HISTORIC PRESERVATION PLAN Franklin, Tennessee November 2001 Prepared For The City of Franklin Prepared By Mary Means & Associates, Inc.
Table of Contents Introduction..........................................................1 City of Franklin: A Rich and Deep History.............3 Franklin’s Historic Preservation Context..............7 Issues Affecting Historic Preservation...............17 Historic Preservation Goals...............................23 Strategies for Historic Preservation..................25 Action Agenda....................................................42 Conclusion..........................................................44 Acknowledgments..............................................45
1 Historic Preservation Plan Introduction Franklin’s history and historic resources are fundamental components of the community’s character. Historic resources, including historic buildings, archaeological sites, and historic landscapes, give a community a sense of identity, stability and orientation. Franklin’s reputation as a small town of great charm and character is founded on its physical setting. People choose to live here because of it. As the area grows and new development takes place, Franklin’s popularity is accompanied by a rising concern among residents that important aspects of community character may be at risk.
2 CITY OF FRANKLIN, TENNESSEE Balancing Preservation and Development Savvy communities have realized that the question is not preservation vs. development. Rather, the issue is achieving a balance: retaining those elements deemed by the community as important to identity and character, while managing the pace, scale and impact of new development in ways that are sensitive to context. Achieving balance is difficult to accomplish without conscious planning and public policies that support preservation goals. Having a plan is essential. The purpose of a preservation plan is to clearly articulate the community’s preservation goals and to develop a set of strategies that will help the community to achieve those goals. Why does Franklin need a Preservation Plan? Franklin and Williamson County residents voice strong concern for maintaining the community’s heritage. During the last decade especially, a healthy economy and growing population has led to significant growth and suburban development. The rapid pace of change is heightening the risk of losing important historic buildings and landscapes. Respondents to the City’s annual opinion survey have strongly (better than 90%) indicated preservation of historic character as a top concern. And, in the recent Franklin Tomorrow public forums, ‘preservation of our small town character’ was among the top priorities. In response, the Board of Mayor and Aldermen called for a plan for preservation. Timing is appropriate, for within the year, the City of Franklin will be engaged in a major update of its long-range plan and land use policies. The preservation plan is envisioned as informing the long range plan; the strategies of this plan enable historic resource preservation efforts to be undertaken in a more coordinated fashion. Having a cogent preservation policy and plan will help the City balance decisions to accommodate both preservation and development. Planning Process To assist with the plan’s development, the City retained Mary Means & Associates, a community planning and heritage development firm from Alexandria, Virginia. During a six-month period, the consultants worked with an ad-hoc committee of residents appointed by the Mayor to develop this plan. Bob Martin, City Planning Director, and Jay Johnson, City Administrator, were active participants. A public workshop held mid-way through the planning process provided valuable community insight into the draft goals and strategies, and helped to shape the plan recommendations. Plan Timeline June-July 2001 ASSESS FRANKLIN’S HISTORIC RESOURCES & PRESERVATION ISSUES August 2001 DEVELOP & TEST GOALS & STRATEGIES September 2001 DRAFT THE PLAN October 2001 FINAL PLAN
3 Historic Preservation Plan City of Franklin: A Rich and Deep History For a community relatively small in size, Franklin has a remarkable history of local, state, and national significance. Franklin is located in Williamson County in Middle Tennessee approximately fifteen miles south of Nashville. The Town of Franklin was established by Act of the Tennessee legislature on October 26,1799 and later incorporated in 1815. Abram Maury laid out Franklin, the County seat of Williamson County, using a grid system around a public square. Franklin was named after American Patriot Benjamin Franklin, a close friend of Dr. Hugh Williamson, a member of the Continental Congress for whom Williamson County was named. Many of the historic homes in Franklin and the surrounding countryside were built in the decades preceding the Civil War, during a time of agricultural prosperity. The town’s first subdivision, Hincheyville, was named after Hinchey Petway, a wealthy merchant living in Alabama who purchased the land for the purpose of forming a subdivision and reselling it as town lots in 1819. Although the ninety-acre subdivision, located between 5th and 11th Streets and Main and Fair Streets has existed since 1819, most construction took place in the latter half of the 19th century. Today there remains a wealth of gingerbread porches, gabled roofs and a mixture of styles all demonstrating the eclecticism of the neighborhood. The Town of Franklin is known for a number of firsts in Tennessee history. Williamson County’s first courthouse was a log building built in 1800 in the center of Franklin, replaced nine years later by a brick structure. The third courthouse, completed in 1858, is one of seven remaining antebellum courthouses in Tennessee. It was used as the Federal headquarters during the Civil War and as a hospital after the Battle of Franklin. In 1823 construction began on the first Masonic Lodge in Tennessee. The Gothic style temple was built using funds from the first legal lottery in Tennessee history. The Lodge was the first three-story building in the State and the tallest