Proposed New Investments at Chilhowee Park
For many decades, Knoxville residents have hoped for more investment in Chilhowee Park. People want a park that offers year-round amenities for recreational and educational purposes.
The 2019 Chilhowee Park Strategic Plan captures these community dreams and sets forth a vision for how to realize them.
The Kincannon administration has worked to advance this strategic vision, as part of a larger focus on private and public investment in East Knoxville.
By collaborating with private partners, such as Zoo Knoxville, Muse Knoxville, and potentially the Emerald Youth Foundation, the City can more quickly and comprehensively restore Chilhowee Park to its former glory, with access to cultural, athletic, educational, green space and recreational spaces that are unique to the region.
Partnering with private entities to invest in some of the park space allows the City to put its resources into restoring and improving the green spaces and historic features in and around the water feature sometimes known as Lake Ottosee.
Chilhowee Park and East Knoxville advocates have shared their ideas and offered suggestions to help the City improve its plan and offer better community-building amenities.
In public meetings and informal discussions and through social media, here are some frequently asked questions and the City’s answers.
More information will be added as additional questions or concerns arise.
| Current Proposal by Emerald Youth Foundation |
What is pending before City Council?
Emerald Youth Foundation has proposed buying through a structured agreement approximately 13 of the 80 acres of City-owned property in East Knoxville, south of Magnolia Avenue, for $913,518. If approved by City officials, Emerald will invest approximately $25 million in privately raised philanthropic funds to build and operate a new family- and youth-serving recreation, wellness and education complex.
This section of the park, often called the Midway, is separated by Magnolia Avenue from the large main portion of Chilhowee Park. Emerald is proposing to build a recreation, wellness and education complex similar to its Haslam-Sansom Ministry Complex in Lonsdale – a nexus of new sports fields, basketball and volleyball courts, community meeting spaces, a pavilion, a learning center, a wellness center and a performance training / fitness space.
Mayor Indya Kincannon's administration believes the investment aligns with the 2019 Chilhowee Park Strategic Plan. It will create new opportunities and amenities for nearby families, financially support new infill housing, and reinvigorate daily, year-round usage and more investment in the main, larger part Chilhowee Park north of Magnolia.
How much of Chilhowee Park is the City considering selling to Emerald?
The proposal being considered by City Council calls for selling through a structured development agreement approximately 13 acres of underutilized land out of the 80+ acres within the park. The proposed land is all on the south side of Magnolia Avenue, and does NOT include Lake Ottosee, the Jacob Building or the amphitheater, all on the larger part of the park north of Magnolia. The sale requires that Emerald build a new youth and family complex.
Click here to view a map showing land ownership.
Where can I find a copy of the 2019 Chilhowee Park & Exhibition Center Strategic Plan?
In 2018, the City hired a consultant, Convention Sports and Leisure International, to gather input from stakeholders and recommend possible future uses and public and private investments in Chilhowee Park.
That strategic plan, completed in 2019, provides a framework for decisions about needed investments within the park.
Click here to view the Chilhowee Park & Exhibition Center Strategic Plan and the history of the process.
How does Emerald Youth’s proposal align with the 2019 strategic plan?
The plan suggested the possibility of privately developing the Midway area south of Magnolia Avenue to accommodate private reuse – specifically, housing and mixed-use retail.
Mayor Kincannon’s administration believes Emerald Youth’s $25 million investment in community and neighborhood amenities would better benefit East Knoxville families. New youth recreation and after-school amenities, community meeting spaces and a wellness center would be created.
Some of the proceeds from the sale, if approved, would go to support infill housing in the surrounding neighborhood as well as relocating a needed City stormwater pipe.
Would this mean selling the Jacob Building?
No. The only property proposed to be sold and redeveloped is the 13 acres separated from the park proper by four-lane Magnolia Avenue.
In fact, the City is entering into a long-term lease agreement that will allow Muse Knoxville to expand from 10,000 to 57,000 square feet by moving into the Jacob Building. The Muse’s anticipated $50 million in private funds will not only make its world-class play-based museum even better for users of all ages – these private funds also will restore the Jacob Building to its former grandeur.
All of the beloved historic features of Chilhowee Park – the bandstand, the lake, the amphitheater – will remain public assets in a revitalized Chilhowee Park.
Where can I find the recent request for proposals (RFP) document and Emerald Youth Foundation’s proposal?
Click here to view the City's RFP document.
Click here to view Emerald Youth Foundation’s proposal.
Where can I see Emerald Youth’s proposed concept plan for the site?
Click here to view the concept plan proposed for approximately $25M in a new family- and youth-serving recreation, wellness and education complex.
