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Section 1
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Recommended
Growth Plan
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The Knox County Growth Policy Coordinating
Committee worked for over a year to develop a plan that complies
with Public Chapter 1101, Tennessee's annexation and growth management
law. This plan, which the Coordinating Committee has recommended
for adoption by the governing bodies of Knox County, Knoxville
and Farragut, is the result of careful consideration of proposals
put forward by the three local governments, citizens, community
groups and business people. The plan is based on the requirements
of Public Chapter 1101; a thorough analysis of existing conditions
and trends in land use, population and the natural environment;
and input by citizens and detailed testimony by a wide variety
of governmental service providers, including city and county departments,
utility districts, emergency services and the school board.
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This section contains the policy
recommendations of the coordinating committee, presented in written
and graphic form. The remaining sections of the document provide
background information used to develop the plan.
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Goals
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The following goals have been adapted
from TN Public Chapter 1101:
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• In conjunction with the comprehensive
plans of Knoxville, Knox County and Farragut, provide a unified
physical design for the development of the local community;
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• Encourage a pattern of compact
and contiguous development to be guided into urban areas and planned
growth areas;
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• Establish an acceptable and
consistent level of public services and community facilities and
ensure timely provision of those services and facilities;
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• Promote the adequate provision
of employment opportunities and the economic health of the region;
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• Conserve features of significant
statewide or regional architectural, cultural, historical, or
archaeological interest;
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• Protect life and property from
the effects of natural hazards, such as flooding;
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• Take into consideration such
other matters that may be logically related to or form an integral
part of a plan for the coordinated, efficient and orderly development
of the local community; and
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• Provide for a variety of housing
choices and assure affordable housing for future population growth.
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Policies
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1. The Rural, Planned Growth,
and Urban Growth Boundary designations of this plan shall not
impair the rights of a landowner to lawfully use property in accordance
the provisions of the Zoning Ordinances of Knoxville, Knox County
and Farragut.
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2. Rezoning decisions shall be
consistent with the Growth Plan Map and policies.
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3. The following policies shall
apply in the Rural Area:
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3.1 The Knox County Zoning Ordinance
and Zoning Map shall determine land uses permitted in the Rural
Area. The rural designation shall not impede the right of a property
owner to use or develop the property for a purpose permitted by
that property's zoning. A land use listed in the Zoning Ordinance
as a "use on review" may be approved by the Planning Commission
if they find that the proposed development complies with all applicable
standards in ordinance.
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3.2 Rezoning within the Rural
Area shall be limited to the following zoning districts: Agricultural
(A), Estate (E), Open Space (OS), Floodway (F), Planned Residential
(PR at densities up to two (2) dwelling units per acre based on
the site's environmental characteristics and Health Department
determination of septic system capability (with exceptions noted
in #3.3 & #3.5 below), Transition (T), Historic Overlay (H),
Planned Commercial (PC), subject to the conditions listed below
in #3.4, and Light Industrial (LI) and (I), subject to the conditions
listed below in #3.6. By February 1, 2001, MPC shall deliver recommended
text of new Planned Business/Industrial Park, Neighborhood Commercial
and Rural Community Commercial zoning districts to County Commission
for legislative action. Upon the enactment of these zoning district
regulations, these new zones shall replace the PC, LI and I zones
in the preceding list of zones.
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3.3 Rezoning on slopes of 25
percent or more shall be limited to the following zoning districts:
Open Space (OS), Estate (E) and Planned Residential (PR) at densities
of one (1) dwelling unit per two or more acres. Rezonings on slopes
of 15 to 25 percent shall be limited to zoning districts which
have a minimum one (1) acre lot size; Agriculture (A), Estate
(E), Open Space (OS), and Planned Residential (PR) on lots of
one (1) or more acres are appropriate.
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3.4 In rural areas, rezoning to
Planned Commercial (PC) shall only be approved for commercial
uses or services needed to serve rural area residents, such as
food markets, convenience stores, gasoline service stations and
professional or business offices. A site plan shall be reviewed
and approved by the Metropolitan Planning Commission concurrently
with any rezoning to Planned Commercial in the Rural Area. Such
commercial facilities and rezoning shall be consistent with the
Sector Plans adopted by the planning commission.