building west of the Allegheny Mountains. In 1827, Bishop James H. Otey organized the St. Paul’s Episcopal Church in the Lodge. St. Paul’s the first Protestant Episcopal Church in Tennessee, moved to its own building on Main Street in 1831, the oldest Episcopal church in continual use west of the Appalachians. The Civil War put Franklin in the middle of conflict. After the fall of Nashville in early 1862, Franklin became a Federal military post. During the late summer of 1864, the Confederate forces mounted a great drive. Under the command of General John Bell Hood, the Army of Tennessee moved up through Georgia and Alabama, crossed the Tennessee River, and then entered Tennessee. The November 30, 1864 Battle of Franklin, located on the banks of the Harpeth River, has been called both “the Gettysburg of the West” and “the bloodiest hours of the American Civil War.” Franklin was one of the few night battles in the Civil War. It also took place on one of the smallest battlefields, a mere 2 miles long and 1½ miles wide. The main battle lasted about five hours, during which Federal forces lost 2,500 casualties and the Confederates lost
4 CITY OF FRANKLIN, TENNESSEE another 7,000 as casualties. The nearby 1830 Carter House was used as Federal Headquarters during the Battle. The Confederate Army used Carnton Plantation as a field hospital during and after the Battle. The Courthouse, the First Presbyterian Church, and St. Paul’s Episcopal Church all served as hospitals. Reminders of the Battle of Franklin and the Civil War remain throughout the City. The ladies of Chapter 14 of the United Daughters of the Confederacy (UDC) raised more than $2,700 to purchase and erect a forty-three foot tall monument in the center of the town’s public square. From atop a tall column, the statue of a Confederate infantryman gazes wearily to the South. The monument was unveiled on November 30, 1899. Ten thousand people traveled to Franklin for the ceremony. As the twentieth century began, Franklin remained a small country town that increasingly seemed to be less isolated from the world. Franklin’s rural location was served by the railroad, and gradually as the century turned, other hallmarks of modernity arrived – motorcars, telephones and electricity. In 1901 most of the dirt or loose macadam roads leading in and out of Franklin were officially known as turnpikes and were private toll roads. Overseers were appointed for county owned roads, the maintenance of the turnpikes was primarily a private concern, as were the amount of tolls charged. The 1920s saw a movement to eliminate the toll roads gathering momentum despite worries over tax burden. By 1924 the Williamson County government had begun the slow process of purchasing the various toll roads. Throughout the 1930s, 40s and 50s, Franklin remained a farming community with an economy based primarily on agriculture with tobacco as the dominant cash crop. By the 1960s, highways from Nashville were starting to bring new development to the region. The construction of Interstate 65 in the 1960s accelerated the pace of change and development as farming became less attractive economically than housing and commercial development. Similar to what was taking place in many older historic cities and towns around the country, the rapid change fostered by I- 65 sparked an active historic preservation movement in Franklin and Williamson County. A small group of citizens recognized the need for an organization to protect and preserve the area’s architectural, geographic and cultural heritage. The Heritage Foundation of Franklin and Williamson County was founded in 1967 to perform activities such as: survey historic resources, nominate properties to the National Register of Historic Places, sponsor educational programs, and buy and sell historic buildings.
5 Historic Preservation Plan In 1960 four properties associated with the Battle of Franklin were designated National Historic Landmarks. In 1972 the Franklin Historic District, the original sixteen-block town plat, was listed on the National Register of Historic Places for its architectural significance. Architectural surveys completed in 1976 and 1982 in Williamson County noted 37 rural properties in the City of Franklin. In 1982, the area known as Hincheyville was listed on the National Register of Historic Places. In 1986 the first survey of architectural resources was completed for Franklin and resurveyed in 1999. As a result of the 1999 survey, the Franklin Historic District was expanded, and several other properties were listed on the National Register including the Adams Street Historic District. Today visitors to Franklin enjoy an award-winning Great American Main Street town. The Franklin Main Street program began in 1978 as a project of The Heritage Foundation of Franklin and Williamson County. The Foundation, concerned about economic decline and disinvestments in the downtown area, organized field trips to learn how other cities were dealing with downtown revitalization. Property owners completed twenty-eight building rehabilitation projects stimulated by 25% Federal Tax Credits. The Foundation assisted with renovation projects by advocating for money to replace broken sidewalks and curbs and by organizing volunteers to donate materials and labor. The downtown buildings were marketed to investors who renovated them to house restaurants, shops and professional offices. The preservation community’s efforts were recognized when Franklin became an official Tennessee Main Street Town in 1984. Today, the Victorian commercial district, with commemorative brick sidewalks and beautifully renovated historic buildings housing elegant shops is the heart of Franklin and Williamson County. A once solely agricultural community, Franklin has gradually evolved into an active suburb of Nashville. The area still retains strong vestiges of its agricultural roots – farm implement dealers, horse farms, and fields of corn and beans. Along with the concentrations of historic buildings and sites, these surrounding landscapes are also important elements in the historic character of Franklin.
