlated through the Applicability Matrix (shown on the previous page) so that streets within each future land use are contextually consistent with the surrounding land use and vision, and the streets enable that vision to be implemented. Second, the street types are not categorized in a conventional manner; there are more street types than typically covered by the Memphis Roadway Regulatory Plan's classification of "thoroughfare," "connector," and "neighborhood" streets, or the conventional functional classification of “arterial,” “collector,” and “local” streets. However, the table below shows the relationship between the new street typologies and those used in the Complete Streets Project Delivery Manual and the Roadway Regulatory Plan. Consistent with the Complete Streets Project Delivery Manual and the Roadway Regulatory Plan, the street types promote flexibility in the relationship with conventional functional classifications. Following the adoption of the Comprehensive Plan, a separate but related update to the City's Major Roads Plan will be developed, merging the efforts of the Street Typology, Complete Streets Project Delivery Manual, and Roadway Regulatory Plan into a single, unified Streets Plan that more clearly articulates the relationship with functional classification. It is important to note the Street Typology on the following pages should not be construed to negatively impact funding for road projects underway at the time of plan's publication, nor does it require typical sections to be followed. The Street Typology section is intended as a guide.

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TYPOLOGY RELATED TO MEMPHIS ROADWAY REGULATORY PLAN CLASSIFICATION

STREET TYPE

Alley

Existing alleys in Memphis primarily occur in Downtown and Midtown as back-of-building service access. These alleys are generally 12’-14’ wide and are either fully paved from building edge to building edge or are gravel surfaces. These alleys can be improved by having new aprons put in at the block ends and concrete headers to provide a clean straight edge when buildings and utility infrastructure are an uneven alley edge. Alleys also provide an opportunity to incorporate stormwater storage and infiltration if built with permeable pavement surfacing. Any new alley should have a 20’ minimum right-of-way that can also be incorporated into new infill developments.

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STREET DESIGN PARAMETERS

Notes: Existing alleys that are narrower should be grandfathered in and remain at existing widths. This is the case especially in Downtown and other older areas of the City.

*Utilities should be placed under the street or just outside the alley's curb if additional right-of-way or easement is provided.

STREET TYPOLOGY AND DESIGN

STREET TYPE

Alley

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Residential Alley in Harbor Town

STREET TYPE

Rural Street

In rural and transitional areas of Memphis where stormwater and wastewater do not feed into sewers, other forms of drainage must be provided. Along rural streets, open channel drainage ditches are typical and must be accommodated within special cross-sections. These sections could accommodate rain gardens or biofiltration as well in many areas where environmental concerns such as floodplains occur, rural streets can offer the lightest imprint on the natural landscape while providing the much-needed connectivity for all modes of travel. Examples where a rural street would be applicable are Robertson Road in Frayser, West Pearson Avenue in MLK Jr. Riverside Park, and Farm Road at Shelby Farms Park.

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STREET DESIGN PARAMETERS

Notes: Streets without a sidepath must include paved shoulders. Travel lanes on freight and transit routes, travel lanes can be 12' wide.

*All utilities should be located within the green strip or just beyond the edge of the shared use path or shoulder if additional right-of-way or easement is provided.

STREET TYPE

Rural Street

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West Pearson Ave in Martin Luther King Jr Park

STREET TYPE

Local

Local streets provide access to individual lots, accommodate pedestrians, and serve as low-speed bicycle and vehicle routes. Local streets should be relatively short in total distance related to the other street typologies and serve as the street that fronts residential development. For multi-family frontages, the parking may be accommodated in parallel bays adjacent to distinct travel lanes; for single family frontages, the street is a shared travel way where two moving directions of traffic share space with parked vehicles in a "yield" condition. Streetscape is more formal, with street trees in a regular planting spacing, and sidewalks on both sides of the street. Neighborhood streets serving primarily residential uses would be considered Local streets.

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STREET DESIGN PARAMETERS

Notes: Local Streets are unmarked yield streets. In Downtown and University Districts, sidewalks may be 10' wide with tree wells. 24' wide roadway minimum for residential areas, 30' wide maximum for mixed-use and commercial areas. Parking allowed on both sides.

*All utilities should be located within the green strip or just beyond the edge of sidewalk if additional right-of-way or easement is provided. Undergrounding of utilities is possible in urban areas.

STREET TYPE

Local

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Residential Street in Harbor Town

STREET TYPE

Shared Street

Main Street in Downtown Memphis is an example of a shared street. For portions, there are no curbs and the travel way of the street is at the same grade as the sidewalks. Having historically been a pedestrian mall, vehicles have limited access along Downtown Memphis’ Main Street. The shared street is multi-modal in nature and includes the existing trolley, shared travel lanes, flexible space for parking between the existing trees, street trees and furniture, and a minimum of 13' wide promenade sidewalks. To add a layer of security, bollards or cast concrete barrier elements can be arranged between the primarily vehicular space and the pedestrian promenade. This is a slow speed, multi-modal street that accommodates sharing by all users

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STREET DESIGN PARAMETERS

Notes: Parking allowed between trees on either side of the shared street in promenade area as space and surrounding land uses allow. Vehicular areas bound by collards or other barriers as shown.

*All utilities should be underground and located under the street or sidewalk.

STREET TYPE

Shared Street

⬚ figure South Main Street

STREET TYPE

Avenue

An avenue is a walkable, low-speed street that carries a mixture of through and destination traffic. Avenues provide access to abutting commercial, residential, and mixed land uses, and can accommodate cars, pedestrians, and cyclists. Avenues can have between two and three travel lanes and can have side planting strips and planted spot medians at high-use pedestrian mid-block crossings. They may also have on-street parking and will have sidewalks and some form of striped or buffered/separated bicycle accommodations based on traffic speed and volume. Dr. Martin Luther King Jr. Avenue, Central Avenue, McLean Boulevard, and Shelby Oaks Drive are considered avenue streets.

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STREET DESIGN PARAMETERS

Notes: Two-lane option should have a 48' width without a center turn lane. Bicycle facilities may also be separated on higher speed, higher volume streets. Three-lane avenues should have spot medians at prominent pedestrian crossings. Lanes should be 11' wide on freight and transit routes.

*All utilities should be located within the green strip or just beyond the edge of sidewalk if additional right-of-way or easement is provided. Undergrounding of utilities is possible in urban areas.

STREET TYPOLOGY AND DESIGN

STREET TYPE

Avenue

⬚ figure Madison Ave at Belvedere Blvd

STREET TYPE

Boulevard

A boulevard street is a uniquely Memphis street type that serves as a two-lane neighborhood connector that consists of primarily residential frontage but can also serve commercial uses. Boulevard streets have a more formal streetscape pattern by essentially being an avenue street with a full planted median in the center of the street and planting strips at the sidewalks on the street edges. They may also have on-street parking and will have sidewalks and some form of striped or buffered/separated bicycle accommodations based on traffic speed and volume. South Belvedere Boulevard, Alicia Drive, Century Street, and Reese Street are examples of boulevard streets.

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STREET DESIGN PARAMETERS

Notes: On slower speed/narrower lane boulevards, the bike facilities can be shared lanes. The median includes left turn lanes at key entrances. Lanes should be 11' wide on freight and transit routes.

*All utilities should be located within the green strip or just beyond the edge of sidewalk if additional right-of-way or easement is provided. Undergrounding of utilities is possible in urban areas.

STREET TYPE

Boulevard

⬚ figure S. Belvedere Blvd

STREET TYPE

Main

Main streets are storefront retail-oriented streets. Main streets are walkable and serve as the primary access street for commercial or mixed-use areas. On-street parking is provided as parallel or angled. Due to high pedestrian activity, design speeds are kept low. This condition allows bicycles to share space with automobiles in travel lanes. In areas of higher traffic, bike lanes or cycle tracks may be appropriate. Additional landscaping and traffic calming techniques include street trees, raised crosswalks, curb bulb-outs, and street furniture. Pedestrian-scale street lighting should be installed and utilities should be underground, in alleys, or other streets. Sidewalks are required on both sides of the street and will ideally be at least 16 feet from the face of curb to the building face to provide space for activities such as outdoor cafes and strolling.

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STREET DESIGN PARAMETERS

Notes: A three-lane main street is allowable. Part of the sidewalk width can occur on private property as retail storefronts step back and forth relative to right-of-way.

*All utilities should be underground and located under the street, sidewalk, or furnishings zone.

STREET TYPOLOGY AND DESIGN

STREET TYPE

Main

⬚ figure South Main

STREET TYPE

Transit Mall Street

Transit mall streets occur in Downtown anchors and have dedicated and separated bus transit lanes that can be shared bicycle lanes. Transit mall streets are low-speed Downtown streets that carry a mixture of through and destination traffic. These streets have a raised buffer median that can be planted and separates bus and bicycle traffic from vehicular traffic. Transit mall streets also have wider sidewalks typical of Downtown settings with trees planted in tree wells. In Memphis, Second Street and BB King Boulevard are transit mall streets.

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STREET DESIGN PARAMETERS

*All utilities should be underground and located under the street, sidewalk, or furnishings zone.

STREET TYPOLOGY AND DESIGN

STREET TYPE

Transit Mall Street

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BB King Blvd at Exchange Ave

conceptual rendering: Self-Tucker Architects

STREET TYPE

Parkway

A parkway street is a regional travel facility that typically coincides with State routes and designated freight and transit routes. Parkway streets can occur in residential areas or in areas of office and retail commercial frontage, sometimes with multiple intersections and access to businesses. Parkway streets are four lanes in width with a landscaped, continuous center median and left turn pockets at intersections and key access points. Parkway streets should offer accommodations for pedestrians and bicycles in a facility such as a shared use path at the right of way edge, separated bicycle lanes, or a separated cycle track. North Parkway, Summer Avenue, and Jackson Avenue are examples of parkway streets.

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STREET DESIGN PARAMETERS

*All utilities should be located within the green strip or just beyond the edge of sidewalk if additional right-of-way or easement is provided. Undergrounding of utilities in possible in urban areas.

STREET TYPE

Parkway

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North Parkway

STREET TYPE

Parkway Options

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Multi-Way Parkway

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Bus Rapid Transit Parkway

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Conventional Parkway

STREET TYPE

Parkway Options

Three additional options for Parkways are included in the Street Typology, including a more conventional six-lane parkway option. The conventional six-lane option is found today along streets such as Poplar Avenue and Union Avenue. A Where recommended, parkways can include Bus Rapid Transit (BRT) lanes to have multiple travel modes supported. Parkways with BRT lanes typically have a lane for travel, a buffered or separated lane for transit, and a buffered or separated lake for and bicyclists in each direction. Another long-term parkway street option is an urban multi-way configuration. In this scenario, landscaped medians separate and buffer regional, higher speed through traffic from a local access lane that accommodates parking, low speed vehicular traffic, bicyclists, and pedestrians in an urban street frontage condition. In this configuration, the access lanes are low-speed and are designated as shared use, and the adjacent sidewalks can be wider in more of a main street configuration with buildings directly fronting the sidewalks. Shared use paths could also occur in the medians if they are wider.

STREET DESIGN PARAMETERS

Notes: Wide planting includes an 10'-12' shared use path. Median includes left turn lanes at intersections and key entrances. Tree wells are 5' wide minimum. Outside travel lanes may be narrower on Parkways not designed as transit routes.

*All utilities should be located within the green strip or just beyond the edge of sidewalk if additional right-of-way or easement is provided. Undergrounding of utilities is possible in urban areas.

STREET TYPE

Industrial Freight

Industrial freight streets are designed to support multiple travel modes, including automobiles and freight movers. These streets generally are found in commercial, industrial, and warehouse districts and give way to parkways as they enter more retail and residential land use contexts. Industrial freight streets are designed for high vehicular capacity with high vehicular accessibility to adjoining urban land uses. The typical section is a maximum of five lanes with a continuous center left turn lane with spot medians where there are high pedestrian crossing areas. A conventional, seven-lane is option is included. Winchester Road near the Memphis International Airport and Shelby Drive are examples of Industrial freight streets.

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STREET DESIGN PARAMETERS

Notes: Median includes left turn lanes at intersections and key entrances. Continuous turn lane should have spot medians at prominent pedestrian crossings.

*All utilities should be located within the green strip or just beyond the edge of sidewalk if additional right-of-way or easement is provided. Undergrounding of utilities is possible in urban areas.

STREET TYPE

Industrial Freight

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Shelby Dr

STREET TYPE

Industrial Freight Options

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Bike Option

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Conventional Option

STREET DESIGN PARAMETERS

Notes: Median includes left turn lanes at intersections and key entrances. Continuous turn lane should have spot medians at prominent pedestrian crossings.

*All utilities should be located within the green strip or just beyond the edge of sidewalk if additional right-of-way or easement is provided. Undergrounding of utilities is possible in urban areas.

Street Types Map

This map shows street types for every road in the City. To view a larger version of this map, go to https://www.memphis3point0.com/plans-and-maps.

■ Alley ■ Avenue ■ Boulevard ■ Industrial Freight ■ Limited Access ■ Local ■ Main ■ Parkway ■ Rural ■ Shared Street ■ Transit Mall

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Photo: Connor Ryan

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Implementation

The key to the success of Memphis 3.0 is maintaining broad community support for sustained action. Following approval by the Memphis and Shelby County Land Use Control Board and adoption by the Memphis City Council, Memphis 3.0 must maintain broad community support to take action, fund targeted investments, and establish partnerships that will initiate transformative, Citywide change. The Memphis 3.0 Comprehensive Plan is the City's guide for the type, intensity, and concentration of growth and should serve to guide future public and private investment. The Office of Comprehensive Planning is the lead agency to ensure the plan's implementation and serve as a resource and expert on the plan to other City of Memphis departments. The Office will continue to work with external partners and community building agencies to ensure the plan remains responsive to the direction of the community and inclusive of diverse voices across Memphis.

The implementation of the Comprehensive Plan is achieved in three primary ways: actions, investments, and partnerships. The implementation recommendations contained in this plan can be found in Part 3: Plan Elements. The Plan Elements of Land, Connectivity, and Opportunity encompass the core elements of how the Memphis 3.0 Comprehensive Plan can shape the community's future through 2040 and throughout our third century.

Tools for Implementation

Actions

Recommended actions support the goals and objectives of the plan and if applied over time, can result in compact, but impactful, growth. Many recommended actions focus on aligning goals, advocating for change at the State level, and encouraging multiple benefits or improvements. The Plan Elements contain actions that direct how our City can make smarter land use decisions, promote better connectivity and access, and work to achieve greater prosperity and opportunity. These Plan Elements are guided by Part 2: Our Framework For Change, a statement of the plan's vision and theory of change and recommendations for the future form and character of places in Memphis. Many of the recommendations related to actions and investments are directly related to future land use and supporting infrastructure. Any future growth plans related to infrastructure and development should be guided by the Comprehensive Plan.

The Unified Development Code (UDC) provides zoning and subdivision regulations for the City of Memphis and unincorporated Shelby County and is a key tool to implement the land use framework in this plan. Refinements to the UDC should be further studied to ensure zoning regulations can effectively guide development patterns align -ing with the Memphis 3.0 plan. This may include mixed-use zones to be compatible with Memphis' broad range of Citywide and Community Anchors, recalibration of industrial zone districts to be more compatible with mixed-use neighborhoods where appropriate, and the introduction of new standards and tools to accommodate transitional land uses.