Is Emerald obligated to build and operate the community complex? For how many years?
Yes, the contract requires Emerald Youth Foundation to build and operate a community amenity for sports, wellness, education, and recreation.
The draft agreement between the City and Emerald requires that Emerald operate the facility for a minimum of 20 years. The agreement gives the City re-purchase and right of first refusal provisions.
Who is Emerald Youth Foundation? Where can I find more information about the organization?
Founded in 1991, Emerald Youth Foundation began over three decades ago as the neighborhood youth ministry from one church, Emerald Avenue United Methodist, in the nearby Fulton High School neighborhood.
Emerald Youth provides outreach to more than 3,000 children, teens, young adults and their families each year in three key areas: faith, learning, and health. More information on the organization can be found on their website at
www.EmeraldYouth.org.
Does Emerald Youth serve all youth and families regardless of their religious affiliation?
Yes. Emerald is geographically focused, so children across the city in neighborhoods like Lonsdale, Five Points, Oakwood-Lincoln Park, Mechanicsville, Western Heights, Vestal and more are served.
Will Emerald be operating a charter school on the site?
No.
Will the city be providing Emerald with other incentives if this deal goes through, such as TIFs or a PILOT?
No. The proposal calls for Emerald to pay the City $913,518 in buying the property. Emerald Youth Foundation will then invest approximately $25 million in a new family- and youth-serving recreation, wellness and education complex similar to the Emerald facility in Lonsdale.
The proposed agreement between the City and Emerald requires that Emerald operate the facility for a minimum of 20 years and has a re-purchase and right of first refusal provisions for the City.
Why are sports such a focus with this proposed site? And is it more than just soccer?
Sports and recreation are just one aspect of the proposal.
The facility will also include a wellness center, educational support services, a community walking loop and open green space. The field spaces, like other facilities in Knoxville, are multi-sport and will support many different sports including baseball, softball, football, volleyball, etc.
Who conducted the public process and community engagement for the proposed purchase and redevelopment agreement being considered by City Council?
Much of the engagement on this proposal has been led by 6th District Councilwoman Gwen McKenzie in partnership with Emerald and the City. Community discussions about the Emerald proposal began three years ago.
Mayor Kincannon has supported postponing a vote on the Emerald proposal in order to hear more input from residents. Mayor Kincannon has stated that, in hindsight, there should have been more public engagement before this proposal was to be considered by City Council.
The Mayor has been working with Councilwoman McKenzie and other members of Council – listening and gathering additional information and perspectives.
A City-led public meeting is planned for Sept. 15, 2025, where attendees can learn more about the proposal, overall City and private investments in East Knoxville, and the City’s vision for enhancing the Magnolia Avenue corridor and Chilhowee Park.
Click here to view details on the Sept. 15 meeting.
Prior to the proposal coming before City Council, how have Emerald and community members shared ideas for the Burlington complex?
In summer 2022, Emerald began meeting with East Knoxville community leaders to explore ways to serve more young people and families. In fall 2022, after hearing requests from East Knoxvillians for a facility like the Haslam-Sansom Ministry Complex in Lonsdale, Emerald Youth formed a group of stakeholders called the East Area Community Engagement Committee. The committee began discussing such a facility for East Knoxville and engaging the community on whether such a facility was wanted by East Knoxville residents.
Here are the members of the East Area Community Engagement Committee, as of May 2023:
Mathew Best, former Mayor Daniel Brown, Elvyn Davidson, Cynthia Finch, Cicely Henderson, Andrew Jackson, Rev. Harold Middlebrook, Alvin Nance, Lisa New, Dennis Upton, Eric Washington and John Wright
Members of the committee and Emerald Youth staff have met with more than 500 members of the East Knoxville community regarding this proposed project. These meetings included parents, business leaders, faith leaders, nonprofit leaders, leaders of other youth-serving entities, health leaders, neighborhood associations and community groups, sports groups, government and elected officials, leadership from local panhellenic groups, residents (including adjacent property owners), and others.
Click here to view the 2023 letters of support for this project.