6 CITY OF FRANKLIN, TENNESSEE Historical Timeline for the City of Franklin 1799 Town of Franklin established 1799 Williamson County’s first Courthouse is built in Franklin 1815 Town of Franklin is incorporated 1819 1st subdivision (Hincheyville) is laid out southwest of town 1823 Construction of the first Masonic Lodge in Tennessee begins 1823 Carnton Plantation is built 1830 President Andrew Jackson travels to Franklin for the Treaty of Chickasaw negotiations 1830 Carter House is built 1859 Completion of the Tennessee and Alabama Railroad 1862 Franklin becomes a military post after the fall of Nashville 1864 Battle of Franklin 1899 Confederate statue unveiled in the middle of the public square 1960 Four properties associated with the Battle of Franklin are designated National Historic Landmarks 1967 Heritage Foundation of Franklin & Williamson County founded 1972 Original 16-block town plat is listed on National Register of Historic Places 1976 First inventory of historic properties in Williamson County is conducted 1978 Carnton Plantation opened to the public 1982 Hincheyville District is listed on the National Register of Historic Places 1982 A survey of 726 historic properties in Williamson County included rural sections of Franklin 1984 Franklin becomes a National Main Street Town 1986 Historic Preservation Ordinance creating Historic Zoning Commission enacted 1986 Multi-resources nomination submitted to the National Register of Historic Places 1988 Franklin Historic District expanded 1988 Lewisburg Avenue District listed on the National Register of Historic Places 1999 First thorough inventory of historic properties in Franklin updated 2000 Franklin Historic District expanded 2000 Adams Street District listed on National Register of Historic Places 2001 City of Franklin Historic Preservation Plan completed
7 Historic Preservation Plan Franklin’s Historic Preservation Context Franklin has a long history of preserving its historic resources. For decades, Franklin’s citizens have taken steps to protect and celebrate their historic resources, using tools that range from recognition to regulation. The framework for preservation includes policies and programs at the federal, state and local levels. Following is a brief overview of the policies and programs currently affecting historic resource preservation in Franklin. Federal Policies & Programs The federal government, chiefly through the National Park Service, provides several policy and program guidelines that seek to encourage historic preservation, principally through incentives rather than regulation. Key federal programs that Franklin has participated in are: National Register of Historic Places Historic Preservation Tax Incentives Program Certified Local Government Program National Register of Historic Places The National Register of Historic Places, authorized under Section 101 of the National Historic Preservation Act, is the Nation’s official list of cultural resources worthy of preservation. The National Register is part of a national program to coordinate and support public and private efforts to identify, evaluate, and protect historic and archaeological resources. The National Park Service, under the Secretary of the Interior, is charged with maintaining and expanding the list of properties including, sites, buildings, structures, objects, and districts that are significant in American history, architecture, archaeology, engineering, and culture. National Register properties are distinguished by having been documented and evaluated according to uniform standards. Listing in the National Register contributes to preserving historic properties in a number of ways: Recognition that a property is of significance to the Nation, the State, or the community. Consideration in the planning for federal or federally assisted projects. Eligibility for Federal tax benefits. Qualification for Federal assistance for historic preservation, when funds are available. Listing on the National Register does not place federal restrictions on what the owner may do with the property, unless the owner receives a federal grant or tax benefits. Franklin has actively pursued listing its historic resources on the National Register. Within the City limits there are four National Register Historic Districts, two National Historic Landmarks, and more than sixty individually listed National Register Properties. The greatest concentration of these properties is in and around the original 16-block plat for the City. Information about these properties was compiled by the Heritage Foundation in a 1995 book entitled, National Register Properties, Williamson County, Tennessee.
8 CITY OF FRANKLIN, TENNESSEE #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S #S#S #S #S #S #S#S #S #S #S #S #S #S #S Ê Ê Ê Ê Ê U% U% U% #S Ê City of Franklin Historic Resources National Historic Landmark Historic District Historic Preservation Overlay Urban Growth Boundary City of Franklin Historic Site Century Farm Mufreesboro Rd Liberty Pike Del Rio Pike Hillsboro Rd Columbia Ave Franklin Rd Mack Hatcher Pkwy N S W E 0.4 0 0.4 0.8 Miles I-65 New Hwy 96 West Data Source: City of Franklin’s Engineering Department, the National Register of Historic Places, and Mary Means & Associates, Inc.