Each land use type correlates land use designations with implementing zoning districts of general compatibility. Within anchors, anchor neighborhoods, and other areas where change and reinvestment are anticipated, Small Area Plans can provide detailed direction for comprehensive land use and zoning modifications, transportation and mobility upgrades, urban design guidelines, financing strategies, and other physical planning and public investment projects. Zoning amendments ensure the form, intensity, and character of infill development aligns with community aspirations. Small Area Plan implementation should be prioritized for anchors where a more detailed planning process is warranted. More on Small Area Plans can be found in Goal 1.

In addition to the land use map, the Comprehensive Plan also includes a street types map and street typology framework to guide the design of public right-of-way to align with surrounding land use. Previously, the City relied on an outdated Major Roads Plan to identify future right-of-way needs and street design. In more recent years, the City has undertaken the development of a Complete Streets Project Delivery Manual and Roadway Regulatory Plan to set new standards for street design based on principles of Complete Streets. The plan helps to promote a framework whereby a new Streets Plan can be developed to combine these efforts, further consider surrounding land use, transportation demands, and replace the City's Major Roads Plan.

UDC, the zoning code and subdivision regulations for the City of Memphis and unincorporated Shelby County

IMPLEMENTATION

Investments

The Comprehensive Plan guides investments made by public agencies and seeks to guide investments from the private, philanthropic, and nonprofit sectors. Within the public sector, the primary vehicle for public investment is the use of capital improvement funding. Recommended capital improvements are presented in the Investment Focus sections within the Plan Elements and District Priorities. These Investment Focus sections describe guidance broadly on how the City can better direct dollars to communities.

The Memphis 3.0 Comprehensive Plan is intended to be amended to include future small area plans or systems plans to further define investment guidance. Subsequent Small Area Plans may be developed in anchors and anchor neighborhoods that more specifically define investment recommendations in these areas beyond those projects identified as Investment Focus. Subsequent systems plans, for areas such as sewer or parks, for example, may also be developed to more specifically define investment recommendations.

The City's Capital Improvement Program (CIP) should be guided by the Comprehensive Plan. The plan should be consulted when divisions develop proposals for consideration for CIP funding and when proposals are reviewed, giving credit to projects that demonstrate compliance or adherence to the plan. The CIP scoring criteria should award points for directing resources to areas designated as anchors or anchor neighborhoods, to projects identified in the Investment Focus sections of the Comprehensive Plan or in subsequent small area or systems plans adopted as amendments to the Comprehensive Plan, and to projects that illustrate demonstrated partnership among two or more divisions or agencies of City of Memphis government.

These sections of the plan should also serve as guidance for investment priorities submitted for external funding programs, such as federal, state, or local grants for transportation, infrastructure, housing, public spaces, or other public use. Any program that provides external funding for community use should consult the plan to understand how investments can be made in accordance with the plan, its Anchor strategy, Investment Focus areas, or subsequent adopted small area or systems plans. The use of financial incentives, such as payment-in-lieu-of-tax (PILOT) or tax increment financing (TIF), should also follow similar guidance as found in the recommended policies in Part 3: Plan Elements.

Finally, the City should expand its level of community funding by establishing an Affordable Housing Trust Fund (see Investment Focus in Goal 7. Prosperous and Affordable Communities) and a Community Catalyst Fund (see Investment Focus in Goal 1. Complete, Cohesive Communities). The purpose of these two funds is to seed funding in neighborhoods following the completion of a small area plan for investments that demonstrate the potential for returns.

Partnerships

The City cannot implement the Comprehensive Plan alone. Partners are recommended to implement the recommended actions and to execute targeted investment strategies for both the City and individual districts. Partners come in the form of other governmental bodies and agencies, private partners, nonprofits, and philanthropy. Partnerships, and the roles of partners, are noted throughout various sections of the plan.

Measuring Success

The Plan Elements and District Priorities sections contain the implementation recommendations and guidance to achieve the vision and framework for change. As noted in the previous section on Implementation, the plan is executed through actions, investments, and partnerships. The City of Memphis Office of Comprehensive Planning will demonstrate success of the plan through annual reporting on progress completing recommended policies and investments contained in the Plan Elements and the District Priorities. Annual updates will report on activities and action steps taken in the planning districts as well, such as capital improvements made or funded, small area plans developed, or new investments identified.

The Comprehensive Plan will be reviewed and updated annually to ensure progress, changes in the development landscape or City infrastructure, and emerging community priorities can be integrated into the plan in a flexible, responsive manner. The Office of Comprehensive Planning will continue its work by producing annual plan updates, small area planning, promotion of the plan’s recommended actions, and leveraging funds for investment and district priorities.

OCP will continue to track the outcomes of the plan based on key indicators identified in the future growth scenario planning process. These key indicators, listed below, were identified through the community input process, steered discussions of community values for future growth, and framed the future growth scenarios.

LAND

• Population change
• Population density
• New residential development
• New residential development (home value range and area median income)
• New residential development (proximity to commercial and employment centers)
• New non-residential and mixed-use development
• Change in access to parks and open spaces
• Change in access to schools
• New development by planning district
• New investment in anchors and anchor neighborhoods

CONNECTIVITY

• Transit frequency
• Access to frequent transit
• Change in access to walkable areas
• Change in access to bikeable areas
• Change in infrastructure maintenance cost
• Infrastructure investment in anchors and anchor neighborhoods
• Reduced energy consumption
• Reduced crashes and roadway fatalities
• Reduced travel-to-work time
• Increase in transit use, bicycling, and walking for transportation

OPPORTUNITY

• New tax revenues
• Change in access to employment centers
• Change in access to retail centers
• Residential access by affordability (housing, transportation, and utilities)
• Change in household poverty

Photo: David Roseberry

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PART THREE:

Plan Elements

LAND

Memphis is a smart, sustainable City that anchors growth and density in the core and today's neighborhoods and prevents prolonged disinvestment in communities across the City.

■ Goal 1: Complete, Cohesive Communities p.157 ■ Goal 2: Vibrant Civic Spaces p.178 ■ Goal 3: Sustainable and Resilient Communities p.188

CONNECTIVITY

Memphis is a connected and accessible City that invests in infrastructure and mobility options that provide access to opportunities and services for all populations.

■ Goal 4: High Performing Infrastructure p.200 ■ Goal 5: Connected Corridors and Communities p.211

OPPORTUNITY

Memphis is a City of opportunity that focuses on access, affordability, and civic capacity for a prosperous and inclusive community.

■ Goal 6: Equitable Opportunities p.220 ■ Goal 7: Prosperous and Affordable Communities p.230 ■ Goal 8: Engaged Communities p.238

Using The Plan

Goals and Objectives The plan consists of eight goals organized by the Land, Connectivity, and Opportunity elements supporting the Build Up, Not Out vision. The goals describe the future condition of the City and objectives provide more detail with measurable desired outcomes.

Actions Each objective is supported by a series of recommended actions to be considered in the short, medium, or long-term suggesting regulatory changes, investment, and partnership recommendations. Recommended actions are cross-functional and support the guiding values established at the start of the planning process. Actions are intended as guidance for the City over the short, medium, and long-term and should be evaluated appropriately prior to implementation.

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Goal. In the plan elements section, the goal referenced will always be in the upper right-hand corner.

Objective. The full objective will be listed with a briefing on how recommended actions come together to achieve a desired outcome.

Actions. A list of recommended actions will follow a narrative generally describing the aim and intent of the objective and featured actions. These recommendations are listed in no particular order.

LAND

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Goal 1

COMPLETE, COHESIVE COMMUNITIES

Memphis is a City of great neighborhoods, but challenged in its ability to serve neighborhoods by a historic growth pattern that has spread resources thin over a large land area. In order to Build Up, Not Out, Memphis must make choices about where and how to focus growth in future years. Through community input on future growth scenarios and district planning, the future land use plan for Memphis is one that focuses growth in and around Community and Citywide Anchors. The goal of Complete, Cohesive Communities provides a template for how the City can and should leverage its great downtown and great neighborhoods to set high standards for design, preserve the character of the City and neighborhoods, and reduce blight and vacancy, while promoting mixed-income, mixed-use, walkable, and healthy communities.

Goal 1: Complete, Cohesive Communities

OBJECTIVE

1.1 Focus future growth and density in and around Community and Citywide Anchors

In order to achieve the plan vision to Build Up, Not Out, one of the most central ideas of the Comprehensive Plan is the concentration of growth, investment, and density in select areas of the City’s core and neighborhoods. The idea of identifying Citywide and Community Anchors as the basis of future land use was formed from public input, guiding planners to balance a growth approach across the core city and in neighborhood centers. These anchors form the building blocks of the future city in Memphis.

Citywide Anchors are primarily places of higher concentration of population, jobs, and activity: Downtown, Medical District, and University area. Development forms in Citywide Anchors should consist primarily of attached, multistory buildings and towers with vertical mixed-use development comprised of retail, service, office, civic, entertainment, education, and residential. The public realm in Citywide Anchors should encourage pedestrian activity through wide sidewalks, plazas, and squares and designed to be transit-oriented. Mixed use developments should have ground-floor retail or other visible uses adjacent to the public realm.

Community Anchors are centers of activity located in the heart of well-connected residential communities. Development forms in Community Anchors are typically one or two stories, although taller buildings may be present in some neighborhoods. Community Anchors can include mixed-use structures, although a mix of single-use structures is more common. Central to a Community Anchor’s success is a development form that promotes the creation and maintenance of places where surrounding communities come together in a mix of uses, such as retail and commercial, civic and service, and residential. Community Anchors are transit-supportive areas of the City.

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Citywide and Community Anchors depend on high quality density and infill, building design, street design, and infrastructure investments in order to be successful. Primary attention should be paid to these places by means of closely following the actions of this objective in future land use and investment decisions. In addition to policy guidance, this objective establishes guidance for the plan’s focus on investing in Accelerate anchors and criteria for the small area planning process.

ACTIONS

1.1.1 Within anchors and anchor neighborhoods, ensure that zoning designations support, maintain, and encourage walkable, mixed-use infill development.

1.1.2 Create a comprehensive and flexible package of financial incentives to assist infill development around Citywide and Community Anchors.

1.1.3 Target financial incentives to support growth in Accelerate and Nurture anchors.

1.1.4 Provide administrative incentives for targeted anchors, including expedited plan review and permitting, regulatory assistance, and prioritized code and environmental enforcement.

1.1.5 Support and establish entitlement assistance programs that support well-designed infill development within and around anchors and anchor neighborhoods.

1.1.6 Develop and adopt a protocol for identifying and conducting small area planning to support quality growth and density around anchors and anchor neighborhoods.

1.1.7 Develop and implement inclusive, community-based small area planning to catalyze infill development and infrastructure improvements in anchors and anchor neighborhoods.

ACTIONS (CONTINUED)

1.1.8 Align and prioritize Capital Improvement Program investments that facilitate infill growth and reinvestment in and around Community and Citywide Anchors.

1.1.9 Review and revise scoring criteria for capital improvements to emphasize projects that support infill by addressing multiple objectives of the Comprehensive Plan.

1.1.10 Align and strengthen land use policy and incentives to support transit-oriented and transit-supportive infill development in and along target anchors and corridors.

1.1.11 Increase and enhance multimodal access and connectivity to civic spaces that promote community gathering within anchors.

1.1.12 Support the creation of new public spaces within and around anchors and anchor neighborhoods.

1.1.13 Support the creation and rehabbing of public spaces within and around anchors to create central spaces to gather and interact.

1.1.14 Integrate local amendments to building and fire codes that promote density and infill, walkable streets, and reduced curb radii.

1.1.15 Adopt the land use plan to guide development patterns and decisions.

1.1.16 Adopt and follow the land use typologies to determine consistency with zoning and land use decisions.

1.1.17 After the adoption of the Comprehensive Plan and streets plan, develop a Citywide map of frontages and adopt into the UDC.

1.1.18 Review and update maximum setbacks in the frontage standards of the UDC to promote more active streets.

1.1.19 Consider the adoption of build-to standards within the UDC's frontage requirements.

1.1.20 Explore the elimination of parking requirements or setting parking maximums in Citywide Anchors.

1.1.21 Explore the elimination of parking requirements or setting parking maximums in along high frequency transit corridors.

1.1.22 Continue current policy limiting extension of sewer service beyond the City's limits.

1.1.23 Ensure application of street types is made in conformance with anchors and future land use plan.

1.1.24 Prioritize upgrade and expansion of sewer capacity in a manner that aligns with Citywide and Community Anchors, degree of change, and land use.

1.1.25 Ensure repair, maintenance, upgrade, and expansion of infrastructure supports mixed-use development, particularly in Citywide and Community Anchors.

1.1.26 Focus capital investments in constrained sewer basins that support growth in Accelerate anchors.

1.1.27 Identify and prioritize upgrades needed in utility infrastructure that supports Citywide and Community Anchors.

1.1.28 Expand utility infrastructure to support mixed use development in Citywide and Community Anchors.

1.1.29 Encourage higher-density commercial and residential development in anchors supported by high frequency transit.

1.1.30 Incentivize housing and employment growth to occur around Citywide and Community Anchors and high frequency transit corridors, preserving and integrating existing affordable housing where possible.

1.1.31 Increase infill and redevelopment that locate residential, employment, and retail uses near each other to maximize transit and active transportation.

1.1.32 Identify and prioritize upgrades in streetscape amenities such as lighting, furnishings, and shade.

Small Area Plan Criteria

The Comprehensive Plan is a general plan that provides the City’s future growth strategy and a land use plan based on the Build Up, Not Out vision. The Comprehensive Plan also provides recommended actions that support the plan vision and goals. While the plan provides this general guidance, there may be instances where a more refined planning process is needed to facilitate growth, development, or transportation and mobility needs.

Types of Area Plans

Anchors and Anchor Neighborhoods could be subject to subsequent Anchor Plans. The purpose of Anchor Plans is to identify opportunities, locations, and strategies for infill within anchors and anchor neighborhoods and the public investments and projects that should be considered to encourage and direct private investment. Area plans would result in a more detailed implementation program and may result in amendments to the zoning map within the plan area boundary that follow the Memphis 3.0 guidance for land use and zone implementation.

Commercial and Mixed-Use Corridors could be subject to subsequent Corridor Plans. The purpose of Corridor Plans would be to identify opportunities for multimodal transformation of the corridor, improve linkages between anchors and other community destinations, consider aesthetic improvements (gateways, landscaping, beautification), and ways to improve development patterns along corridors. Corridor plans could also result in a more detailed implementation program and may also result in amendments to the zoning map within the plan area boundary, but would not be seen as opportunities to necessarily plan for growth.

District subareas that need additional detailed area planning work, are not Anchors or Corridors, but are not expected to accommodate growth or anticipate substantial coordinated public/private investment may be subject to subsequent Transitional Area Plans. These might include clusters of transitional land uses or other areas needing planning attention, such as places where significant blight and/or vacancy are occurring.

Larger areas of the City could be the focus of combined planning activities depending on available resources, the presence of local CDCs and other community organizations, and district boundaries. For example, a larger corridor plan could include one or more anchors and the anchor neighborhoods surrounding them or an anchor plan could include an adjacent area of transitional land use.