Below is a partial list of community engagement meetings:
Publicly Promoted Meetings
• Community meeting at The Change Center – 10/24/22
• Community meeting at Greater Warner Tabernacle AME Zion Church – 1/30/23
• Youth community meeting at The Change Center – 4/7/23
Neighborhood / Civic Associations
• Woodbine and Fifth Neighborhood Association – 1/17/23
• National Panhellenic Council – 1/17/23
• Burlington Neighborhood Association – 1/21/23
• Burlington District Business Association – 1/24/23, 1/28/25, 6/17/25
• African American Equity Restoration Task Force – 3/13/23, 7/14/25
• Information emailed to 8 other neighborhood associations – Spring 2023
• Hand delivered information to neighbors immediately adjacent to property – June 2023
• Town Hall East – 9/9/24
Churches / Faith-Based Groups
• Faith Leaders Initiative – 12/1/22
• Met with or information mailed to 33 East Knoxville churches – Fall 2022
• Knoxville Interdenominational Christian Ministerial Alliance (KICMA) - 12/20/22
Schools / Youth-Serving Organizations
• Information mailed to 6 community daycares – Fall 2022
• Sent information to parents through Sarah Moore Greene, Green, Vine, and Austin-East – Spring 2023 and Fall 2024
• Met with school principals and leaders of area youth-serving organizations
Click here to view the initial letters of support for this project.
Additionally, on July 2, 2024, Emerald Youth shared its response to the City’s Request for Proposals through a press release to local media outlets and on social media.
Click here to view all of Emerald’s media releases.
| Impact on the Tennessee Valley Fair |
Would selling the Midway property mean the end of the Tennessee Valley Fair?
No, the administration hopes the fair stays at Chilhowee Park and already has an agreement with the Fair for them to use the Knoxville Fire Department Training property for the temporary campgrounds for the Fair staff and storage. The agreement also allows the Fair to close Prosser Road for additional parking and uses by the Fair during their event.
The parcel that Emerald would potentially turn into a youth athletics, educational and wellness center is currently only used by the Fair one month a year to house their traveling staff members.
How does the City support the Tennessee Valley Fair?
The City is one of the Fair’s largest supporters and currently has a three-year agreement for the Fair to operate at the park through 2029. City support for the Fair includes year-round office space within a City building at no cost (the Fair covers utilities), a $4,000 agency grant, and use of the entire park for about a month each year during the Fair. The estimated value of the City’s annual support for the Fair is over $170,000.
The City has expressed on numerous occasions its desire for the Fair to remain at Chilhowee Park but emphasized the need for flexibility over the coming years as new neighborhood-focused investments and repairs to infrastructure and amenities are made within Chilhowee Park.
The City believes an active, year-round Chilhowee Park with improved neighborhood amenities and access along with a revitalized Burlington and Magnolia Avenue will benefit the East Knoxville community and the Fair.
Who owns the property at Chilhowee Park – the City or the Fair?
Chilhowee Park is 100% owned by the City of Knoxville as a public park. The Fair uses Chilhowee Park and land it owns privately to host the Fair each September.
Click here to view a map showing land ownership.
How has the City communicated with the Tennessee Valley Fair?
The City has met with Fair officials and expressed on numerous occasions its desire for the Fair to remain at Chilhowee Park but emphasized the need for flexibility over the coming years as new year-round-focused investments and repairs to infrastructure and amenities are made within Chilhowee Park.
Where can I find the agreement between the Tennessee Valley Fair and the City?
Click here to view a copy of the current agreement.
What is the plan for the Tennessee Valley Fair in the future?
The Tennessee Valley Fair is a separate non-profit organization supported but not operated by the City. The Fair’s Board of Directors ultimately decides the future of the Fair and the City has made numerous requests from the Fair on their strategic plan for the future.
The City has expressed on numerous occasions its desire for the Fair to remain at Chilhowee Park but emphasized the need for flexibility over the coming years as new neighborhood-focused investments and repairs to infrastructure and amenities are made within the Park.
More information on the Fair can be found at
TNValleyFair.org or through
their 2024 990 Filing.
| Chilhowee Park’s History, Its Future, and Recent Investments in East Knoxville |
Where is Chilhowee Park, and what is its history?
Chilhowee Park is located in East Knoxville, east of Cherry Street and just west of the Rutledge Pike-Asheville Highway split.
The City park includes more than 80 acres of public park and event spaces, including the Jacob Building and Lake Ottosee. National expositions held here in the early 1900s attracted luminaries such as Theodore Roosevelt and Helen Keller.
None of the land north of Magnolia Avenue, including Lake Ottosee and the Jacob Building, are part of this Emerald proposal.
Click here for more information on the park.
Click here to view a detailed history of the park.
How would the sale to Emerald affect future investments toward a more natural Chilhowee Park?
Mayor Kincannon’s administration believes that Emerald’s complex will help “activate” Chilhowee Park. Increasing the number of families that visit and play there will lead to more public and private investments.