9 Historic Preservation Plan Preservation Tax Incentives Federal tax incentives are available through the Federal Historic Preservation Tax Incentives Program, also administered by the National Park Service. The tax credit program was created to encourage private investment in the rehabilitation of historic buildings, and to promote economic revitalization. Specifically, a property owner can receive a: 20% tax credit for the “certified rehabilitation” of “certified historic structures,” or 10% tax credit for the rehabilitation of non-historic, nonresidential buildings built before 1936. The tax credit program reduces the amount of federal income tax owed by the property owner. A “certified historic structure” includes buildings that are designated as a National Historic Landmark, listed on the National Register of Historic Places, identified as a contributing building in a National Register Historic District, or located in a local historic district that is certified by the National Park Service. Furthermore, the tax credit is available for buildings that will be used for commercial, industrial, agricultural, or rental residential purposes, but is not available for buildings used exclusively as the owner’s private residence. In order to receive the tax credit property owners must submit an application that is reviewed by the State Historic Preservation Office and the National Park Service to ensure that the rehabilitation work is done in accordance with the “Secretary of Interior’s Standards for Rehabilitation.” The IRS generally requires that a minimum of $5,000 be spent on rehabilitating a building in order to qualify for the tax credit. Approximately forty-five properties have been rehabilitated federal preservation tax incentives, particularly to defray the costs of rehabilitating buildings along Main Street. Certified Local Government Program The Certified Local Government (CLG) program integrates local governments with the national historic preservation program through grassroots preservation activities. The Program, jointly administered by the National Park Service and State Historic Preservation Offices (SHPOs) provides technical assistance and small matching grants to communities whose local governments are taking steps to preserve for future generations what is significant from their community’s past. Once CLG status is attained from the National Park Service, local governments are required to enforce State or local legislation for the designation and protection of historic properties, establish and maintain a qualified historic preservation commission, and maintain a system for survey and public participation. Projects eligible for funding and the criteria used to select them are developed annually by the SHPO. Funding decisions are made by the State not the National Park Service. Franklin has been a member of the CLG Program since 1990. State Policies & Programs The Tennessee Historical Commission is the primary state agency in the areas of history and historic preservation. The mission of the Tennessee Historical Commission (THC) is to “record, preserve, interpret, and publicize events, persons, sites, structures, and objects significant to the history of the State and to enhance the public’s knowledge and awareness of Tennessee history and the importance of preserving it.” The Commission also carries out activities and programs authorized under federal legislation, namely the National
10 CITY OF FRANKLIN, TENNESSEE Franklin Historic District Hincheyville Historic District Lewisburg Historic District Adams Street Historic District Data Source: City of Franklin’s Engineering Department, the National Register of Historic Places, and Mary Means & Associates, Inc. 0.2 Miles 0.1 0.1 0 N S W E Historic Districts Hillsboro Rd Franklin Rd Columbia Ave Mufreesboro Rd New Hwy 96 West West Main St Lewisburg Ave
11 Historic Preservation Plan Historic Preservation Act. These programs are under the direction of the State Historic Preservation Officer (SHPO), an official appointed by the Governor to administer the Act. Tennessee Register of Historic Places In 1994, the State passed legislation requiring that properties listed on the National Register of Historic Places simultaneously be listed on a Tennessee Register of Historic Places. The Tennessee Register of Historic Places is a listing of historic sites, landmarks, districts and zones. Consent of the owner is required for listing, and the state register provides no protection for the historic property. All properties listed on the Tennessee Register of Historic Places are also listed on the National Register of Historic Places. Historical Markers One of the most highly visible programs of the THC is the Historical Markers Program. The program, which began in the 1950s has erected over 1400 markers commemorating and marking the locations of sites, persons, and events significant in Tennessee history. The THC publishes a Tennessee Markers Guide that is valuable in introducing travelers to Tennessee history. The Commission has published the 9th edition of the guide. In addition to the THC Historical Markers, the Daughters of the American Revolution, the United Daughters of the Confederacy, the Heritage Foundation of Franklin and Williamson County, and the Williamson County Historical Society all have their own marker programs. The Williamson County Historical Society produced a comprehensive guide to all County historical markers in 1999. Local Policies & Programs The City of Franklin and interested citizens have taken steps to assure that preservation remains a priority in Franklin. Local tools include historic district zoning, the Historic District Commission, the National Register of Historic Places, the Tennessee Register, and the Franklin and Williamson County register. Zoning Ordinances Historic Preservation Overlay Districts The City’s zoning ordinance includes a historic preservation overlay district (Section 6.7.1). The purpose of the district is to preserve Franklin’s historic resources by assuring that changes to the historic fabric are compatible, to enhance property values and stimulate the local economy, and to promote education and understanding among Franklin’s citizens about the City’s heritage. Historic zoning districts can only be designated at the request of property owners and by the approval of the Board of Mayor and Aldermen. A Historic Zoning Commission comprised of nine residents appointed by the Mayor, including one member of the Planning Commission, is responsible for ensuring compliance with the historic preservation ordinance. The Director of the Codes Department and one of his staff assists the Commission in its duties. No permit can be issued by the Codes Department for construction, alteration, rehabilitation, moving, or demolition for a property within the Historic Preservation District until the project has been submitted to, and receives a written certificate of appropriateness from, the Historic Zoning Commission. The Historic Zoning Commission reviews only those proposed changes to the exterior appearance of