Small Area Plan Scope

At a minimum, the Small Area Plan is expected to build from the Memphis 3.0 Comprehensive Plan by:

• Involving community in a design charrette process;
• Describing how the shared vision, objectives, and land use policy can be implemented in the project area;
• Describing how market conditions and market potential can translate into feasible strategies for development and revitalization within the plan area;
• Developing a detailed implementation plan that identifies projects and funding sources in short (0-2 years), medium (2-5 years), and long-range (5-10+ years) timeframes;
• Recommending changes to zoning and/or consideration of design guidelines;
• Developing strategies to strengthen commercial development;
• Determining priority infrastructure needs;
• Developing strategies to create affordable and market rate housing;
• Developing strategies to improve the public realm, including streets and civic spaces;
• Developing strategies to strengthen connections between housing and jobs and between civic assets; and
• Developing strategies to generate economic return on investment, including consideration of a tax increment financing district and other tools and incentives.

Small Area Plan Criteria and Checklist:

The following questions should be considering when determining the type of small area plan.

Is the area an anchor or anchor neighborhood?

If yes, the area is a candidate for a small area plan facilitated by the Office of Comprehensive Planning with strong, inclusive community engagement.

Is the area covered by an existing overlay or special purpose district?

If yes, the area is a candidate for a small area plan and should be conducted in partnership with the Office of Comprehensive Planning and Office of Planning and Development with strong, inclusive community engagement from property owners and stakeholders within the overlay or special purpose district.

Small Area Plan Criteria

Has there been or are there plans for a major development (or developments) that are expected to change the character or momentum of the area? If so, what is the extent?

If yes, the area is a candidate for a small area plan facilitated by the Office of Comprehensive Planning with strong, inclusive community engagement.

Is there a planned transportation investment that is expected to change the character of the area?

If yes, the area is a candidate for a small area plan facilitated by the Office of Comprehensive Planning, the City of Memphis Division of Engineering, and other appropriate agencies with strong, inclusive community engagement.

Is there a public investment planned or publicly-owned property(ies) planned for development that are expected to change the character or momentum of the area?

If yes, the area is a candidate for a small area plan facilitated by the Office of Comprehensive Planning and the City of Memphis Division of Housing and Community Development (or other appropriate agencies) with strong, inclusive community engagement.

Are there areas labeled transitional land use or candidates for transitional land use?

If yes, the area is a candidate for a small area plan facilitated by the Office of Comprehensive Planning with strong, inclusive community engagement.

Are there areas with a high degree of incompatibility between the land use plan and the zoning?

If yes, the area is a candidate for a small area plan supported by the Office of Comprehensive Planning and the Office of Planning and Development with strong, inclusive community engagement.

Are there otherwise immediate issues in the area not addressed in the Comprehensive Plan?

If yes, more exploration is needed to determine if a planning process facilitated by the Office of Comprehensive Planning is the appropriate approach or if a community or agency-initiated plan is more appropriate.

What goals/objectives/actions would be addressed by the small area plan?

These responses will help determine the type of small area plan need, additional expertise, and needed stakeholders.

Is the issue better addressed as a system plan which may have some effect on place?

If yes, more exploration is needed to determine if a planning process facilitated by the Office of Comprehensive Planning is the appropriate approach, or if a plan led by another division or agency is more appropriate. In the case of a system plan led by another division or agency, the Office of Comprehensive Planning would be a collaborative partner. Examples include: Streets Plan, Sewer Master Plan, Parks Master Plan, Smart City, Public Facilities Plan.

Note: If the area is a part of a local Landmarks District, any planning will have to align with the district procedures for modifications to those guidelines.

In 2020, the Division of Planning & Development worked with a small committee of stakeholders made up of other government representatives, funders, community organizations, architects, and sustainability advocates to develop the Small Area Planning guide. The guide can be found on https://www.memphis3point0.com/projects. Small Area Plans are advisory and shall not be considered adopted for the purposes of consistency until recommendations from a Small Area Plan, if any, are adopted into Parts 2 or 3 of the Comprehensive Plan.

Investment Focus

Memphis Community Catalyst Fund

Overview In accordance with the Memphis 3.0 Comprehensive Plan, the City will target public investment and incentives in and around key anchors in the City to promote growth in those areas, spur economic development, and create more positive momentum in neighborhoods throughout the City. The Memphis 3.0 Comprehensive Plan process has identified anchors in each planning district to focus future public and private investment efforts. Anchors are recommended to change over time in one of three ways: Accelerate, Nurture, and Sustain. The City-funded Community Catalyst Fund is designed to focus resources in Accelerate and Nurture anchors and surrounding anchor neighborhoods to seed catalytic change in these areas in the short and long term.

Guiding Principles In activating this new resource, guiding principles should be established following the Comprehensive Plan. These are: (1) funding should be recurring or allowed to replenish; (2) the fund should seek to leverage private/philanthropic dollars to complement City funds; (3) funds should be targeted in areas defined by the Comprehensive Plan as Accelerate and Nurture anchors in order to be most effective; (4) investment of funds should follow guidance from a small area plan or system plan.

Sources and Uses of Funding The initial source of funds is a $2,000,000 seed from the City of Memphis with an annual recurring source from the general fund. The fund will seek to leverage private and philanthropic sources to expand the pool of funds available.

Planned uses of funding include public improvements such as streetscape improvements, road diets, pedestrian improvements, wayfinding signage, gateway markers, transit improvements, sewer upgrades, stormwater solutions, public wifi, and civic spaces such as parks and greenways. The City will look to make incremental investments in anchors and anchor neighborhoods that have potential for significant change in communities and ability to attract additional investment. The City will rely on Small Area Planning to incorporate input from the community and steer the use of funds to the greatest needs in the selected areas.

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Investing in Anchors. The Memphis Community Catalyst Fund is recommended as a funding source to complement other City funding streams to target in anchors and anchor neighborhoods to spur growth.

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Small Area Plans. The Small Area Plan gives the City a tool to focus efforts in an anchor to identify future design opportunities and determine optimal investments to acheive goals for growth.

Goal 1: Complete, Cohesive Communities

OBJECTIVE

1.2 Promote a high standard of design and build upon unique characteristics of communities when promoting new development

Citywide and Community Anchors depend on high quality density and infill, building design, street design, and infrastructure investments in order to be successful. This standard of quality is defined by high quality design as well as the City's regard for the characteristics of existing communities. Memphis has within its communities a rich pattern of historic and architecturally significant structures that gives the City a solid foundation on which new development can build. While this does not require all old buildings to be saved, or all new buildings to mimic old ones, the City should encourage compatible infill development and adaptive reuse to the greatest extent possible.

The primary recommendations related to this objective deal with the content and application of the Unified Development Code (UDC) and the purpose and function of small area plans developed consistent with the Memphis 3.0 Comprehensive Plan. One of the key issues created by the Comprehensive Plan is potential incompatibility between the future land use map and zoning map in the UDC. While the consistency process can mitigate issues, the City should use the small area planning process to reconcile the zoning map with the future land use map.

In doing so, the City should consider design guidelines in small area plans, as well as in existing regulatory documents such as the UDC and historic overlay districts. One primary area of improvement would be to revisit and improve the guidelines in the UDC regulating contextual infill standards not only to ensure more clarity in the standards but stronger guidance in the application of standards. The administration of these standards, along with other design elements, should be strengthened through staffing to boost design capacity of the planning division, beginning with a Deputy Administrator of Office of Planning and Development with architectural and urban design training and experience.

Other recommended actions in this section are intended to support the City's buildings and places that contribute to the history of Memphis. The City should support the preservation of structures exhibiting physical historic characteristics or are historic places through the Landmarks Commission and programs developed by the National Parks Services. The City should support State legislation that would create an incentive for the redevelopment and preservation of historic structures. The City should also take a proactive role in preserving historic sites that contribute to the City or have cultural significance within a community.

⬚ figure Photo credit: Spotlight Productions

ACTIONS

1.2.1 Over time, align the zoning map with the recommendations of the future land use planning map through the small area planning process.

1.2.2 Use the small area planning process to guide City-initiated comprehensive rezonings, prioritizing anchors to promote compatible infill development.

1.2.3 Develop a set of architectural and urban design principles for development in the City that are adopted into the Unified Development Code.

1.2.4 Ensure design principles are consistent with adopted design guidelines of Downtown and historic districts.

1.2.5 Study transitions in height, density, and massing between residential and mixed-use zones to ensure building forms promote more dense forms of infill in a manner that is compatible with existing development.

1.2.6 Revise and improve the contextual infill standards in the UDC to clarify and strengthen their intent, design options, and enforcement.

Goal 1: Complete, Cohesive Communities

ACTIONS (CONTINUED)

1.2.7 Use the small area planning process to establish design guidelines or other infill design resources to guide infill development in anchors and anchor neighborhoods.

1.2.8 Use the land use plan and small area planning process to streamline the application and enforcement of overlays and special purpose districts in the UDC.

1.2.9 Ensure protections are in place to minimize displacement as communities experience new growth.

1.2.10 Ensure adequate protection in historic overlay districts to respect historic character, but permit varying intensities, transitions, and compatibility.

1.2.11 Engender a high-quality built environment within anchors across the City through design standards, a coordinated public realm, and placemaking investments.

1.2.12 Re-establish the position of Deputy Administrator of Land Use and Development Services to serve in a leadership role in elevating an architectural and urban design focus in plan review.

1.2.13 Hire a Deputy Administrator with architectural and urban design training and experience.

1.2.14 Assign the Deputy Administrator of and Use and Development Services as the Secretary of the Memphis Landmarks Commission.

1.2.15 Focus training and education resources to elevate knowledge and practice of architectural and urban design among planning staff.

1.2.16 Hire additional planning staff with background and skills in architecture, landscape architecture, and urban design.

1.2.17 Establish a cross-departmental design team in Division of Planning and Development to elevate standards of architectural and urban design in plan development and plan review process.

1.2.18 Encourage the use of preservation tools to preserve historic building structures and sites that are significant to the history of Memphis.

1.2.19 Advocate for the passage of State legislation supporting the Historic Rehabilitation Investment Incentive Act or other similar legislation.

1.2.20 Strategically encourage the use of historic tax credits to improve historic anchors or corridors with historic significance.

1.2.21 Discourage demolition of historically significant structures and building types by developing a historic review when applicable.

1.2.22 As Citywide Anchors experience more density, ensure green space is incorporated to provide community common areas.

Goal 1: Complete, Cohesive Communities

OBJECTIVE

1.3 Develop strategies that reduce blight and vacancy

The City should focus efforts to address blight and vacancy that expend the appropriate type of resources and use strategies sensitive to the market, growth goals, and community preference. Described by the City-County Blight Elimination Charter, signs of blight include litter, graffiti, unkempt lots, vacant and abandoned homes, and abandoned buildings. Blight in a community often leads to and can support other social ills, including increased crime, poor public health, diminishing home values, and disproportionately affects people who live in poverty. The City should continue to support efforts of the collaborative Blight Elimination Steering Team (BEST).

The plan recommends strategically addressing vacancy by applying the Vacant Lot Activation Toolkit (the “toolkit”). The toolkit provides guidance on future uses for vacant lots based on future land use, their surroundings, and community desire and need. The toolkit makes no assumptions on average lot size or ownership of a vacant parcel - these solutions can be applied if land is publicly or privately owned, but the acquisition process may be different based on ownership.

Vacant land within an anchor or anchor community should be redeveloped as a development lot as the first preference. The development lot can be mixed-use, or commercial, residential, or institutional (like a school building or community-supporting use) alone. Other lots within the anchor community should be a combination of development and home lots; home lots consist of a single family, detached home, or a small business within a single family, detached home. Expanded lots should be on blocks where there is ample vacant land in areas located farther from anchors, typically in primarily single and multi-unit neighborhoods.

The toolkit provides direction on vacant land in transitional areas not feasible for near-term development. Goal 2: Vibrant Civic Spaces provides additional policy direction that aims to transform vacant and underutilized land into community assets. These actions are intended to be supportive of community institutions such as schools, churches, and community centers.

The plan advocates for the rehabilitation of historic vacant buildings that have cultural significance. These buildings could be incrementally rehabbed using a variety of tools such as public art, temporary beautification, or long-term rehabilitation. Blighted or abandoned multifamily should be encouraged to adhere to building codes or redeveloped in a strategic manner, initially focusing on blighted multifamily in or adjacent to anchor neighborhoods or multifamily that is along major corridors of the City.

Actions in this section aspire to promote process improvement within the City as it relates to blight and vacant and abandoned land. The Shelby County Land Bank and the Blight Authority of Memphis should seek coordination in acquisition and assembly efforts.

ACTIONS

Goal 1: Complete, Cohesive Communities

ACTIONS (CONTINUED)

1.3.9 For residential areas experiencing high rates of vacancy (greater than 20%) and adjacent to health or environmental hazards, develop transitional land use plans pursuant to community guidance.

1.3.10 In transitional areas, focus land use recommendations on increased greening and creation of open spaces, environmental remediation, hazard protection, and stewardship.

1.3.11 Focus more dense forms of development pursuant to the Vacant Lot Activation Toolkit closer to anchors, transitioning from forms such as cottage courts and fourplex lots to home lots for one and two-family residential at the edges of anchor neighborhoods.

1.3.12 Focus expanded lot transitional uses in lower density communities further from anchor edges.

1.3.13 Apply nature lots and flood lots as transitional uses at community edges, particularly where communities border health or environmental hazards or buffer land use incompatible with residential uses.

1.3.14 Identify opportunities to apply flood lots throughout communities to address persistent stormwater issues.

1.3.15 Generally, focus location of community lot transitional uses (intended as small parks, gardens, or farms) closer to existing community uses (such as parks, schools, community centers, or other public uses), but act pursuant to community guidance.

1.3.16 Make use of underutilized open space at parks and community centers for green infrastructure, playgrounds, trails, etc.

1.3.17 Create short and long-term activation solutions for vacant buildings of cultural or historical significance.

1.3.18 Coordinate efforts of Shelby County Land Bank with Blight Authority Land Bank and the Community Redevelopment Agency (CRA) to assemble, transfer, and maintain land for future development and transitional use.

1.3.19 Develop a comprehensive brownfield remediation strategy to address environmentally contaminated properties to address blight and unlock opportunities for community and economic development.

1.3.20 Continue support and implementation of the Blight Elimination Charter and efforts led under the charter by the collaborative Blight Elimination Steering Team.

1.3.21 Amend and adopt current versions of the International Property Maintenance Code as applicable.

1.3.22 Move Zoning Enforcement under Land Use and Development Services and increase focus on enforcing the Unified Development Code (UDC).

1.3.23 Better align and communicate efforts and regulations of City Code Enforcement and LUDS Zoning Enforcement section to improve reporting, response, compliance, and enforcement.

1.3.24 Explore adding additional recycling and trash dropoff locations in areas with excessive dumping.

1.3.25 Develop and maintain a Citywide rental property registry to ensure greater compliance and enforcement of codes.

Vacant Lot Activation Toolkit

Vacant lots are a major concern for the City of Memphis. It has been the focus of much effort over many years. Memphis has a higher than average rate of vacant land and structures for a city its size. While the land bank and other efforts are a start, much more needs to be done. Exploring tactics to bring these lots back will greatly help neighborhoods, livelihoods, and the economy of the City.

Development Lot

Fourplex

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Fourplex. Fourplexes are historically prevalant within the City and can be a context-sensitive way to add density in predominantly single-family neighborhoods.

Expanded Lot

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Decrease Cost. The quantity of publicly owned lots is vast and costly to maintain. Getting these into the hands of neighbors allows for local control and upkeep in an expeditious, low cost manner.

Development Lot

Cottage Court

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Cottage Courts. Cottage courts are being used by many cities to add density and affordable housing options. This development can provide a customer base to support neighborhood retail and services located in anchors.