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3.5 Extensions of low density
residential development (densities of 1 to 3 dwelling units per
acre) into the rural area shall be limited to the following conditions:
(a) the property must be zoned Planned Residential (PR); (b) provision
of sanitary sewer and public water services; (c) connecting collector
and arterial roads from the proposed development to the Urban
Growth Boundary or Planned Growth Area which meet the standards
of the Knox County Engineering and Public Works Department or
its successor; and (d) a traffic impact analysis demonstrating
to the satisfaction of the planning commission that the effect
of the proposed and similar developments in the traffic analysis
zone will not unreasonably impair traffic flow along the arterial
roads through the adjacent Planned Growth Area. The intent of
this section is to allow extensions of low density residential
development into rural areas when urban services (sanitary sewer,
water, and adequate roads) become available. These areas should
be reclassified "Planned Growth" when the growth plan is periodically
revised and amended.
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3.6 Land within the Rural area
may be rezoned for business parks or industries only under the
following conditions:
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a.) The rezoning is consistent with
the applicable Sector Plan. The Sector Plan may be amended upon
recommendation of the Metropolitan Planning Commission in accordance
with provisions of state law regarding adoption and amendment
of regional plans.
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b.) Wetlands, floodways, streams,
or hillside lands with pre-development slopes of 16 % or greater,
as defined in Section 82-30 of the Knoxville-Knox County Subdivision
Regulations shall not be rezoned for industrial or commercial
use.
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c.) The rezoning application must
include deed restrictions which specify permitted land uses and
to create design standards for landscaping, architecture, drainage,
utilities and transportation access. These restrictions shall
be similar to those recorded for East bridge Business Park and
in effect as of December 1, 1999. If the rezoning is approved,
these deed restrictions, with any changes required by the Planning
Commission or County Commission, shall be filed prior to approval
of the rezoning by County Commission.
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d.) In the event that the Knox County
Commission adopts zoning regulations permitting conditional zoning,
approval of a conditional rezoning subject to the above referenced
standards may substitute for the filing of deed restrictions.
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e.) These areas shall be reclassified
"Planned Growth" when the growth plan is periodically revised
and amended.
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4. In Planned Growth Areas, the following
policies shall apply:
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4.1 The purposes of the Planned
Growth Area designation are to encourage a reasonably compact
pattern of development, promote expansion of the Knox County economy,
offer a wide range of housing choices, and coordinate the actions
of the public and private sectors, particularly with regard to
provision of adequate roads, utilities, schools, drainage and
other public facilities and services.
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4.2 Planned Growth Areas may include
any land use or development permitted by the Knox County Zoning
Ordinance.
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4.3 Rezonings in the Planned
Growth Area shall be consistent with the applicable Sector Plan
adopted by the Metropolitan Planning Commission.
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4.4 After receiving a recommendation
from the Planning Commission, the County Commission may amend
the Sector Plan if it finds that there has been a change in conditions
warranting the amendment.
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4.5 The purposes of the Planned
Growth Area designation are to encourage a reasonably compact
pattern of development, promote expansion of the Knox County economy,
offer a wide range of housing choices, and coordinate the actions
of the public and private sectors, particularly with regard to
provision of adequate roads, utilities, schools, drainage and
other public facilities and services.
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5. In Urban Growth Boundaries,
the following policies shall apply:
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5.1 The purposes of the Urban
Growth Boundary designation are to encourage a reasonably compact
pattern of development, promote expansion of the Knoxville-Knox
County economy, offer a wide range of housing choices, and coordinate
the actions of the public and private sectors, particularly with
regard to provision of adequate roads, utilities, schools, drainage
and other public facilities and services.
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5.2 In Urban Growth Boundaries,
any land use permitted in the Zoning Ordinance of the appropriate
jurisdiction shall be permitted, subject to all requirements of
that jurisdiction. Rezonings in the Urban Growth Boundaries shall
be consistent with the applicable Sector Plan adopted by the Metropolitan
Planning Commission or the Farragut Land Use Plan, as appropriate
or one created hereafter in Knox County under provisions of state
law.
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6. No municipalities other than
Farragut, Knoxville or one created under provisions of state law
will be allowed to designate urban growth boundaries in Knox County.
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7. Official determinations of
the location of the Urban Growth Boundaries, Planned Growth Area
boundaries, or Rural Area boundaries shall be made by the chief
zoning enforcement officer of Farragut, Knoxville and Knox County,
as appropriate, using the following standards:
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7.1 Boundaries which appear to
follow lot, parcel or property lines on the Official Growth Plan
map shall be interpreted to coincide with such lines. If a lot
or parcel appears to be split by a boundary, then its classification
shall be determined as being the classification which accounts
for the largest percentage of area within the lot or parcel. For
example, if a parcel is split by the boundary between a rural
area and a planned growth area, and the majority of the parcel
is in the rural area, then the entire parcel shall be classified
as rural.