12 CITY OF FRANKLIN, TENNESSEE S W N E 0 .4 .4 .8 Miles Data Source: City of Franklin’s Engineering Department, and Mary Means & Associates, Inc. Note: The Historic Preservation Overlay also includes property at Fieldstone Park, Carnton Plantation, and Cheswicke Lane. 1991 1990 1989 1982 1981 1998 1992 Historic Preservation Zoning Overlay
13 Historic Preservation Plan historic properties that are visible to the public. Anecdotal evidence suggests that the most common issues that come before the Commission involve signs, additions and accessory buildings. The Commission routinely provides free architectural advice to property owners, and Codes Department staff often will refer property owners to the Heritage Foundation, which has members who are architects and willingly provide free design assistance. Residents who fail to comply with the findings of the Historic Zoning Commission must correct their work, and may be subject to fines. The Heritage Foundation, Historic Zoning Commission, and the City of Franklin are working to develop a brochure about the historic preservation overlay district for distribution to local property owners to clarify the process and extent of regulation within the overlay district. Farmstead Preservation Ordinance The City’s zoning ordinance also provides design guidelines for shaping the character of new development located on, next to, or across the street from National Register sites (Section 4.10). The Planning Department and Planning Commission, as part of the standard site plan and subdivision review process, oversee compliance with the ordinance. Historic sites that the Tennessee Historical Commission deems eligible, but that have not been formally listed on the National Register, are also subject to the farmstead preservation ordinance. City planners rely upon the National Register site survey information that is collected and updated by the Heritage Foundation to provide relevant information. Appropriate remedies include landscape buffering, cluster development, and architecture that is compatible in style and scale. The City has contracted with the Nashville architecture and planning firm, Looney Ricks Kiss, to provide design review assistance on an as-needed basis. Archaeological Site Preservation Ordinance Archaeological sites within the City limits are protected under Section 20-301 of the Zoning Ordinance. The City adopted the archaeological statutes developed by the Tennessee Historical Commission and granted the Codes Director responsibility for maintaining records identifying the location of archaeological resources. The Codes Department is also responsible for ensuring that construction or excavation activities do not adversely impact archaeological sites, artifacts, burial objects, burial grounds or human remains. City Planning Long Range Plan The city’s Long Range Plan serves as a policy framework for land use issues in the City of Franklin. Historic preservation is among the issues addressed in the plan. The plan recognizes the region’s historic character as an important factor in the quality of life for residents, identifying historic character as “perhaps the single most important factor that distinguishes the area from other competing markets.” Many of the plan’s recommendations recognize the important role played by private organizations such as the Heritage Foundation in educating residents about preservation issues and advocating on behalf of Franklin’s preservation interests. Policies articulated in the Long Range Plan emphasize the need to avoid unduly burdensome regulation on private property owners and developers. The Long Range Plan recommends that “ the City and private organizations concerned with the economic development of the area should
14 CITY OF FRANKLIN, TENNESSEE adopt a program for managing historic resources as important community-wide assets, recognizing that, like other assets, the historic resources can be enhanced and marketed or mismanaged and depleted.” Design Standards Franklin is considering the adoption of design standards that would amend the City’s zoning ordinance to encourage development consistent with the City’s unique community character. Specifically, the design standards seek to: Encourage high quality development as a strategy for investing in Franklin’s future Emphasize Franklin’s unique community character Maintain and enhance the quality of life for Franklin’s citizens Shape the City’s appearance, aesthetic quality and spatial form Reinforce civic pride of its citizens through appropriate development Increase awareness of aesthetic, social, and economic values Protect and enhance property values Minimize negative impacts of development on the natural environment Provide property owners, developers, architects, builders, business owners and others with a clear and equitable set of parameters for developing land Encourage a pedestrian and cyclist-friendly environment Enhance the City’s sense of place and contribute to the sustainability and lasting value of the city. If approved by the Board of Mayor and Aldermen, the Planning Department and Planning Commission would be responsible for ensuring consistency with these standards. Franklin Tomorrow Vision Plan Franklin Tomorrow is a community wide effort designed to allow interested individuals an opportunity to shape the future of Franklin. The visioning process includes a look at growth and development trends over the next twenty years, community values and priorities, and seeks a citizen-based consensus on Franklin’s future. The final vision plan is scheduled for public release in November 2001. A preliminary report has identified historic preservation and retaining the region’s unique “community character” as major concerns of the community. Historical Register of Franklin & Williamson County The Historical Register of Franklin and Williamson County provides another means of recognizing important historic community assets. The primary criteria for listing on the Historic Register of Franklin and Williamson County Structures are that the structures must have been built before 1940, have local historical or architectural significance, and have no major facade changes. The Heritage Foundation of Franklin and Williamson County maintains this list. Heritage Roads Identification Program The City of Franklin has adopted a list of roads that have been identified as the Heritage Roads of Franklin. These historic roads were identified by the Heritage Foundation according to the following criteria: The road must be located in an area where natural, agricultural, or historic features are predominant. The road must be narrow, intended for predominantly local use; or a historic gateway.