Home Lot

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Decrease Blight. Vacancy keeps many neighborhoods from coming back to vibrancy. Promoting infill on vacant lots improves communities, tax revenue, and the economy.

Cottage Court Example

Malone Park Commons, Memphis

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Fits Most Contexts. Cottage courts are dynamic and can fit into most urban and suburban contexts.

Home Lot Example

Edmonton, Alberta

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Infill. Easing the cost and some regulation in certain areas can spur more infill that improves neighborhoods. Incentives to help with the often costly infrastructure improvements for infill is possible.

Vacant Lot Activation Toolkit

Flood Lot

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Flood. Flooding and water quality are a concern within the City. Designing lots with lower elevations throughout communities to take on stormwater can have a large impact on flooding and water quality.

Community Lot

Gathering Space

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Gathering. Community lots offer various forms and purposes. Many communities lack free places to gather and these lot interventions can help.

Nature Lot

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Nature. Vacant lots often detract from a neighborhood's environment, both ecologically and aesthetically. Nature lots can be productive in providing ecosystem services as well as improving aesthetics for health and economy.

Community Lot

Community Gardens

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Growing. Some forms of community lots can serve as community gardens for food production while others can double as event space.

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Example of a natural lot populated by mature trees in Memphis.

Community Lot

Recreation

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Activity. Community lots can be repurposed for recreational purposes. A repurposed lot can serve as a community park, playground, or walking path.

Vacant Lot Activation Toolkit

Vacant Lot Reuse Matrix Lots should be developed according to the vacant lot decision matrix. The matrix takes into account surrounding land use and community desire and need. By answering a series of yes or no questions, the user is guided to the best possible use for the vacant lot.

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Goal 1: Complete, Cohesive Communities

OBJECTIVE

1.4 Align policy and resources to promote mixed-income communities

Mixed-income communities can encourage wealth building and opportunity for all residents. Research shows that if a low-income child lives in a mixed-income community, his or her life earnings increase by 30 to 40%. The anchor strategy of the plan supports mixed income communities which include quality housing that is affordable and attainable for a variety of income levels. In some areas of the City, this means introducing housing available at a higher price point, and in other areas, introducing housing that is affordable for households earn ing less than the median income.

To encourage affordability, resources should be aligned to promote low-income and affordable housing within new development. Intentionally creating mixed-income communities can also serve to minimize displacement. Actions in Goal 7: Prosperous, Affordable Communities support the development of affordable housing and in turn mixed-income communities.

Actions within the plan support mixed-income communities by recommended zoning changes to allow smaller lots by right and multiple buildings on a lot. The City and County should review housing programs aimed at promoting single-family homeownership to include ADUs and structures or lots with up to four units.

Mixed-income communities should see investments focused at anchors and in anchor neighborhoods along with a variety of housing types meeting a range of household sizes and incomes. Developments should include attached and detached housing in the form of missing middle housing which can include live/work units, townhouses, courtyard apartments, fourplexes and more. Some of the City’s older housing stock include missing middle housing. The plan recommends policy changes that can make these housing types more affordable and reduce barriers to development.

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Photo credit: City of Memphis

The City should support modifications in State legislation that would allow missing middle housing to be taxed at a lower rate than commercial development to create diverse, affordable housing options. The City can also support mixed-income communities by updating the building codes fee structure to reduce permitting costs for structures of up to four units.

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MissingMiddleHousing.com is powered by Opticos Design. Illustration © 2015 Opticos Design, Inc.

Goal 1: Complete, Cohesive Communities

ACTIONS

1.4.1 Promote a mix of housing types to ensure households at all income levels have affordable, quality options.

1.4.2 Establish a Citywide residential sites inventory for vacant and underutilized sites within anchors and anchor neighborhoods.

1.4.3 Promote and market residential sites inventory appropriate for mixed-income development through periodic workshops for private/nonprofit developers.

1.4.4 Align City programs and resources with strategies to integrate and deliver low-income and affordable housing as part of new development.

1.4.5 Revise City and County housing programs aimed at promoting single-family homeownership to also include structures of up to four units and accessory dwelling units.

1.4.6 Consider and provide incentives to developers to integrate and deliver low-income housing as part of new development, such as financial assistance or streamlined review.

1.4.7 Promote diversity of housing types to expand choices that meet financial and lifestyle needs and demands of existing and new residents.

1.4.8 Relax regulations on accessory dwelling units to allow smaller lots to add units by right in order to promote infill, income generation, and family support.

1.4.9 Advocate for state legislation to expand the definition of residential development to include more than two units to promote development of missing middle housing.

1.4.10 Advocate for state legislation to permit assessment of missing middle housing at a rate lower than existing commercial development rate to promote a diverse range of affordable, quality infill housing.

1.4.11 Update building codes and fee structure to treat structures of up to four units as residential construction.

Types of "Missing Middle" Housing

⬚ figure Duplex: Side-by-Side

⬚ figure Duplex: Stacked

⬚ figure Bungalow Court

⬚ figure Carriage House

⬚ figure Fourplex

⬚ figure Multiplex: Small

⬚ figure Townhouse

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⬚ figure Courtyard Apartments Opticos Design, Inc., City of Memphis

Goal 1: Complete, Cohesive Communities

OBJECTIVE

1.5 Strengthen neighborhood commercial districts

The anchor strategy of the plan is centrally focused on mixed-use anchors – nodes of high activity that may have some commercial, institutional, civic, and residential uses. Some key characteristics of neighborhood commercial include square footage of less than 30,000 square feet, trade areas from under one mile to less than three miles, and convenience, grocery, pharmacy, and neighborhood-serving commercial tenants. Neighborhood commercial serves consumers’ daily and weekly needs for basic services and food.

Changes in retail consumption and the amount of vacant commercial in some planning districts pose challenges for thriving neighborhood commercial centers. Infill development within anchor neighborhoods can support existing neighborhood-serving commercial centers and adaptive reuse of vacant or underutilized buildings can advance the stabilization of neighborhood commercial. Public art can be used to activate under-occupied neighborhood commercial. Community-based participation and placemaking can also strengthen the connection between people and the places around them, creating another purpose for people to visit or patronize.

Law enforcement, code enforcement, and environmental enforcement efforts should be focused in anchors to support the City’s commitment to these areas achieving increased community-supporting activity and a high standard of design and maintenance. Violations related to garbage, waste, and illegal signs should be monitored as those physical signs have an impact on other community factors.

Actions in this section identify opportunities for retention and support of small businesses which include studying the feasibility of a neighborhood commercial improvement fund, tactical urban interventions to stimulate activity, and supporting minority and women-owned businesses (MWBEs) through buy local campaigns. Other recommended actions related to supporting MWBEs can be found in Goal 6: Equitable Economic Development. Working toward a local shared prosperity partnership, the plan recommends strengthening neighborhood commercial by supporting neighborhood-based organizations to assist and support the revitalization of Community Anchors.

ACTIONS

1.5.1 Focus residential infill efforts in anchor neighborhoods to support anchors and neighborhood commercial districts with appropriate population density.

1.5.2 Focus code and environmental enforcement efforts in anchors and anchor neighborhoods to improve the physical environments around commercial activities.

1.5.3 Develop a small business creation, attraction, and retention strategy to support and strengthen community-oriented retail and services within Community Anchors.

1.5.4 Pilot tenant attraction efforts in select anchors to build critical mass and experience that can scale to other anchors.

1.5.5 Establish a neighborhood commercial improvement fund to assist with building improvements, tenant build-outs, and infrastructure improvements needed in anchors.

1.5.6 Support the redevelopment and intensification of underutilized commercial properties within Community Anchors.

1.5.7 Support and encourage the adaptive reuse of existing underutilized structures and properties in Citywide and Community Anchors for business development.

1.5.8 Create or expand neighborhood-based entities to assist with and support the revitalization of Community Anchors.

1.5.9 Improve walkability and multimodal access within and around community and Citywide Anchors to promote local economies and connect neighborhood residents and local businesses.

ACTIONS (CONTINUED)

1.5.10 Incentivize businesses to hire from within the neighborhood surrounding the anchor while reserving space for local businesses in the larger developments.

1.5.11 Preserve and protect existing businesses in Community Anchors with an emphasis on legacy businesses that have contributed to neighborhood history and identity.

1.5.12 Promote and leverage tactical urbanism interventions in Community Anchors to stimulate neighborhood commercial activity.

1.5.13 Support local businesses and minority- and women-owned businesses by promoting buy local campaigns.

1.5.14 Explore use of linear tax increment finance (TIF) districts and business improvement districts (BIDs) to revitalize and strengthen commercial corridors

1.5.15 Promote diversity of housing types to expand choices that meet financial and lifestyle needs and demands of existing and new residents.

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Photo: Memphis Farmers Market

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OBJECTIVE

1.6 Increase access to wellness opportunities and quality fresh foods

The design of a community has direct impacts on residents' health and thus affects the City's overall performance. Planning for access to fresh foods, healthcare, and recreational areas has significant outcomes on a population's overall quality of life and productivity. The built environment, access to healthcare and education, social and community context, and economic stability are social determinants of health. When one or more of these determinants is reduced or missing, it manifests as inequity, and often puts people with social disadvantages at greater health risk. While providing more economic opportunity can impact social determinants, the design of the City can be changed in ways that can make it easier to make healthy choices.

In 2015, 74% of Memphians had limited access to healthy foods and 26% received food stamps. As shown in the image below, grocery stores in Memphis are spaced at regular three to four-mile intervals, leaning toward Grocer Efficiency as opposed to Customer Choice.

There is a concentration of lower-income families relying on convenience stores for groceries, especially when they are without a vehicle, but often choices are processed foods and without fruits or vegetables. The City has more convenience stores than conventional grocery stores; in areas considered food deserts, convenience stores are often more accessible. The plan recommends expansion of the Healthy Corner Store Initiative. In 2014, YMCA led a healthy corner store initiative that can serve as a model for other entities and neighborhoods.

The City should increase fresh food options through a variety of resources. With a comprehensive food chain analysis and adherence to the Mid-South Regional Food System Plan, greater food sources can be distributed from local suppliers and priced according to market need. Vacant parcels and school yards can become centers for fresh food and farm-to-table education through designation as community gardens and farmers' markets. By promoting a locally grown campaign, grocery and convenience stores can aid in promoting better food options and even sourcing from local farms or school gardens.

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Food security is only one component of a city's overall health. According to the 2017 American Fitness Index, the Memphis metropolitan area ranks 45th out of 50 large metros based on health behaviors, chronic health problems, the built environment, and recreational facilities as fitness components. Memphis is also 3rd among metro areas with the highest rates of obesity in the United States. Obesity and lack of physical activity, influenced by one's environment, lead to numerous chronic diseases which places extreme stress on government medical costs and individuals' annual expenses. Expanding public health programs and education can increase the rate of residents receiving insurance and adequate healthcare. By collaborating with the Shelby County Health Department and other agencies, preventative health education can become a greater priority.

The City can support physical activity through streetscape enhancements and prioritizing maintenance of existing parks and recreational facilities. Further, working with Shelby County Schools to nurture a "Safe Routes to Schools" policy can support safe transport and increase childhood physical activity. Using metrics and built environment indicators for health and food planning actions will allow for measurement of change over time as work is completed to address the social determinants of health. By designing for healthy neighborhoods, especially when focusing on anchors within districts, and combining engagement and collaboration with data-informing practices, policy outcomes for a healthy community can be realized.

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ACTIONS

1.6.1 Implement strategies of the Mid-South Regional Food System Plan, beginning with the establishment of a food value chain facilitator within a centralized, regionally-focused organization.

1.6.2 Comprehensively address food insecurity, focusing on communities with low access to healthy foods.

1.6.3 Support, maintain, and attract a broad range of healthy food sources within Community Anchors, including full-service grocery stores, food markets, community gardens, and farmers' markets.

1.6.4 Expand the Healthy Corner Store initiative by providing assistance to encourage corner stores to carry fresh, healthy, and quality foods.

1.6.5 Work with city and community advocates/partners to identify suitable sites for community gardens and urban agriculture within and around Community Anchors, including neighborhood organizations, churches, schools, and public parks and open spaces.

1.6.6 Partner with County, charter, and private schools to create and sustain school gardens as an integrated component of a healthy foods curriculum.

1.6.7 Work to connect County, charter, and private schools, community childcare facilities, and other institutions with local healthy food producers to support and sustain farm-to-table initiatives in Community and Citywide Anchors.

1.6.8 Advocate for policies and incentives supporting the purchase of regionally and sustainably produced healthy foods in schools and healthcare facilities.

1.6.9 Partner with healthcare organizations to promote, support, and expand the availability of public health services and programs.

1.6.10 Partner with businesses, healthcare organizations, schools, and residents to promote local, preventative health education programs.

1.6.11 Prioritize the rehabilitation and supply of parks, greenways, and recreation amenities, especially in underserved areas of Memphis, to encourage physical activity.

1.6.12 Implement streetscape enhancements such as shade trees, awnings, public art, and pedestrian amenities to encourage people to be physically active.

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In 2035, we envision a Mid-South Region where:

• Specialty crops, livestock, and local food processing offer family-sustaining income for our residents
• Fresh and healthfully preserved local produce is accessible to, and chosen by, individuals at all income levels
• Waste is recovered for productive reuse throughout our food system

5 Priority Interventions

• Fund a Food Value Chain Facilitator
• Bolster New Producer Training and Support
• Develop a Regional Agritourism Narrative
• Enhance Food Desert and Low-Income Retail Models
• Expand Institutional Gardening and Composting

Access to wellness opportunities and quality fresh foods

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South Memphis Farmers' Market

Out of community need for healthy foods, residents formed the South Memphis Farmers' Market, dedicated to providing fresh and affordable foods from local growers and producers. Since opening in 2010, the market has become the destination in South Memphis for fresh produce and features handmade items from local producers between the months of May and November. The Grocer at South Memphis Farmers Market is a year-round neighborhood grocery store that grew out of the South Memphis Farmers Market, opening in 2014 to expand food access. At the market, SNAP customers can use EBT cards and receive a matching amount of up to $20 in Fresh Savings tokens which they can then use to purchase additional fresh fruits and vegetables.

Knowledge Quest

South Memphis, Tennessee

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Knowledge Quest runs the Green Leaf Learning Farm in South Memphis, a certified USDA organic micro-farm that focuses on student education, community/economic development, and food access and security for local residents.

The Food Trust

Philadelphia, Pennsylvania

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The Food Trust began in 1992 to combat food security issues in Philadelphia. Its Healthy Corner Store Network is in more than 600 corner stores to increase store capacity for healthy foods and to market healthy messages to residents.

Flint, Michigan Ride to Groceries

Flint, Michigan

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After numerous closures in Flint, the transit authority initiated Ride to Groceries in 2015, designating a bus route that services grocery stores to address food insecurity. This program has now expanded to two permanent routes.

LAND

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Goal 2

VIBRANT CIVIC SPACES

Memphis contains high quality civic and open space assets, particularly large-scale assets such as the Mississippi Riverfront and Shelby Farms Park; new projects such as the Wolf River Greenway are providing new access to open space amenities for areas of the City that have historically been underserved; and a new vision for civic space has evolved from the regional Greenprint to the Memphis Riverfront Concept. However, the population of Memphis has a relatively low per capita open space ratio and some areas of the City continue to be limited in their access to high quality civic space. The goal of Vibrant Civic Spaces seeks to establish how the City can and should leverage existing parks, open space, vacant and underutilized lands that may not be suitable for infill, increasing access to civic and open space for all Memphians through coordinated planning, improving existing spaces, and investing in projects with multiple community benefits.