At the same time, Mayor Kincannon strongly supports enhancing the park’s green spaces, and her administration is currently working on ways to do just that on the main part of the park north of Magnolia. (This also aligns with community members’ suggestions as reflected in the 2019 plan.)
For example, a hydrology study is underway to address the frequent flooding that now hampers usage of or investment in a significant portion of the park. The 2019 strategic plan envisions adding amenities such as greenways, an amphitheater and a boathouse adjacent to a larger, more natural Lake Ottosee.
Doesn't East Knoxville deserve to have parks like the rest of the city?
Absolutely! East Knoxville has many parks including some of the largest and most beautiful in the city.
In recent years, the City has invested over $12 million in parks and recreation facilities in East Knoxville ranging from Morningside Park and Harriet Tubman parks to full renovations of both the Cal Johnson and Milton Robert Recreation Centers.
Click here to view a full list of East Knoxville investments.
How does Chilhowee Park fit into plans for a more vibrant Magnolia Avenue corridor?
The City envisions Chilhowee Park and the Burlington Business District serving as anchors to a vibrant and thriving Magnolia Avenue Commercial Corridor, connecting East Knoxville to amenities and opportunities throughout Knoxville.
It will be a mix of public and private dollars.
The City is investing $13.7 million to build a new Burlington fire station and to recreate a Burlington commercial district. In recent years, the City has invested $9 million in Magnolia Avenue streetscape and safety improvements.
The Muse children’s museum is moving into the Jacob Building at Chilhowee Park, privately raising $50 million to extensively renovate the building. (This move also was suggested in the 2019 strategic plan.)
And private developers are restoring stately historic residential buildings in the 2700 block, as well as creating the new Grandiflora event venue.
What other investments has the City made in East Knoxville since 2019?
Supporting East Knoxville is a top priority for the Administration’s second term in partnership with 6th District Councilwoman Gwen McKenzie. The City’s strategy mimics previous investments that have been successful on Cumberland Avenue, North Central and the South Waterfront – public infrastructure investment leveraging private reinvestment.
The East Knoxville strategy has been focused on driving new investments and opportunities within the 6th District in three geographic areas through intensive planning, new infrastructure and partnerships.
• The Magnolia Avenue Corridor
• The Burlington Business District
• Chilhowee Park
Projects complete to date within each focus area include:
Magnolia Avenue Corridor
• City Council established a redevelopment area
• Partnerships using PILOTs and TIFS for Grandiflora, Swan’s Bakery and redevelopment of multiple housing units via the Cortland Group
• Phase III of the Magnolia Avenue streetscapes to be bid in the fall of 2025
Burlington Business District
• Funding for a new fire station No. 6 and complete streetscapes overhaul
Chilhowee Park
• Planning efforts with our key partners, Zoo Knoxville and The Muse, over the past year led by the City Urban Design and Development team
• Hydrology study of the Love’s Creek – Chilhowee Park area
• Partnership with Muse Knoxville to create a new $50M investment in the Jacob Building
In addition to the three areas identified above, the City has also made multi-million-dollar investments in parks, housing and public infrastructure at First Creek at Austin, the new multi-use Covenant Health Park stadium, Morningside Park, Harriet Tubman Park, Dr. E.V. Davidson Community Center, and many more.
Click here to view a list of these investments.
Why was this Burlington location selected by Emerald? Why not the former Knoxville Police Department Public Safety Building site downtown?
The property at Chilhowee Park is uniquely situated. It is within walking distance of Austin-East Magnet High School and the Burlington, Cold Springs and Chilhowee Park neighborhoods while still allowing accessibility for Spring Hill residents, among others. It would provide thousands of children and families nearby access to youth development programs, address the healthcare desert in East Knoxville, and be a catalyst for health initiatives.
Along with the offerings of The Muse, the Tennessee Valley Fair and Zoo Knoxville, the new Emerald complex will add to the synergy for a “kid-centric” area here.
The former Safety Building was not owned by the City in 2024. The City anticipates it to be conveyed back to the City in the near future. The City, in collaboration with Councilwoman McKenzie and the community, will initiate a study this year on best uses for that site.
What about other potential locations for the Emerald east side complex?
In addition to the former Safety Building site, other sites have been suggested by members of the community including the large parcel of City-owned land south of Zoo Drive and northeast of Prosser as well as a privately owned property north of I-40 currently used for commercial / industrial purposes.
Both of these sites carry significant challenges for use as a daily family- and child-focused recreation and park space. The most pressing challenge for both sites is their limited access to existing neighborhoods and the inability for members of the public to easily walk to either site. The City-owned Prosser site is also located in a unique karst / flood area. The privately owned property north of I-40 off of Prosser is currently zoned industrial and is wedged between the interstate and a privately owned garbage transfer facility.