15 Historic Preservation Plan Heritage Roads of Franklin Heritage Roads N W S E 0.4 0 0.4 0.8 Miles Data Source: City of Franklin’s Engineering Department, the Heritage Foundation of Franklin and Williamson County, and Mary Means & Associates, Inc. Lewisburg Ave New Hwy 96 West West Main St Franklin Rd Columbia Ave Adams St Carnton Ln N Margin St S Margin St
16 CITY OF FRANKLIN, TENNESSEE The road must possess one of the following characteristics: Provide access to historic resources, follow historic alignments, or highlight historic landscapes. Outstanding natural features along its borders, such as vegetation, tree stands, or stream valleys. Provide outstanding views of farm fields and rural landscape or buildings. There are no guidelines or standards in place to specifically protect these listed historic roads. Main Street Program The Main Street Program is a comprehensive, strategic public/private approach to downtown revitalization that encompasses organization, promotion, design, and economic restructuring. Franklin has been a Main Street town since 1984. In 1995, Franklin was honored as one of the best downtowns in the nation when it received one of the five “Great American Main Street” awards in the first year of the annual national competition. Through a combination of public and private funds, approximately $3 million was invested along Franklin’s Main Street in the 1980s to improve facades and to add street trees, parking, appropriately scaled and styled furnishings, lighting, hanging planters, and banners. Upper story apartments were renovated, restaurants and shops opened, and pedestrian traffic increased significantly. Downtown retail businesses experienced a rebirth. However, in recent years markets have changed and downtown retail has a lot more competition in the region. Changing retail demands and retail development along the I-65 corridor have led to a gradual shift of more tourist-oriented offerings away from downtown. Markets for professional offices, partly drawn by the county courthouse, have increased pressure to convert first floor space from retail to office. While this provides building owners with rental income, office uses tend to damper the lively pedestrian environment in which retail store windows are a major component. There is concern about the long-term economic viability of Main Street. Economic Research Associates (ERA) recently completed a retail study of downtown, commissioned by Downtown Franklin Association and The Heritage Foundation of Franklin and Williamson County. ERA concluded that there is significant regional demand and opportunities to attract new retailers to the downtown shopping district that would service local residents. Retaining economic viability is an important precursor to preservation. Restoration and adaptive reuse retain the practical relevancy that historic resources have in a community. The Downtown Franklin Association (DFA) provides marketing and management services for Franklin’s Main Street program. Unlike many other Main Street communities across the country, Franklin’s Main Street does not currently receive funding support from the City. Franklin has benefited from participation in the Tennessee Main Street program, but state budget constraints eliminated the State Main Street program.
17 Historic Preservation Plan Issues Affecting Historic Preservation An important part of any planning process is to assess the existing resources and the larger trends about community capacity, land use patterns, demographics, and the economy in order to craft an appropriate response. There are several issues worth noting that influence preservation in Franklin: Outstanding quality of historic resources A community preservation ethic and legacy Active preservation organizations A range of preservation tools in place Increasing growth pressure, historic resources at risk Determining sites for new public facilities Preservation responsibilities and public perceptions Outstanding Quality of Historic Resources There is a wonderful array of historic resources in the City of Franklin, ranging from the charming 19th and early 20th century commercial buildings along Franklin’s historic Main Street, to the historic African-American Toussaint L’Overture Cemetery, to working farmsteads set amidst the rolling countryside, to the Civil War battlefields where important military and political events took place. Together, these tell an evocative story of Franklin’s past, present and future potential. The core of Franklin is comprised of mostly pre-World War II housing stock in an array of architectural styles including Federal, Greek Revival, Italianate, Victorian, Colonial Revival, and Bungalow styles. The scale of the buildings, modest lot sizes, sidewalks, and mature landscaping create a charming small town atmosphere. Much like the pattern in other communities, Franklin’s preservation movement focused its initial efforts on the city’s oldest buildings and on its remarkably intact downtown. Not surprisingly, National Register recognition seems to have focused on the better-preserved, traditionally affluent neighborhoods. One can get a more complete picture of the City’s developed form, however, by examining a series of maps that depict the City’s boundaries at various points in time. The City had several significant bursts of geographical expansion with neighborhoods quickly filling in the landscape. Most of these late 19th century, early to mid-20th century neighborhoods are characterized by
18 CITY OF FRANKLIN, TENNESSEE 1950 Urban Growth Boundary 2000 1990 1980 1970 1960 Data Source: City of Franklin’s Engineering Department, and Mary Means & Associates, Inc. An Expanding City: Annexations Over Time N S W E 2 2 0 4 Miles
19 Historic Preservation Plan orderly elements of comfortable street widths, sidewalks, street trees, and building size and lot setbacks characteristic of ‘traditional town’ design. Today, these pre-WWII neighborhoods comprise the older core of the city. A number of these neighborhoods have interesting histories or possess distinctive character. An example is Hard Bargain, a traditionally African-American neighborhood whose continuity is visible in the mix of very early stone or frame houses and the occasional well-scaled contemporary house or even an occasional mobile home. Community institutions like churches and fraternal orders are anchors. An important house built by a former slave, Harvey McLemore, is being renovated and restored as a museum highlighting African-American heritage in Franklin. A Community Preservation Ethic & Legacy Franklin has a widespread community preservation ethic. For more than fifteen years, historic preservation has been an underlying current among community activities. Most of the historic Main Street and downtown neighborhoods have been restored and are in active use. Recent community events surrounding the Franklin Tomorrow Community Vision Plan confirmed that residents continue to feel a tremendous source of pride in Franklin’s distinct community character, which many specifically describe as ‘historic downtown Franklin.’ Moreover, there seems to be growing recognition that the rural landscapes and roads that link the countryside to the downtown are all part of what makes Franklin special. Active Preservation Organizations Franklin’s legacy of preservation is due in large part to the efforts of non-profit organizations that have played a critical role in preserving the heritage resources of Franklin. There are several preservation organizations in Franklin, an indication of the strong level of commitment by local residents to preserve their community’s historic resources. Local preservation organizations include: The Heritage Foundation of Franklin & Williamson County. The oldest preservation organization in Franklin, the Heritage Foundation is committed to protecting and preserving the architectural, geographic, and cultural heritage of Franklin and Williamson County. In addition, the Foundation strives to promote the ongoing economic revitalization of historic downtown Franklin. The non-profit organization has a full-time
20 CITY OF FRANKLIN, TENNESSEE staff. Its preservation activities include public education, resource surveys and plans, easement acquisition, property acquisition, and advocacy. African-American Heritage Society. This non-profit volunteer organization works to preserve and celebrate Franklin’s AfricanAmerican heritage. The Society is currently working to restore the home of the former slave, Harvey McLemore, which will become a museum/education center. Save the Franklin Battlefield. A non-profit volunteer organization working to preserve portions of the Franklin Battlefield and other Civil War sites in Williamson County through public education and property acquisition. The purpose of Save The Franklin Battlefield, Inc is to focus the national attention of all concerned citizens on the need to save this Civil War Site. The organization’s activities include a monthly newsletter, public education events, battlefield tours, and interpretive panels. Save the Franklin Battlefield also collaborates financially with other non-profit groups to buy battlefield parcels. Downtown Franklin Association. Founded in 1984, the Downtown Franklin Association is now part of the Heritage Foundation. Since its inception, it has worked to revitalize Franklin’s historic downtown using the principles of the National Main Street Program. Carnton Association, Inc. This non-profit organization serves as steward of one of Franklin’s most historic sites, Carnton Plantation. Located near the Franklin Battlefield, the Carnton Plantation House served as an observation post, hospital and temporary morgue during the Civil War battle. Since 1978, the Association has worked to restore, maintain and interpret the plantation. The Carter House. Caught in the center of the Battle of Franklin, the Carter House served as the command post for the Union Army during the bloody battle. The homestead, which is comprised of the 1830 Classical Revival brick house and several outbuildings including slave quarters, has been restored and operates as a non-profit museum and interpretive center for the Battle of Franklin. Williamson County Historical Society. The County Historical Society is the principal steward of Franklin’s historical records, and works with individuals and organizations to research and share information about local history. Among its many activities is its annual journal featuring aspects of history in the City of Franklin and Williamson County. These organizations play a critical role as stewards, educators and advocates for historic preservation in Franklin. A Range of Existing Preservation Tools in Place As noted earlier, there are number of policies and programs in place at the federal, state and local level that seek to preserve historic resources in Franklin. Relative to many other communities, Franklin has been proactive in pursuing local regulatory mechanisms to facilitate historic resource preservation. Recent efforts to adopt design standards should further these efforts.
21 Historic Preservation Plan Among the local preservation organizations, the Heritage Foundation has been especially active in educating residents about preservation issues in Franklin and Williamson County, ranging from local workshops to publications to school history programs. What appear to be less available are local incentive programs such as low-interest loans, grants, and tax incentives. Increasing Growth Pressure, Historic Resources At Risk Projections for continued population growth and demand for housing and jobs will result in development pressure that may be at odds with preserving the sites and settings of Franklin’s historic resources. Over the next twenty years, the population is expected to almost double, increasing from 42,000 to 78,000. The City is likely to expand in size through annexation, taking in land that includes significant historic resources. Rapid growth increases the risk of changes that will erode the special qualities valued by residents and visitors. Despite a legacy of preservation, many of the community’s historic resources face an uncertain future. A report for Franklin Tomorrow warns that Franklin’s historic properties may not survive periods of rapid growth similar to those Franklin is currently experiencing. Moreover, the report observes that, “as the area grows it will be increasingly difficult to physically distinguish the City of Franklin from surrounding jurisdictions.” For a community that takes enormous pride in its distinctive character and preserving its historic resources, this does not bode well. Moreover, according to the preservation report prepared by Thomason and Associates, it is the rural historic resources that are at greatest risk of degradation or destruction. This is not surprising given that new development predominately occurs in the “green fields” beyond existing urban areas where there tend to be fewer development constraints. Areas adjacent to I-65 have experienced the most recent losses of historic resources. There, several properties have been demolished or damaged beyond repair in order to make way for new development. An inventory completed in 1982 identified 37 properties of historic significance within what are now Franklin’s City limits. Of these, seventeen were demolished because they stood in the way of new development. Determining how and where growth should be accommodated appears to be an issue very much in the minds of local residents.