Goal 2: Vibrant Civic Spaces

OBJECTIVE

2.1 Develop new master plans for parks and public facilities

The anchor-based land use planning map provides the City’s template for where and how the community should grow into the future. One of the cornerstones of the community is its parks and public facilities. In alignment with the adoption of the Comprehensive Plan, the City should embark on the development of new master plans for parks and public facilities that coincide with Memphis 3.0's recommendations for new growth and the Mid-South Regional Greenprint's recommendations for new connections of green space. While the Mid-South Regional Greenprint is a comprehensive document, two of the key recommendations are the development of approximately 500 miles of greenways and trails throughout the region, with Memphis at the center of the network, and access to a park, trail, or green space within ½ mile of all City residents.

In addition to these goals for parks, trails, and green spaces, the parks master plan should align the recreation, athletics, and park priorities to the Comprehensive Plan by assessing parks, community centers, golf courses, athletic fields and sports facilities, conducting a gap analysis, and engaging the community to identify needs and preferences. The prioritized plan will guide future public investment and leveraging opportunities for a community-focused park system serving the citizens of Memphis well into the 21st century. The parks master plan should also consider opportunities for establishing new parks, expanding existing parks, or improving underused parks where opportunity exists to connect communities to the City’s valuable water resources, such as rivers and lakes, in the model of the Memphis Riverfront Concept plan.

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Similar plans should be drafted for public facilities such as police stations, fire stations, and libraries that emphasizes not only alignment with future growth and land use recommendations, but common use with other public facilities and uses.

ACTIONS

2.1.1 Initiate the process of creating a new parks master plan for the City of Memphis that addresses park, recreation, athletics, and open space priorities.

2.1.2 Conduct a Citywide assessment of existing parks, community centers, golf courses, athletic fields and sports facilities.

2.1.3 Conduct a comprehensive gap analysis of parks and civic spaces to identify new opportunities to create park, recreation, athletic, and open space amenities throughout communities.

2.1.4 Ensure robust community engagement to identify needs and preferences of residents and neighborhoods.

2.1.5 Develop and maintain a prioritized parks master plan to guide future public investment and leverage opportunities for a community-focused park system.

2.1.6 Follow the vision and guidance of the Mid-South Regional Greenprint plan in the development of the City’s parks master plan.

2.1.7 Create new parks and trails that connect communities to rivers, lakes, and other water bodies throughout the City.

2.1.8 Prioritize creation and protection of large green spaces or green space hubs that anchor the regional Greenprint network.

2.1.9 Create new links and loops between hubs following the regional Greenprint plan.

2.1.10 Create new parks and green spaces to ensure residents are within proximity to parks and trails.

Goal 2: Vibrant Civic Spaces

ACTIONS (CONTINUED)

2.1.11 Plan for incorporating a diverse range of active and passive recreation amenities into green spaces in an environmentally sensitive way.

2.1.12 Review park features and amenities to ensure assets are high quality and appropriate for surrounding communities.

2.1.13 Expand the City’s open space network by connecting the Greenprint network with existing parks and identifying land uses that can transition to open space.

2.1.14 Ensure all anchor neighborhoods have a park or civic space by creating new spaces, including pocket parks, where necessary.

2.1.15 Create a public realm plan that captures excess and underutilized right-of-way for environmental and community benefit.

2.1.16 Develop a facilities master plan for other community-serving civic buildings, including police stations, fire stations, and libraries, that aligns facility needs with future growth and land use recommendations.

Greenprint: The Mid-South Regional Greenprint is designed to enhance livability and sustainability through a unified vision for a regional network of green spaces in the Mid-South. It is a 25 year plan to create 500 miles of greenway trails and 200 miles of bicycle paths across three states.

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Goal 2: Vibrant Civic Spaces

OBJECTIVE

2.2 Improve access and use of existing parks, green space, greenways, and open space

Recreational amenities such as parks, green spaces, and greenways provide necessary benefits to the physical and mental health of a city’s residents and help to bring people from diverse backgrounds together. Not only do these places enrich lives of the citizens that use them, but they also help to alleviate blight and increase property values. According to the Mid-South Regional Greenprint, two key recommendations are the development of approximately 500 miles of greenways and trails throughout the region, with Memphis at the center of the network, and access to a park, trail, or green space within one-half mile of all City residents by 2040.

The Comprehensive Plan will focus its efforts on vibrant civic spaces to realize the goals of the Greenprint by ensuring that existing parks are well-maintained, accessible, and over time, become places of inspiration for future parks development. This will involve increasing access to parks through multiple transportation choices, as per recommendations in Goal 5: Connected Corridors and Communities, along with meeting needs of those with disabilities so that places of recreation can be visited by all. High quality programming and maintenance will encourage greater use of existing parks and greenways.

Memphis has approximately 9,150 acres of park lands, 4.7% of the City’s total land area. Memphis and Shelby County have a large network of regional recreational areas, yet only 57% of the population is within a 10-minute walk of a public park due to the limited number of smaller community parks.

Parks and green spaces are City assets where all can share in their beauty, regardless of socioeconomic status. Civic areas also spark regular interactions among neighbors and strangers as they visit these spaces. To increase usage, there must be visible access points to parks and greenways, along with increased maintenance to improve the overall quality of these facilities. This will involve completion of an inventory of accessibility points and prioritization of additional entries into existing parks and open space. Targeted strategic marketing campaigns and incorporating creative wayfinding and art can help to increase access and use of these public assets.

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ACTIONS

Goal 2: Vibrant Civic Spaces

OBJECTIVE

2.3 Invest in civic space improvements that provide multiple community and environmental benefits

Memphis has approximately 9,150 acres of park lands, 4.7% of the City's total land area. Memphis and Shelby County have a large network of regional recreational areas, yet only 57% of the population is within a 10-minute walk of a public park due to the limited number of smaller community parks. This presents a large opportunity by combining vacant lots that can be creatively reused as public pocket parks for recreation, growth of food, or designated open space. These lots can be cared for easily by relying on the existing vegetation and only clearing trash and invasive species, thus becoming a source of civic pride. Utilizing native vegetation helps to preserve and restore natural ecosystems and can minimize the need for manicuring and lowers maintenance costs, especially if local organizations volunteer to maintain these areas.

Green infrastructure is an investment with multiple benefits such as minimizing and cleaning stormwater runoff, aiding in lower costs on infrastructure maintenance by mitigating flooding and erosion, purifying local air and benefitting those with asthma, and moderating the local climate while lessening the heat island effect. Incorporating green infrastructure into existing civic spaces and along rights-of-way (for example, sidewalks) with future development of parks and buildings can ensure that these positive impacts are felt by all. By proper management of open spaces, either through conservation programs or reservation as rural landscapes, maintenance and preservation can be ensured which can increase the availability of recreational spaces for residents. This action will forego further single-family development on land designated for recreational purposes, and reuse of the open space will be defined on its proximity to an anchor and other local assets.

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ACTIONS

2.3.1 Invest in a high level of design, stewardship, and maintenance in public spaces to increase utilization.

2.3.2 Design parks to serve as gateways to a connected network of green infrastructure.

2.3.3 Establish and maintain links between park/open space and neighborhood anchors to ensure residents are within proximity to parks and trails.

2.3.4 Prioritize green infrastructure within new facilities and civic space design

2.3.5 Prioritize civic spaces that promote and grow additional benefits and programs in the community.

2.3.6 Invest in civic space improvements within anchor neighborhoods to support active social places.

2.3.7 Work to incorporate native plants into public parks and civic spaces to reduce maintenance costs and improve natural systems.

2.3.8 Seek opportunities to create interconnected open space networks by integrating pocket parks in high vacancy neighborhoods.

2.3.9 Integrate public art and cultural resources into development, design, and landscapes across the City.

2.3.10 Connect cultural resources, historic sites, and communities through greenways and trails.

2.3.11 Strategically improve public ROW within anchors and along major corridors as vibrant, civic spaces.

2.3.12 Ensure a proper transition to rural land use on the urban fringe by aggregating land into open space while eliminating blight.

2.3.13 Partner with local community organizations to maintain and manage open space assets.

2.3.14 Prioritize a suitability analysis to determine City lands that can utilize the Conservation Reserve Program.

2.3.15 Transition passive park space to ecologically productive uses such as reforestation or restoration of native vegetation.

OBJECTIVE

2.4 Create productive community assets from underutilized land

Land is an asset and the City should collectively treat it as such. Actions within this objective aim to create community-supported productive assets out of vacant land. The City of Memphis has roughly 56 square miles of vacant land (excluding open space), 20% of which is publicly-owned. This includes land that is suitable for future development and land in which the feasibility of residential or commercial development is unlikely in the midterm (5 to 10 years).

Land that is currently underutilized may include vacant land where private development has not occurred, land within or adjacent to the flood plain, vacant industrial land with known or perceived contaminants, and land that is largely surrounded by other vacant land and that is not near any existing development or activity. Often, vacant land will be found in neighborhoods where the number of households are shrinking over time, and therefore, it is imperative to understand the context and opportunity for reinvestment when determining alternate uses to vacant land.

The transitional land use designation was created to support zoning and regulation changes that could return long-standing vacant land to a productive use creating city and community assets. Transitional areas have very high occurrences of vacancy and a higher share of County or City-owned tax sale properties. These areas are impacted by excessive vacancy resulting from demolition, environmental, and natural hazards, conditions that make new investment and development difficult. Prior to the completion of the Comprehensive Plan, the City has not had a strategy to address vacant land.

Together, the transitional land use framework and vacant lot activation toolkit provides direction on creating productive assets from land that is void of development. Through this toolkit and community guidance, alternative uses of vacant land can support community desires or provide an interim asset until the real estate market can support housing, commercial, or mixed-use development.

The plan recommends strategically addressing vacancy and creating community assets by applying the Vacant Lot Activation Toolkit. The toolkit provides guidance on future uses for vacant lots based on future land use, their surroundings, and community desire and need. The toolkit makes no assumptions on average lot size or ownership of the vacant parcel; these solutions can be applied if land is publicly or privately owned, but the acquisition process may be different based on ownership.

ACTIONS

2.4.1 Outside of anchor neighborhoods, consider transitional land uses for vacant properties following the Vacant Lot Activation Toolkit.

2.4.2 For residential areas experiencing high rates of vacancy (greater than 20%) and adjacent to health or environmental hazards, develop transitional land use plans pursuant to community guidance.

2.4.3 In transitional areas, focus land use recommendations on increased greening and creation of open spaces, environmental remediation, hazard protection, and stewardship.

2.4.4 Apply nature lots and flood lots as transitional uses at community edges, particularly where communities border health or environmental hazards or buffering land use incompatible with residential uses.

2.4.5 Identify opportunities to apply flood lots throughout communities to address persistent stormwater issues.

2.4.6 Generally focus the location of community lot transitional uses (intended as small parks, gardens, or farms) closer to existing community uses (such as parks, schools, community centers, or other public uses), but act pursuant to community guidance.

2.4.7 Decrease barriers that impede the creation of community lots that include access and fees to water sources.

2.4.8 Within transitional land use areas, work to identify and convert underutilized properties into open space, green infrastructure, public parks, wildlife habitat restoration areas, and corridors.

2.4.9 Identify and convert underutilized parks into wildlife and habitat restoration areas and corridors.

Goal 2: Vibrant Civic Spaces

ACTIONS (CONTINUED)

2.4.10 Within transitional industrial areas, assess brownfields and other vacant properties for appropriate reuse, including alternative energy sources, phytoremediation, buffer zones and green infrastructure, and low-impact development.

2.4.11 Within transitional land use areas, create a simple process offering incentives for the acquisition and reuse of abandoned/tax-delinquent properties for public or open space.

2.4.12 Within transitional commercial areas and underutilized properties, transform impervious surfaces and unused parking areas into open space and green infrastructure.

2.4.13 Make use of underutilized open space at parks and community centers for green infrastructure.

⬚ figure Photo credit: City of Memphis

⬚ figure Photo credit: City of Memphis

Goal 2: Vibrant Civic Spaces

Investment Focus

Putting Our Natural Assets To Work For Livability And Economic Vitality

The Memphis Riverfront Concept lays out a series of connected investments in five park districts along six miles of Memphis' waterfront. Investment in executing the concept begins in the core with River Garden and River Line both opened in November 2018. The remediation of the historic cobblestone landing began in 2019 along with the crucial centerpiece, Tom Lee Park. The park will be transformed from a feature-less mono-scape to a vibrant and dynamic civic space that fosters positive encounters and pride, restores natural ecology and better connects the city to the river.

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Tom Lee Park

Mud Island

Greenbelt

Fourth Bluff

MLK/Riverside Park

Goal 2: Vibrant Civic Spaces

Investment Focus

Putting Our Natural Assets To Work For Livability And Economic Vitality

Green Connections. The Wolf River Corridor is full of opportunity with the completion of the Wolf River Greenway. Leveraging natural amenities for active uses is a catalyst for change and prosperity within surrounding neighborhoods. The corridor can link the surrounding communities that have been disconnected from each other for much too long. Connecting city anchors with the amenities along this corridor can help expand regional greenspace amenities and reach a point where growth is possible within the local neighborhood and across the City.

Kilowatt Lake. Refurbish Kilowatt Lake and adjoining water bodies into active public spaces that spur adjacent development.

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Memphis Harbor The Wolf River Corridor makes vital connections to a new and improved harbor and riverfront and extends new outdoor activity into the City.

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Connections. Bring anchors and community into a relationship with our natural amenities for development, access to green space, and public health.

Goal 2: Vibrant Civic Spaces

Anchors. Anchors that are near major natural amenities could see increased visits from citizens and higher rates of foot traffic.

Education. Boardwalks and trails into underutilized natural open space can bring many educational and public health benefits.

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Floodable Parks. Creating parks that can be flooded provides ecosystem services and cuts down on maintenance while providing amenities on underutilized land. These kinds of designs are underway in Rodney Baber Park in Frayser and John F. Kennedy Park in Raleigh as a part of the National Disaster Resilience Grant.

LAND

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Goal 3

SUSTAINABLE AND RESILIENT COMMUNITIES

Efforts to improve efficiency and reduce the impact of climate change are essential for Memphis. Many communities and households in Memphis are adversely affected by air and water quality issues, energy inefficient housing, stormwater and river flooding, and extreme heat. These issues will only worsen with a changing climate without action taken. The goal of Sustainable and Resilient Communities seeks to reduce our climate impact by addressing the health of environmental systems, energy efficiency and renewable energy, green stormwater approaches, waste management and reuse, and improving the City’s ability to protect communities and people from impact of future natural disasters made worse by climate change. This goal is also supported by a Climate Action Plan and Regional Resilience Master Plan.

OBJECTIVE

3.1 Improve health of environmental systems

Growth and development have a substantial impact on the environmental systems that sustain a healthy, viable City. In Memphis, a history of low-density growth has resulted in development of sensitive land and habitat which in turn impacts water resources, air quality, and public health and safety. Improving the health of environmental systems is an important piece of fulfilling our vision around valuing land as an asset, connecting communities, and providing opportunity and equitable outcomes for all residents.

Memphis is a place with rich, natural assets defined primarily by its river system. The Mississippi River and its tributaries, the Wolf River, the Loosahatchie River, and Nonconnah Creek, are the framework for the natural landscape and the City’s form. These watersheds support wildlife habitat, supply drinking water, and provide recreational opportunities. Protecting sensitive lands in these watersheds is especially critical to the quality of our drinking water, which is supplied by the abundant Memphis Aquifer. Protecting this critical resource is of paramount importance for the future of the City.