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7.2 Boundaries which appear to
follow roads or railroads shall be interpreted to coincide with
the right of way lines. When a section of road or railroad right
of way abuts an urban growth boundary, that section of right of
way shall be designated as being entirely within that urban growth
boundary*. A section of right of way abutting both a planned growth
area and a rural area shall be designated as being entirely within
the planned growth area.
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7.3 When an urban growth boundary
appears to follow a body of water designated by a solid or intermittent
blue line on the most recently published United States Geological
Survey (USGS) topographic quadrangle map, then all of that portion
of the waterway contiguous to the boundary shall be designated
as being entirely within the urban growth boundary.
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7.4 When there is uncertainty
as to the location of an urban growth boundary then the planning
commission with jurisdiction over the boundary creating the uncertainty
shall determine the location of the boundary.
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Other Recommendations
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These recommendations address significant
policy issues raised during the Coordinating Committee's yearlong
planning process:
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1 A standing Growth Policy Coordinating
Committee should be in place at all times, so that, if the plan
is to be amended, time will not be lost making appointments.
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2. The Growth Policy Plan
should be periodically reviewed and, if warranted by changed conditions,
amended. This review should occur every 3 years, beginning with
the third anniversary of the effective date of the Plan.
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3. The Knox County Joint Economic
and Community Development Board required by Public Chapter 1101
should be utilized to coordinate an economic development strategy
that will guide the Knoxville-Farragut-Knox County community in
presenting a unified front in the economic development arena.
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4. Regulatory obstacles to "smart
growth" should be identified and addressed.
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4.1 The City of Knoxville's recent
adoption of a Traditional Neighborhood Development Ordinance,
which allows developers to create compact, pedestrian oriented,
mixed-use neighborhoods as an alternative to suburban sprawl,
is an example. Other possible regulatory reform initiatives include:
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4.2 Incentives to encourage rural
cluster development, whereby rural landscape features are preserved
by allowing concentration of development on a relatively small
part of a rural site. This could be based on a modified form of
the existing Open Space (OS) zoning district.
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4.3 Reduced parking requirements
for developments that are designed to encourage pedestrian, transit,
or bicycle transportation.
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4.4 A review of zoning ordinances
and adopted plans to identify other opportunities to incorporate
smart growth principles.
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5. One of the most effective
approaches for reducing urban sprawl could be to further revitalize
the inner city, as proposed in the Heart of Knoxville Empowerment
Zone Plan.
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6. Environmental resources.
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6.1 Local zoning ordinances should
be revised to include overlay zones or site plan review provisions
that would create and enforce environmentally sound standards
for development on hillsides or other steeply sloping lands. Hillside
protection ordinances (a) to limit the intensity of new development
on hillsides, and (b) to preserve trees and ground cover as part
of development processes. These regulations are needed to manage
forest resources during development, protect habitat, prevent
erosion, preserve aesthetic resources, maintain water quality
and avoid flooding.
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6.2 Erosion and sediment control
regulations should be strictly enforced.
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6.3 Water quality issues should
be addressed at the watershed level. If a watershed is split by
city/county boundaries, intergovernmental agreements should be
formulated to ensure a cooperative approach to watershed management.
Storm water runoff "best management practices", such as retention
of natural vegetation as buffers along streams, should be utilized.
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6.4 Greenways have been proposed
along many streams and floodways. Consideration should be given
to the annual use of a portion of local tax revenue to acquire
greenway space and to serve as a match to other funds available
for this purpose.
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6.5 Springs often form the head
waters of many tributaries. They have some of the most pristine
water that can be found in Knox County. As such they are occasionally
used as well heads and have unique biological habitat. The local
governments should identify and map springs and develop standards
to protect them, including prohibition of chemical applications
and the conservation of natural vegetation within a reasonable
distance of springs.
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6.6 The Karst terrain of Knox
County, created by limestone and dolomite geologic formations,
is characterized by sinkholes and caverns. The local governments
should continue to work with the Federal Emergency Management
Agency to identify the flood limits around sinkholes. In areas
known to be subject to flooding, regulations should be put in
place to have a hydrologist or engineer map the potential flood
areas so that the habitable portions of buildings can be kept
out of harm's way.
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6.7 The local governments should
work with state and federal biologists to identify where there
are critical habitats for endangered species and develop local
programs to set aside open space in those areas.
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7. Significant wetlands should
be mapped and protected through zoning regulations.
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8. Regional planning efforts,
such as the Regional Transportation Alternatives Committee (RTAC)
and Nine Counties, One Vision projects should be encouraged and
supported.
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