22 CITY OF FRANKLIN, TENNESSEE Determining Sites for New Public Facilities Schools, libraries, fire stations, and civic buildings all represent significant investment of public funds. Traditionally, civic buildings play symbolic roles as well, often sited in prominent locations or intentionally used for place making. Increasingly, communities are viewing historic buildings as assets for public uses, and are considering how public facilities can be catalysts for revitalization and/or neighborhood stabilization. A preservation plan is intended to enable a longer-term view, to reduce the incidents of case-by-case, seemingly last minute efforts to influence development decisions. Public facility issues in Franklin and Williamson County often are accompanied by conflict and sometimes result in lost opportunities. The issue of public facilities is one that merits a more conscious approach by city and county government, and the two school boards. Williamson County is an owner of historic property in the City, including the fine 1858 Courthouse. The County is planning a significant expansion project, yet there would not appear to be a consultation process about the design, massing and configuration of servicing and parking facilities. The County Board of Education’s recent experience in selecting the site for a new elementary school has been filled with an unfortunate level of conflict. Preservation Responsibilities & Public Perceptions There would seem to be little clarity about what it means to be in the historic district covered by the Historic Zoning Commission, and how the Commission operates. The visibility of the Heritage Foundation with its activist profile, causes it to be seen by some as the arbiter of preservation decisions in the City. The official mechanism for design and development review in the historic district is the Historic Zoning Commission. The City does not have a trained preservation planner on staff. While generous on the part of its architect members, the practice of the Heritage Foundation providing no-cost design advice to HZC applicants can lead to misunderstandings, even conflicts of interest.
23 Historic Preservation Plan Historic Preservation Goals In response to the issues, trends and opportunities, the following goals were recommended and adopted: Goal 1: Celebrate and promote the diverse history and culture of Franklin. Goal 2: Preserve Franklin’s significant historic sites, settings and linkages in ways that assure retention of long-term residents, affordable housing choices, and diversity. Goal 3: Maintain an accurate and easily accessible inventory of Franklin’s historic resources, including buildings, sites and landscapes. Goal 4: Increase awareness of preservation incentives and regulations. Goal 5: Enhance downtown management and marketing efforts to enable downtown Franklin to remain competitive in the regional market place while preserving the historic resources that provide its distinctive identity. Goal 6: Promote heritage tourism that is compatible with community interests and capacity. Goal 7: Enhance the capacity of Franklin’s preservation community. These goals serve as the organizing framework around which the preservation strategies for Franklin have been developed.
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25 Historic Preservation Plan Franklin’s Strategies for Historic Preservation Following are strategies, organized around the goals, for continued preservation of Franklin’s historic resources. These strategies should not be seen as actions to be undertaken solely by the City of Franklin, rather, they presume a community-wide response as appropriate Goal 1: Celebrate and Promote the Diverse History and Culture of Franklin Historic preservation is not simply about preserving old buildings. Historic preservation is also about identifying and celebrating a community’s history, which in turn provides greater understanding of a community’s past, as well as a context for making decisions about the future. Franklin’s historic resources are tangible reminders of a way of life that has shaped what the City is today. Bringing more attention to the history and culture of Franklin is an important step toward increasing awareness and appreciation for preserving its historic resources. Organize an Annual Franklin Heritage Festival An excellent way to celebrate and promote the unique history and culture of a place is to create an annual Heritage festival. In addition to giving residents and visitors of Franklin a fun-filled day of activities, a heritage festival provides an opportunity for community building. The Downtown Franklin Association, a division of the Heritage Foundation of Franklin and Williamson County, currently sponsors an annual Main Street festival. This festival could be enhanced to more directly reflect the history and heritage of Franklin while still achieving its goal of raising funds for continuing economic revitalization of the downtown. The Heritage Festival could include living history, arts and crafts, historic architecture, music, and food related to Franklin’s heritage. Actors portraying residents from the past can bring history to life. The historic architecture of Franklin can be highlighted through walking tours, games such as architectural bingo, lectures etc. At the King County, Washington Annual Heritage Festival one of the highlights is a genealogy search. Festival participants are assisted by the Seattle Genealogical Society to discover their heritage through the Internet and CD-roms. In addition to special appearances by descendents of Thomas Jefferson and Sally Hemings the festival includes talks from genealogy experts throughout the festival. Strategies to Celebrate and Pr e and Promote the Div e the Diverse Hi se History and Culture of Franklin Organize an Annual Franklin Heritage Festival Publish a calendar of heritage events Document the History and Culture of Franklin: An Oral History Project Create a Community Heritage Center
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