Surface water resources, such as rivers and streams, and their surrounding habitat play an important role in aquifer recharge and potential pollution of groundwater. Developing regional protections for this sensitive habitat, prioritizing low impact development, and investing in research and monitoring will be key to improving surface water quality and maintaining groundwater quality.

The Memphis 3.0 vision of Build Up, Not Out will also have beneficial air quality impacts. By encouraging land use patterns that bring people and destinations closer together, the plan aims to make walking, biking, and transit more viable transportation modes. Reducing the number of trips that require a vehicle means lower emissions and better air quality.

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While improving the quality of environmental systems benefits the entire City and region, it can have a considerable positive impact on low-income and underserved communities. These communities are often the most vulnerable to environmental pollution and climate risks such as flooding. Taking steps to be wise stewards of natural resources and repairing past damage can help fulfill the City’s guiding value as a place of equity and opportunity.

ACTIONS

3.1.1 Allow the transfer of development rights to promote environmental protection and prevent sprawl.

3.1.2 Encourage compact and infill development to reduce sprawl, limit the expansion of impervious cover, lower vehicle miles traveled, and increase the viability of active transportation, such as walking and biking, and improve air quality.

3.1.3 Reduce the carbon footprint of the City and its residents by implementing the Memphis Area Climate Action Plan.

3.1.4 Encourage green roofs for water retention, energy use reduction, and mitigation of urban heat island effect.

3.1.5 Enhance riparian planting and design strategies for soil stability, bioremediation, ecological function, public access, and aesthetic value.

3.1.6 Incorporate site resilience factors into zoning and development approvals.

3.1.7 Update the stormwater master plan to align with Comprehensive Plan principles and have it adopted by reference in the UDC.

3.1.8 Protect, preserve, and enhance precious surface water and groundwater resources, with special focus on the Memphis and Fort Pillow aquifers.

3.1.9 Create a water authority to direct information gathering, education, and assessment related to surface water and groundwater water quality and quantity.

3.1.10 Protect critical watershed assets with specific emphasis on aquifer recharge areas and wetlands.

ACTIONS (CONTINUED)

3.1.11 Establish and staff an urban forestry program that works with the City's Tree Board and private and public partners to promote the health and increase of the urban tree canopy.

3.1.12 Promote establishment of tree canopy beginning with the Memphis Regional Tree Canopy Assessment's identified priority planting areas.

3.1.13 Direct new development away from the floodplain and discourage expansion of existing development in the floodplain in order to reduce flooding impacts and protect riparian ecosystems.

3.1.14 Plan for and encourage the adoption of cleaner, more fuel-efficient alternative fuel and electric vehicles in order to reduce emissions and improve air quality.

3.1.15 Create controls to prevent landscape irrigation systems from wasting water or excessively producing runoff.

3.1.16 Encourage the conversion of private well abandonment to monitoring wells through the Shelby County Health Department for use in countywide groundwater level surveys.

3.1.17 Develop a set of realistic strategies to begin removing impaired streams from the State's 303d list.

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Expanding Smart Grid Solutions for Climate Resilience

Smart grid technologies and associated electrical infrastructure offer a valuable opportunity to invest in long term resilience efforts in the Memphis and Shelby County region. Installation of smart grid automated distribution switches will vastly improve the capacity to mitigate damage from future storm events, averting the costs and resources otherwise required to respond and recover from severe weather. These devices provide better operational flexibility than traditional switches as they do not require a crew member to manually operate them after physically locating the utility damage. Fault location, isolation, and power rerouting can be done remotely or potentially completely automated by programming the switches themselves. This process of utilizing automated distribution, reduces outage duration by approximately 40% and represents a valuable opportunity for long-term investment. Smart grid technology includes a broad range of technologies and solutions that help address losses from recurring severe weather events such as straight-line winds and thunderstorms.

Burying power lines underground on a limited scale is another project that will enhance community resilience and limit power outages resulting from downed trees. Although considered prohibitively expensive when considered Citywide, undergrounding can offer benefits in key areas to not only preserve the power grid but support climate change mitigation and cost savings from decreased pruning requirements.

The “Tom Lee” Storm on May 27, 2017 involved a line of severe thunderstorms and high impact straight line winds estimated at over 100 mph, toppling the Tom Lee obelisk in downtown Memphis and becoming the namesake of this federally declared disaster. Widespread damage to power lines and structures rated the storm at the 3rd highest for number of customers at 219,140 out of power and amounted to 889,556 customer hours off. Declaration FEMA-4320-DR estimated over $30 million in damage to 12 counties in the surrounding areas, including Shelby County, and cited damage to utilities as the primary contributor to that figure.

Investments in power grid technologies can help ameliorate this significant cost burden to both private and public sectors, and vastly improve the resilience and capacity to minimize damaging storm impacts. The revenue losses from business closures are notable during events of this magnitude, the costs of which investments to minimize power outage duration will improve the socio-economic resilience of the region.

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Tom Lee Storm. Number of customers in MLGW service area without power following the May 27, 2017 storms through the event recovery duration.

Goal 3: Sustainable and Resilient Communities

OBJECTIVE

3.2 Prioritize energy efficiency and clean, renewable energy resources

Fulfilling the goal of a sustainable and resilient city should involve strategies to reduce our carbon footprint. The energy used to power buildings is a major source of greenhouse gas (GHG) emissions and contributes to climate change. Like many cities over the past decade, Memphis has begun to take local action on this global issue. In 2015, the City of Memphis signed on to the Global Covenant of Mayors for Climate and Energy, a commitment of city leaders across the world to tackle climate change by reducing GHG emissions and enhancing resilience and adaptation in their communities. As part of this commitment, the City agreed to inventory community-wide GHG emissions, establish reduction targets, and complete a Climate Action Plan that develops strategies for achieving these goals.

A 2016 GHG inventory, completed as part of the Memphis Area Climate Action Plan, shows that 46% of the community’s emissions come from energy use in buildings. This inventory takes into account the sources of energy as well as the amount of energy consumed. Prioritizing energy efficiency and use of clean, renewable energy sources can help the City meet climate action goals and foster a more prosperous, healthy, and equitable city.

Energy efficiency is an important equity issue in Memphis. A 2016 report from the American Council for an Energy-Efficient Economy (ACEEE) showed Memphis is the most energy-burdened metro area in the country. Energy burden refers to the percentage of household income paid to energy costs. Low-income households in Memphis are particularly energy-burdened. The average Memphis household uses 6% of its annual income on energy, while the average low-income household in Memphis uses almost 13% of annual income on energy. In addition to efforts that improve building energy efficiency, particular attention should be given to increasing low-income housing energy efficiency to achieve climate action and equity goals.

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Photo: Office of Sustainability, Shelby County

The City should also work to transform the energy supply by increasing the use of clean, renewable resources. The Tennessee Valley Authority (TVA) supplies electricity to the local utility, MLGW. Over the last several years, TVA has taken steps to reduce their reliance on fossil fuels and increase the share of carbon-free sources in their energy mix such as nuclear, hydroelectric, and renewable solar and wind. However, only 3% of TVA’s energy mix comes from renewable sources. To make substantial progress on climate action goals and improve the health of our community, it will be important to implement actions, create partnerships, and make investments that support renewable energy generation on the regional and local level.

ACTIONS

3.2.1 Adopt the most recent model building and energy codes for new residential and commercial buildings and explore the adoption of codes with higher standards to reduce energy consumption and promote energy efficiency in the building sector.

3.2.2 Develop a comprehensive strategy to assist homeowners and renters experiencing high energy burdens and set targets for reducing the number of households – particularly low-income households - that pay a large percentage of their incomes to utility costs.

3.2.3 Encourage the local utility, MLGW, to be a leader in clean energy sources.

3.2.4 Explore the feasibility of an energy audit requirement for new and existing home sales.

3.2.5 Integrate energy efficiency and renewable energy standards into City-based economic development incentives.

3.2.6 Create a public/private and multi-city coalition to advocate for the creation of property assessed clean energy (PACE) laws in Tennessee for commercial projects.

Goal 3: Sustainable and Resilient Communities

ACTIONS (CONTINUED)

3.2.7 Subsidize green building retrofits for businesses and homeowners.

3.2.8 Test pilot projects for community-based ownership models of energy and water systems.

3.2.9 Work with MLGW to give economic incentives to homeowners to replace inefficient appliances, including air conditioners, refrigerators, clothes washers, and freezers.

3.2.10 Identify receptive neighborhoods and implement a "Memphis Energy Challenge" to incentivize energy efficiency among residents.

3.2.11 Find additional funding sources to increase the number of low-income homeowners who can receive no-cost energy efficiency improvements through local organizations.

3.2.12 Encourage cool roofs in urban parts of the City to increase cooling efficiency for buildings and to decrease the urban heat island effect.

3.2.13 Require new municipal buildings to meet LEED Silver requirements.

3.2.14 Retrofit existing streetlights to LED.

3.2.15 Commit to purchasing or producing a portion of City electricity needs from renewable sources.

3.2.16 Work with TVA, MLGW, and other partners to shift the electricity generation mix toward more renewable energy sources and fewer fossil fuels.

3.2.17 Optimize waste to energy anaerobic digestion systems to improve methane capture and energy generation.

3.2.18 Work with MLGW, landlords, renters, and community partners to publicize and enforce the Energy Efficiency Rental Ordinance.

3.2.19 Plan for and encourage the adoption of cleaner, more fuel efficient or alternative fuel vehicles, such as electric vehicles, to reduce emissions and improve air quality.

3.2.20 Where feasible, encourage the development of charging infrastructure on city-owned properties.

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Photo: Spotlight Productions

Goal 3: Sustainable and Resilient Communities

OBJECTIVE

3.3 Expand use and protection of natural landscapes and green infrastructure

Reconsidering a city’s growth patterns can have significant impacts on critical natural resources. Historically, most urbanized areas have been defined by gray infrastructure, such as roadways, piped stormwater and wastewater systems, and water treatment plants. More recently there has been a growing recognition of the importance of enhancing green infrastructure in cities. Green infrastructure can generally mean the natural systems in an urbanized area, such as creeks and rivers, open space, and green space. The term also refers to an approach to development that replicates and better incorporates natural systems into the stormwater management process. At the site development level, green infrastructure techniques and Low Impact Development (LID) are aimed at reducing impervious surface and deploying natural processes to filter and/or retain stormwater runoff, improve water quality, and reduce stormwater runoff and potential flooding.

While Memphis’ physical development has emphasized gray infrastructure, recent planning efforts, particularly the Mid-South Regional Greenprint and Sustainability Plan, demonstrate a shift toward encouraging green infrastructure in development, land use, and quality of life considerations. The Greenprint thinks about green infrastructure on both the system level and the neighborhood and site level. The Plan’s main recommendation, an interconnected network of parks, trails, and green spaces, serves as the foundation for how the City can better design with, and not against natural systems. In addition to the environmental benefits, this green infrastructure-centered approach is a springboard for better connecting communities, increasing access to green space and natural areas, improving public health, and reducing social and economic disparities.

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To achieve the goal of protecting natural landscapes and promoting green infrastructure in Memphis, this section outlines actions focused on improving development standards, encouraging Low Impact Development (LID) measures, making strategic investments in sites that can have a regional impact on flooding and water quality, designing new approaches to integrating green stormwater management into existing areas, and developing effective educational and outreach programs. Implementation of green infrastructure and improved stormwater management practices should align with other important community goals related to increasing density and encouraging infill development.

ACTIONS

3.3.1 Create development standards that address extreme weather events and climate hazards, heat island effect, and stormwater runoff quality and quantity.

3.3.2 Develop a stormwater best management practices (BMPs) guide to implement green stormwater management solutions on a watershed scale.

3.3.3 Implement Low Impact Development (LID) measures in order to manage stormwater without sacrificing density.

3.3.4 Identify existing parks and trails that could be modified and maintained to provide flood mitigation value.

3.3.5 Create large-scale water detention areas to mitigate downstream flooding in a manner that does not impede urban level density in anchor areas.

3.3.6 Integrate green stormwater infrastructure in street design and in areas of the City with older era of development to reduce sewer infiltration and inflow issues and the need for onsite stormwater detention.

3.3.7 Develop educational programs for the building industry regarding best practices for green infrastructure and stormwater management.

3.3.8 Require land development within the Memphis aquifer recharge area to mitigate infiltration reduction by minimizing loss of quantity and quality.

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Goal 3: Sustainable and Resilient Communities

OBJECTIVE

3.4 Expand sustainable approaches to material and waste management and reuse

The amount of goods and materials consumed as well as the systems in place to reuse or dispose of these materials have a major impact on environmental health, greenhouse gas (GHG) emissions, and quality of life. Based on Memphis’ 2016 GHG inventory, emissions from waste disposed in landfills and wastewater treatment practices account for 12% of total community-wide emissions. While this is a much smaller share than emissions from energy and transportation systems, reducing waste and reusing materials can play an important role in achieving sustainability goals and creating economic development opportunities.

Over the last several decades, Memphis has made progress towards reducing the amount of waste sent to landfills. The City offers single-stream curbside recycling service for single-family residences and has recently seen an uptick in recycling collections with the introduction of larger 96-gallon carts in tandem with educational campaigns designed to increase participation and prevent contamination. Despite these efforts, recyclable materials still make up a very small percentage of total waste collections. In addition, 40% of waste collection in Memphis is carried out by private companies that handle multifamily residential, commercial, industrial, and some single-family residential waste. Data on how much of this privately-hauled waste is recycled is not available, but it is likely that the vast majority is sent to landfills. Pick-up of food waste for composting is not yet offered, though the City does pick up yard waste and trimmings and manages a composting facility where some of these materials are turned into mulch. Illegal dumping, especially of tires, is also a major issue in Memphis. While government, nonprofits, and community organizations have worked to address illegal dumping, the scope of the problem will require the development of markets/programs for material reuse as well as comprehensive educational efforts to promote a cultural shift in our approach to waste.

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To achieve sustainability goals, more must be done to reduce waste and move toward a zero-waste future. One of the first actions recommended is to work with regional partners to develop a solid waste master plan. This plan should include high quality data about the types and amount of waste generated in our region, provide a long-range vision for a zero-waste future, outline clear goals and objectives, and develop short, medium, and long-term actions for achieving these goals. As part of the zero-waste vision, it will be important to think comprehensively about how to reduce landfill waste, from reducing consumption to encouraging circular waste economies to developing more methods and markets for material reuse, as well as increasing awareness and collaboration community-wide.

ACTIONS

Goal 3: Sustainable and Resilient Communities

ACTIONS (CONTINUED)

3.4.10: Incentivize recycling to reduce paper and cardboard waste in landfills.

3.4.11: Increase the City's capacity to divert and process food, yard, and wood waste for productive use.

3.4.12: Incentivize construction projects to utilize repurposed materials.

3.4.13: Identify circular waste economies in Memphis and provide information to potential users.

3.4.14: Find alternate uses for waste tires (such as tires to trails, playground surfacing).

3.4.15: Identify value chain options for mulch, leaf litter, and yard trimmings.

3.4.16: Target efforts to reduce solid waste generation from large commercial, institutional, and industrial entities.

Goal 3: Sustainable and Resilient Communities

OBJECTIVE

3.5 Protect life, property, infrastructure, and environment from disaster events

Addressing the serious nature of disaster events through prevention, development standards, and mitigation is a priority for Memphis to advance toward becoming a resilient City. The City is prone to a multitude of disaster events, such as flooding, extreme heat and weather events, and earthquakes. It is imperative to prevent disaster events whenever possible and mitigate when they occur, but especially in areas where the most vulnerable communities are.

The location of Memphis on the Mississippi River and its major tributaries in the area makes the City susceptible to flooding events. In recent years, high precipitation incidents have occurred and resulted in severe flooding. These events are expected to happen more frequently in the future and the severity and frequency of flooding events will likely increase. A sizable portion of the City is within a floodplain and development does exist within some of the floodplain areas. Prevention measures and action plans are central to reducing and repairing the damage done by floods. Participating in programs that lower flooding insurance rates and infrastructure upgrades to prevent flooding is critical in the most vulnerable neighborhoods as a flooding event would have the most detriment to economic impact and quality of life.

Memphis is located on the New Madrid Seismic Zone, making the City prone to earthquakes. The United States Geological Survey predicts there is a 25 to 40 percent chance of 6.0 magnitude earthquake occurring in the next 50 years in Memphis. An event of this type could cause loss of life and damage to buildings and infrastructure.

Measures such as retrofitting civic buildings, designating more shelter locations, and public education will help to reduce the impact of an earthquake. Preventive measures like tree maintenance programs can reduce the likelihood of power outages and fallen branches. Also, storm shelters and heating and cooling centers must be accessible for all those that need them when these events arise.

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Extreme heat events in Memphis are likely to increase as climate change predictions indicate more frequent heat advisory days in the Southeast region of the United States. Ensuring energy efficient programming and education on heat stroke prevention can help the City maintain a more stable population that is able to resist drastic negative impacts to public health and City infrastructure due to severe heat events.

To become a truly resilient city, prevention and mitigation will ensure the City and its residents are protected and recover in a timely manner if a disaster event occurs. It is critical prevention and mitigation is prioritized in vulnerable Memphis communities.

ACTIONS

ACTIONS (CONTINUED)

3.5.11: Implement building-scale flood mitigation techniques, including key systems, acquiring temporary flood barriers, and installing non-return plumbing valves.

3.5.12: Adopt floodplain development regulations that exceed the minimum requirements of the National Flood Insurance Program (NFIP).

3.5.13: Selectively bury overhead electrical wires and require in-ground utilities in new subdivisions to reduce power disruptions due to wind and winter weather.

3.5.14: Implement a voluntary buyout program for damaged properties that have suffered from repetitive loss and/or are located on sites with high flood mitigation potential.

3.5.15: Implement a smart grid with distributed automation switches to mitigate and contain future power outages.

3.5.16: Prototype rapid, temporary post-disaster housing solutions and probable setup locations.

3.5.17: Maintain up-to-date resilience data that include key assets, affected systems, threat information, and future climate projections.

3.5.18: Create a public information campaign and one-stop-shop for resilience-related information and resources.

3.5.19: Fund additional resources for post-storm, snow and ice renewal.

3.5.20: Align job training programs with resilience-related workforce needs.

3.5.21: Pre-fund disaster mitigation and recovery through private capital markets.

3.5.22: Provide seismic resilient design guidelines for new development.

3.5.23: Require Environmental Impact Studies for land development/redevelopment to investigate the impact to the Memphis aquifer through aquitard breaches or unconfinement.

3.5.24: Disallow building in floodplains that are susceptible to liquefaction.

CONNECTIVITY

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Goal 4

HIGH PERFORMING INFRASTRUCTURE

The future growth of the City is dependent largely on the quality and availability of infrastructure. Focusing new growth, development, and density in and around community and Citywide Anchors depends on the backbone of infrastructure to not only serve growth, but allow growth to be designed in a manner consistent with desired community character. The goal of High Performing Infrastructure seeks to direct provision of infrastructure through actions that not only ensure capacity and safety but are respectful of surrounding land use and development character to promote mixed-use, dense, transit-served, and walkable communities. The goal of High Performing Infrastructure also seeks to provide guidance for how infrastructure is shaped in continuous pursuit of these goals even as the technology of City systems evolve.

OBJECTIVE

4.1 Promote roadway and streetscape design based on surrounding context

The creation of a new streets plan is a major recommendation of the Comprehensive Plan to make clear City guidance for street design, capacity, and function aligned with and supported by recommended land use to support efficient and connected development. Once the Streets Plan is complete, the City should adopt it as a replacement of the City's Major Road Plan. This unified streets plan will combine the Complete Streets Delivery Manual and Roadway Regulatory Plan, provide guidance for the Memphis MPO's Regional Transportation Plan, and establish a single reference on the public right-of-way for the Unified Development Code. The streets plan will thus become a design guide for roadway improvements, whether state, regional, local, or private. The proposed designs are based on the three-roadway regulatory plan street classes - thoroughfare, connector, and neighborhood - and provide recommended cross-sections based on street type and the land use around it (see Typology table, below). To support efficient and appropriate street improvements, the City will develop standard detail sheets that will be made publicly available for project delivery.

The street types in this plan illustrate recommended typical sections for roads based on the surrounding context and should improve the coordination of land use and transportation project review procedures. It addresses all streets, from high volume avenues to low-speed neighborhood streets and provides guidelines for bicycle and pedestrian facilities. Typical sections consider the land use and the roadway width to determine possible design modifications. Street types recommend that traffic flow is sensitive to the types of adjacent development while also advancing the use of transit, bicycles, and shared mobility.

The Streets Plan should encourage consistent, quality-designed streets. The City will accomplish this by creating an interdepartmental design team that includes engineers, public works, and planners who collaboratively review development plans to ensure conformance to the plan and efficiency for the developer. As development occurs and streets are improved, new improvements should conform to the Streets Plan once it is developed. Streets are the City's largest area of public space, and these shared assets should be attractive, uniform with the plan, and well-designed to accommodate the community's variety of transportation and connectivity needs.

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TYPOLOGY RELATED TO MEMPHIS ROADWAY REGULATORY PLAN CLASSIFICATION

Goal 4: High Performing Infrastructure

ACTIONS

4.1.1 Combine the design and policy elements from the Complete Streets Project Delivery Manual and Roadway Regulatory Plan with the Comprehensive Plan's street typology to develop into a new streets plan.

4.1.2 Ensure application of street types are made in conformance with anchors and future land use plan.

4.1.3 Follow the order of considerations for travel mode recommended in the Complete Streets Project Delivery Manual.

4.1.4 Ensure mode prioritization is selected relative to land use and street context.

4.1.5 Relate street typologies with functional classification.

4.1.6 Adopt the streets plan as an update to the City’s Major Roads Plan.

4.1.7 Ensure the City Streets Plan and related policies are referenced in the Regional Transportation Plan and related multimodal, safety, mobility plans of the Metropolitan Planning Organization (MPO).

4.1.8 Develop engineering and design standards manual to aid developers and staff from Division of Planning and Development and Division of Engineering in the application of the streets plan.

4.1.9 Implement interagency plan review process involving staff from Division of Planning and Development and Division of Engineering to ensure street design consistent with the Comprehensive Plan, streets plan, and Unified Development Code.

4.1.10 Ensure street design standards integrate transit, pedestrian, and shared mobility facilities, where appropriate.

4.1.11 Improve coordination in planning, design, and implementation of infrastructure and utility improvements.

4.1.12 Revise the Unified Development Code to reference the adopted City streets plan, as appropriate.

4.1.13 Establish a banking system to allow developers the option to pay fair market value of recommended roadway improvements to ensure implementation of the streets plan.

4.1.14 Promote human-scaled streets and streetscapes that accommodate pedestrians, bicycles, transit, and automobiles in areas of higher density.

4.1.15 Within anchors and anchor neighborhoods, balance needs of pedestrians, bicyclists, transit, and automobiles to support surrounding land use.

4.1.16 Encourage frequent and varied connective routes for pedestrians and bicyclists between anchor neighborhoods and anchors.

4.1.17 Establish uniform standards by street type for spacing and selection of street trees.

4.1.18 Ensure street and streetscape design promotes context sensitivity and allows for incremental implementation and deviation as necessary to maintain compliance with federal, state, and local guidelines and approvals.

4.1.19 Explore tactical urbanism pilot projects in key anchors that can become more permanent improvements over time.

4.1.20 Develop communications materials on multiple platforms and conduct ongoing public outreach and education on the values, benefits, and standards associated with conformance to the streets plan.

4.1.21 Encourage the use of alleys in new infill development and to discourage front-loading garages.

4.1.22 Construct new streets or pathways to increase connectivity within large sites.

4.1.23 Allow deviations from typical sections to align with surrounding land use context, existing conditions, and traffic volume.

4.1.23 Allow deviations from typical sections for new and innovative design concepts, as appropriate.

4.1.24 Prioritize street design quality and enforcement along key gateways and corridors, including interstates and limited access roadways.

Goal 4: High Performing Infrastructure

OBJECTIVE

4.2 Promote safe movement of people and vehicles across all modes of travel

Connectivity across the City for all needs, such as employment access, commerce and movement of freight and goods, and daily individual needs, is critical to supporting the future growth of Memphis. But careful attention should be paid to ensure streets are safe for movement of people across all modes of travel. In many cases, streets have been developed based on providing the fastest, most direct route without proper attention to the safety of other users. In recent years, the City has transitioned to developing streets that incorporate safety for the most vulnerable users. This way of thinking began with the 2013 Executive Order of the Complete Streets Policy and continues across many activities, including the Streets Plan. Through this document, the City continues to strengthen policies that encourage the safe development and design of streets. Other future transportation plans such as the regional freight plan, bike and pedestrian plan, and shared mobility plan should work with the MPO to ensure that the recommendations of the Comprehensive Plan and the Streets Plan are referenced and incorporated.

Memphis is a major freight city that has five Class I railroads and parts of Interstates 40, 55, and 69. To promote safety and support the City's economy and role in the global supply chain, the City and its partners should ensure that design standards balance movement and flow of goods and freight needs with the safety of people.

Memphis is the 3rd most dangerous city for pedestrians, according to the report by Smart Growth America, "Dangerous by Design." By adopting a local Vision Zero goal, the City can set its aspirations toward no traffic fatalities with specific and actionable policies.

In industrial areas, safety measures should be taken to protect motorists and pedestrians alike. The introduction of landscaped medians and other vegetation in industrial areas should not reduce line of sight for freight vehicles. In areas with a predominance of commercial and residential land uses, smaller street blocks should be encouraged to promote safety across all modes. Smaller blocks can disperse traffic, increase pedestrian safety by establishing pedestrian crossings, and allow the prioritization of various modes of transportation on different streets. In anchor neighborhoods or areas with wide streets and low traffic volumes, road diets can be considered to safely accommodate cycling, walking, and transit. As the pavement for automobile traffic is decreased, excess pavement can be used for on-street parking, dedicated bus lanes, bike and pedestrian infrastructure, and more. Recommended actions encourage safer speeds based on surrounding context as a function of street design as opposed to regulation.

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ACTIONS

ACTIONS (CONTINUED)

4.2.7 Work with the Metropolitan Planning Organization (MPO) to implement the recommendations of the Greater Memphis Regional Freight Plan in a manner that promotes freight and goods movement on designated routes.

4.2.8 Promote redundancy in the freight network to ensure efficient movement of freight and goods.

4.2.9 Work with the MPO to ensure future versions of the regional freight plan, bicycle and pedestrian plan, and shared mobility plan reference and incorporate the recommendations of the Comprehensive Plan and streets plan.

4.2.10 Develop engineering and design standards to establish designs for freight routes that meet anticipated freight needs while considering need for safe and continuous bicycle and pedestrian facilities.

4.2.11 Minimize impact of freight corridors on connective networks.

4.2.12 Identify and secure right-of-way for future expansion and upgrade of freight corridors.

4.2.13 Invest in safety infrastructure upgrades along freight corridors particularly where community streets intersect.

4.2.14 Explore standardized permitting and fees for oversized vehicles.

4.2.15 Work with rail agencies to ensure crossing have upgraded and appropriate safety infrastructure.

4.2.16 Require a safety and connectivity study for impacted rail and pedestrian crossings prior to establishing a quiet zone.

4.2.17 Identify opportunities to reduce the number of at-grade rail crossings in the City.

Goal 4: High Performing Infrastructure

OBJECTIVE

4.3 Promote and support existing infrastructure capacity to service new development and density

As the City invests in infrastructure upgrades and maintenance (including roads, sidewalks, bridges, sewers, and other utilities), it should support existing neighborhoods and increase density in anchors and anchor neighborhoods. The City’s central focus related to infrastructure will be to utilize and upgrade existing capacity to support the land use plan and preferred future growth areas. Streets are repaved on a 25-year paving cycle, and in the interim years, maintenance and modifications are carried out based on project implementation and as needed. Actions in the Comprehensive Plan encourage modifications and upgrades to follow the Streets Plan, which may recommend changes to the street to accommodate multimodal transportation. Improvements should be prioritized within anchors, anchor neighborhoods, and along major corridors that connect anchors to other parts of the City. Infrastructure upgrades for special use areas should follow the future land use plan.

Aligning sewer capacity with preferred growth areas can support density and strategic growth in the City. The Sewer Assessment and Rehabilitation Program should inform the City on the prioritization of capacity upgrades. Citywide anchors like Downtown, the Medical District, and University anchors and other targeted employment centers should benefit from an increase of sewer capacity in order to attract new investment and accommodate a greater share of future population and job growth for the City.

A review of current utility capacity shows the power provider, MLGW, can accommodate dense growth in many areas of the City. MLGW should continue to work with the City, EDGE, and the Greater Memphis Chamber to manage demand, promote reduced consumption through energy efficiency, and address load needs from new industrial or major facility development. The utility company should also consider the feasibility of burying overhead utilities within Citywide Anchors and

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higher intensity Community Anchors when making improvements.

Green infrastructure within development plans can be used to offset stormwater retention needs, making more developable land available within sites. The City should review building and fire codes to identify barriers that discourage density. Interdepartmental working groups can maintain the safety these codes are intended to provide and support compact development supportive of the Comprehensive Plan.

Street maintenance and repaving, along with other transportation infrastructure improvements, are often highly desired from the community but extremely costly; the City usually only funds these projects through grants, CIP projects, or special dedications of funds by City Council. To increase the funding for transportation infrastructure or services, including street upgrades, sidewalk maintenance, and mass transit, the City should establish funding sources that can support these improvements.

ACTIONS

4.3.1 Prioritize and direct resources for the repair and maintenance of infrastructure where new development and redevelopment are anticipated within anchors and anchor neighborhoods.

4.3.2 Prioritize funding for repair and maintenance of City streets in a manner that aligns with future growth priorities, Citywide and Community Anchors, degree of change and land use.

4.3.3 Ensure repair and maintenance of City streets follows the adopted streets plan and associated design standards.

Goal 4: High Performing Infrastructure

ACTIONS (CONTINUED)

4.3.4 Prioritize the replacement, maintenance, and upgrading of existing infrastructure within city limits over the extension of new infrastructure into the County outside Memphis.

4.3.5 Prioritize upgrade and expansion of sewer capacity in a manner that aligns with Citywide and Community Anchors, degree of change and land use.

4.3.6 Ensure repair, maintenance, upgrade, and expansion of infrastructure support mixed-use development, particularly in Citywide and Community Anchors.

4.3.7 Ensure adequate annual funding for infrastructure maintenance.

4.3.8 Focus capital investments in constrained sewer basins that support future growth in anchors, with a priority on accelerate anchors.

4.3.9 Develop City-approved options for developer-supported infrastructure in constrained sewer basins not associated with anchors.

4.3.10 Identify and prioritize upgrades needed in utility infrastructure that support Citywide and Community Anchors, degree of change and land use.

4.3.11 Promote reduction in energy consumption through efficiency and renewable sources.

4.3.12 Where economically feasible, bury overhead utilities to support vertical growth.

4.3.13 Integrate green stormwater infrastructure in street design to reduce need for onsite stormwater detention.

4.3.14 Prioritize green stormwater infrastructure as an option for detention in areas of the City with older era of development.

4.3.15 Incorporate green infrastructure options in the engineering and design standards manual to aid developers and staff.

4.3.16 Ensure a high level of design quality for green stormwater infrastructure in the public right-of-way

4.3.17 Allow flexibility in parking requirements to support mixed-use development in Citywide and Community Anchors.

4.3.18 Explore the elimination of parking requirements or setting parking maximums in Citywide Anchors.

4.3.19 Integrate local amendments to building and fire codes that promote density and infill, walkable streets, and reduced curb radii.

4.3.20 Establish a funding source to support repair, maintenance, and upgrade of key corridors and fund transit improvements to connect anchors and job centers.

4.3.21 In high density areas, support parking management strategies to optimize the use of existing resources and reduce the need for new public parking facilities.

4.3.22 Appoint an “infrastructure czar” in City of Memphis government to coordinate across multiple divisions responsible for planning and implementation of new infrastructure assets that support economic growth in communities.

Investment Focus

Expand Infrastructure Capacity To Service New Development And Density

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Downtown Core

South Main

Uptown

St. Jude/Pinch District

The Edge

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Goal 4: High Performing Infrastructure

In 2018, Memphis experienced a historic high in construction activity with over $1.5 Billion in combined residential and commercial building. With more in the pipeline, the early years of implementation of Memphis 3.0 will be part of the City’s recent “development boom.” The year prior, the City discontinued the extension of sanitary sewer infrastructure outside the City of Memphis corporate boundaries, aligning with the Build Up, Not Out vision of the plan. To ensure that growth can be accommodated within the City, investments should be prioritized to upgrade the capacity of sewer infrastructure in areas targeted to Accelerate growth, such as the Front Street sewer basin

Connecting Citywide Anchors with Rapid Transit to Catalyze Growth

Linking Innovation The Memphis Innovation Corridor connects Downtown Memphis, the Memphis Medical District, and University of Memphis through a series of infrastructure improvements, highlighted by the City’s first Bus Rapid Transit (BRT) route. Goals for the corridor are to make transit service in the corridor more frequent, connect neighborhoods and improve local circulation, develop support for local and regional economic growth, create a thriving corridor of neighborhoods and business areas, and create an environment that will be sustainable over the long term.

Downtown Transit Mall The implementation of the short-range Transit Vision and Innovation Corridor BRT involves high frequency bus service through the Downtown area along Second Street and BB King Boulevard with service every 3-4 minutes at peak. The Downtown Transit Mall will feature dedicated bus lanes connecting from Union Avenue to A.W. Willis Avenue.

Opportunity Zones The Memphis Innovation Corridor connects the City’s two primary federally-designated Opportunity Zones in the Core City and University areas.

Bus Rapid Transit The 8-mile route includes 34 new transit stations serviced by 40-foot long, all-electric BRT vehicles with two-door boarding and electric charging equipment. Vehicles include Wi-Fi as well as other smart technology, such as automated vehicle location, automated passenger counters, automated voice annunciation, security cameras, and more.

The Memphis Innovation Corridor route features dedicated lanes on two miles of road through Downtown Memphis and queue-jumps at select intersections where feasible. New fare technology including the use of mobile apps for fare payment and offboard fare collection at transit stations will be utilized to speed up boarding and improve travel times.

Traffic signals are proposed to be upgraded with new mast arms, video detection systems, vehicle to infrastructure communications equipment, and GPS based transit signal priority at all intersections throughout the corridor. The traffic signal system will provide real-time collection of operational data, automatic notifications of signal malfunctions, and adaptive signal control, where appropriate.

The City has installed modern fiber connections on Poplar Avenue, Union Avenue, Second Street, and BB King Boulevard. Timing coordination and signal preemption are in place on along the entire route. Transit priority devices have been installed along Poplar Avenue.

Future Connections Building off the first BRT connection from Downtown to the University of Memphis via Union/Poplar and a north-south connection from Crosstown to Whitehaven is recommended to follow long-term.

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Transit Mall Street. Typical section of a Transit Mall Street demonstrates integration of BRT into a street better-designed for all modes of travel, including a shared bus/bike lane.

Goal 4: High Performing Infrastructure

Investment Focus

Memphis Innovation Corridor Bus Rapid Transit

Bus Rapid Transit dedicates a travel lane to transit. The Memphis Innovation Corridor BRT will increase service along one of the City's major corridors. Students at the Region's largest university will be directly connected to the heart of Downtown. Younger students will access the main public library with greater ease and the medical field will gain mobility options.

Downtown - St. Jude. William Hudson Transit Center

Medical District and Southwest Tennessee Community College

Christian Brothers University

The University of Memphis

Benjamin L. Hooks Library.

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Goal 4: High Performing Infrastructure

OBJECTIVE

4.4 Invest in smart city infrastructure, including wireless connectivity, broadband, and connected infrastructure

The City should proactively plan for infrastructure changes and opportunities related to advances in technology. The City worked to make 5G wireless available Citywide to address connectivity-enabling smart city infrastructure and Internet of Things (IoT). The City developed a smart city plan, Smart City Memphis, in 2021 to centralize the use of technology and address service delivery and management issues across multiple processes and divisions. The plan outlines the infrastructure, staff resources, technical support and policy changes necessary to support a smart city.

Other technology can improve productivity and create opportunities for new, outside investment. The City should identify unused fiberoptic cable found in existing infrastructure to support enhanced public safety and real-time tracking of municipal assets. The City should consider autonomous vehicles and shared mobility when integrating new transit types into street design. Innovative solutions can be used to address persistent City issues like blight, illegal dumping, and missed garbage collection.

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Smart Memphis Plan

ACTIONS

4.4.1 Develop a Smart City plan for the City of Memphis to mobilize and utilize technology to support goals of connectivity, shared mobility, public safety, innovation, and quality of life.

4.4.2 Create and expand technology applications to allow employees and citizens to better access and improve City services.

4.4.3 Establish guidelines for 5G deployment that aligns with the City's land use plan and streets plan.

4.4.4 Establish municipal broadband as a public utility.

4.4.5 Expand free Wi-Fi to public spaces, such as parks, community centers, and libraries throughout the City.

4.4.6 Pilot high quality public wireless internet in key anchors and commercial corridors and determine opportunities to scale Citywide.

4.4.7 Evaluate capabilities of utilizing dark fiber across the City to support business and economic generation and the Internet of Things (IoT) innovations.

4.4.8 Integrate artificial intelligence features into public assets throughout the City to address safety, connectivity, asset tracking, and other capabilities.

4.4.9 Develop innovative use of technology to address common issues such as energy and grid use, blight and code violations, crime and safety, and trash and litter.

4.4.10 Prioritize transit, shared mobility, and environmental sustainability in deployment of autonomous transportation.

4.4.11 Integrate electric vehicle charging, shared mobility, and rideshare options into future street design and curb management.

4.4.12 Initiate secured testing of autonomous shuttles in selected areas of the City or related to special events.

4.4.13 Support and expand the City’s Open Data Consortium as a clearinghouse for policy and decision making on Smart City advancements.

CONNECTIVITY

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Goal 5

CONNECTED CORRIDORS AND COMMUNITIES

The challenge to serve a large land area is not only an issue for growth and density but transportation and public transit. Memphis has experienced notable improvements in the extension of greenways and bikeways and introduction of new shared mobility options. But to achieve the vision of Build Up, Not Out, the City must invest in an improved network of public transit and transportation choices that connect neighborhoods and activity centers by key corridors. Highlighted by the development of a short and long-range Transit Vision, the goal of Connected Corridors and Communities seeks to provide direction for the expansion of transportation and mobility options and support mixed-use, walkable communities throughout the City by focusing on frequent transit, shared mobility, and a network of greenways, bikeways, and pedestrian infrastructure.

Goal 5: Connected Corridors and Communities

OBJECTIVE

5.1 Increase transportation and mobility options that are accessible to all

The Memphis 3.0 Comprehensive Plan marks the first time the City is making transportation recommendations based on land use and context. Actions in this section encourage a balanced, multimodal transportation system that is accessible to all users regardless of age, ability, or mode of transportation. The local system should support regional mobility for the full range of multimodal options. A balanced transportation system reduces vehicle miles traveled, leading to improved environmental outcomes, accessibility and supporting seamless travel between all modes of transportation. The City can achieve this in a variety of ways, including the emphasis on creating and enhancing multimodal streets and supporting increased bus frequency.

Transit can be used as a tool to encourage development and density. As the system is appropriately modified to increase frequency and reliability, it is also a poverty reduction tool. Transit should support and be supported by high density residential, commercial, and mixed-use development. Active transport options, such as biking or walking, also support transit and mobility. Investments should be made to improve sidewalk infrastructure as most transit stops will be between one-fourth mile to one-half mile of an individual's destination. Other active transport options, such as bicycles or scooters, can solve first-and last-mile connections, along with other transportation demand solutions.

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Safety improvements should be designed to support the multimodal system, including complete streets, lighting modifications, on-street parking, and other buffers for pedestrians. Pedestrians should be prioritized in street design as the City moves toward achieving a local Vision Zero goal. Access management policy should be developed for major corridors that address excessive curb cuts, pedestrian crossings, improved traffic flow, and roadway capacity adjustments.

As technology evolves, changing modes of travel, the City should continue to prioritize transportation and mobility options accessible to all. Modes of transportation should be designed to be flexible to changes in technology, but in service to goals of supporting surrounding land use and prioritizing transit, shared mobility, and environmental sustainability.

ACTIONS

ACTIONS (CONTINUED)

5.1.10 Eliminate gaps in the transportation network to increase mobility options and promote accessibility of nearby land uses.

5.1.11 Minimize curb cuts along major streets to increase pedestrian safety, improve transit capability and roadway capacity.

5.1.12 Conduct assessments of parking supply in Citywide anchors and high density areas to meet the needs of existing and future residents and businesses.

5.1.13 Review options for rightsizing parking supply and using pricing controls where appropriate to encourage use of transportation choices.

5.1.14 Adopt and fund a comprehensive Vision Zero goal and action plan to eliminate traffic fatalities and increase safe, healthy, and equitable mobility for all.

5.1.15 Identify and communicate to residents where multimodal connections exist.

5.1.16 Establish goals and metrics to track progress of usage and mode share by transit, walking, biking, and shared mobility.

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Goal 5: Connected Corridors and Communities

OBJECTIVE

5.2 Focus on key corridors to connect anchors and job centers designated for growth by frequent transit and shared mobility

The City and its partners are working to implement the Memphis 3.0 Transit Vision to support frequent transit service, meaning 15 minutes or less, to a greater share of Memphians. The short-term recommended network will bring an additional 79,000 people within one-half mile of frequent transit. Riders will have access to 103,000 more jobs within a one-half mile as well. Job access, a key feature of creating an equitable city, increases nearly 50 percent for residents with low incomes. Frequent service will be within one-half mile of 58,000 minority residents, up from the current 8,000 minority residents. The recommended network requires an annual new investment of $30 million.

The long-term transit network recommends continued addition of high frequency routes based on land use and context. Dedicated funding will allow MATA to focus on long-term improvements by planning and forecasting based on known revenue sources. Transit lanes on major roads can support the network as higher frequency is increased across the City. Where appropriate, identification of dedicated transit lanes should follow the Streets Plan. Ridership should be encouraged through a campaign to market the benefits and savings of public transit. Improvements should be made to bus stops, shelters, and transit centers to make the trip more appealing to users.

Frequent transit, under the Transit Vision, is designed to make transit useful to the greatest number of people. This should connect anchors to employment centers, institutions, and other anchors. Housing developments focused along frequent transit routes can increase transit usage and promote housing affordability. Sidewalk and greenway infrastructure improvements should support transit connections. Tools like Transit-Oriented Development TIFs can be implemented in anchor areas to promote density, affordability, and transit access.

Transit Demand Management (TDM) strategies should be utilized within major employments centers to encourage commute options and decrease single-occupancy vehicle uses. When

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Average number of jobs accessible for all residents by transit in 60 minutes

compared to transit, carpool, and active transportation, single occupancy vehicle commutes are a larger contributor to air pollution and greenhouse gas emissions per person, while locking up valuable real estate for parking.

TDM Strategies include:

• Employer shuttles
• Vanpools
• Park and ride lot development
• Pedestrian facilities/safe routes to work
• Carpooling, rideshare, and ride match services
• Transportation management associations (TMAs)
• Commuter transit benefits
• On-site bicycle facilities

ACTIONS

ACTIONS (CONTINUED)

5.2.4 Prioritize opportunities for change in technology in the transit network, with emphasis on fixed route transit in accordance with the long-range element of the Transit Vision.

5.2.5 Locate new transit hubs, as required, around Community and Citywide Anchors.

5.2.6 Incentivize housing and employment growth to occur around Citywide and Community Anchors and high frequency transit corridors, preserving and integrating existing affordable housing where possible.

5.2.7 Encourage employers to provide transit passes, bicycle facilities, shared used mobility, and opportunities for carpools/vanpools to increase transportation options to work.

5.2.8 Implement transportation demand management (TDM) strategies, particularly in major employment centers, to shift trips from single-occupancy vehicles.

5.2.9 Expand and enhance transit, carpool, and vanpool programs through branding, outreach, improved infrastructure, and financial incentives.

5.2.10 Establish goals and metrics to track progress of bus ridership, vanpool, and carpool usage.

5.2.11 Increase infill and redevelopment that locates residential, employment, and retail uses near each other to maximize transit and active transportation.

5.2.12 Explore the elimination of parking requirements or setting parking maximums along high frequency transit corridors.

5.2.13 Prioritize placement of parks, community centers, libraries, schools, and other public facilities along transit routes.

5.2.14 Provide more widely spaced bus stops, where appropriate, with improved amenities (trading shorter walking distances for faster transit service and better facilities), utilizing the Bus Stop Design and Accessibliity Guidelines.

5.2.15 Identify funding sources to support repair, maintenance, and upgrade of key corridors and fund transit improvements to connect anchors and job centers.

5.2.16 Increase pedestrian and bicycle facilities, such as bike racks, storage, and shared use mobility stations at transit hubs.

5.2.17 Incorporate dedicated transit lanes along highest frequency and rapid transit corridors and implement road diets where appropriate.

5.2.18 Explore the use of demand response areas and park-and-rides to extend areas of the City and region connected by transit.

Goal 5: Connected Corridors and Communities

Investment Focus

Transit Vision 2022

The Transit Vision 2022 shows increased frequency with new, 15-minute headways and 30-minute headways. The need for more frequent and reliable transit service was one of the earliest themes arising from the Memphis 3.0[^] planning process. To address this need, the Memphis 3.0[^] Transit Vision was developed. The full Transit Vision can be found in the Special Appendix.

Proposed Frequency

• 10 minutes
• 15 minutes
• 20 minutes
• 30 minutes
• 60 minutes
• 120 minutes

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