As answered in the question above, the property at Chilhowee Park is uniquely situated. It is within walking distance of Austin-East Magnet High School, the Burlington, Cold Springs and Chilhowee Park neighborhoods while still allowing accessibility for the Spring Hill and other areas, among others. It would provide thousands of children and families nearby access to youth development programs, address the healthcare desert in East Knoxville, and be a catalyst for health initiatives.
Along with the offerings of The Muse, the Tennessee Valley Fair and Zoo Knoxville, the new Emerald complex will add to the synergy for a “kid-centric” area here.
How did the City determine the value of the land that Emerald Youth Foundation is proposing to buy, and where can I find the appraisals?
The City utilized two appraisals to determine the value of the land at Chilhowee Park. One appraisal was paid for by Emerald and provided to the City. Emerald’s appraisal was completed in May 2024.
The City then compared the per acre value of that appraisal to its own appraisal completed on the same site, also in May 2024.
Click here to view the City's Appraisal.
Click here to view Emerald Youth Foundation's Appraisal.
Why was the land purchased by the City for the new Burlington fire station more expensive than the property at Chilhowee Park?
The City purchased land directly within the Burlington business district in order to build a new fire station.
The land acquired by the City had to be within this district and was commercial zoned (not park / open space) and, consequently, had a higher value.
Why did the City not accept bids for the value of the property instead of issuing an RFP?
Cities use bids when the only consideration for the procurement is value or cost. Requests for proposals are a procurement method used with other factors beyond value / cost are important.
What is this land at the Midway area currently used for?
The land, approximately 13 acres, is mostly a paved parking lot with a grassy lawn and trees. The property has mainly been used for staging and camping during the Tennessee Valley Fair, bus training for the Knoxville Area Transit and other events that rent the space and require an asphalt surface.
Why is the City considering selling the land instead of leasing it?
While the City would prefer a lease agreement, when the City proposed a lease agreement for the Lonsdale project, both the City and Emerald Youth Foundation were sued for allegedly violating the separation of Church and State. The remedy was to sell rather than lease the land.
Does the City engage with other faith-based organizations?
The City partners with many non-profits, including some that are faith-based. Examples include C.O.N.N.E.C.T. Ministries, InterFaith Health Center and Volunteer Ministry Center.
Does Emerald Youth Foundation own the Dr. E.V. Davidson pool and the Claude Walker ballfields?
No, both of these facilities are owned by the City. The City has partnered at both locations with Emerald to make needed capital improvements and to improve programming and access for the community.
The City partners with many non-profit organizations as part of its Parks & Recreation services. Partners include the Boys & Girls Club, Thrive, multiple volunteer-led recreation commissions, Muse Knoxville, Knoxville Track Club, and many others.
Click here to find more information about City Parks & Recreation.
More information on Claude Walker and Dr. E.V. Davidson can be found below:
Claude Walker Ballpark: Emerald raised $1.6 million and served as project manager for the capital facility improvements, in partnership with the City of Knoxville using Elite Diversified Construction Inc., a minority-owned general contractor located in the heart of the city. These private funds provided for upgrades to Claude Walker, located adjacent to Austin-East Magnet High School. This facility serves the school’s teams as well as community recreation programs such as Knoxville Area Youth Alliance (KAYA), East Knoxville Athletic Association (EKAA) and Baby Roadrunners football. Following completion of the construction, all management of the facility was turned back over to EKAA.
Dr. E.V. Davidson Community Center Pool: Since 2014, Emerald has operated the indoor pool located at the Dr. E.V. Davidson Community Center, which is owned by the City of Knoxville. Emerald Youth became involved in this project upon learning of the pool’s potential closure due to significant capital needs and out of a simple desire to teach more young people the life-saving skill of swimming, while also having fun.
Over time, Emerald has made the following improvements to this city-owned facility:
• Resurfaced the pool deck
• Replastered the pool interior
• Added a new pump
• Painted lane lines
• Installed an AED in partnership with East Tennessee Children’s Hospital
• Installed sound panels (partial City investment)
• Installed starter blocks / platforms
• Renovated bathroom / shower rooms
• Added fresh wall paint
• Purchased lifeguard chair and float
• Purchased vacuum cleaner
• Purchased water testing kit and chemicals
• Added a basketball goal
• Installed indoor and outdoor signage
In addition to over $135,000 in capital costs invested by Emerald, they also pay to operate and program the facility with lifeguards, swim instructors, and staff. Faith Promise Church was a key partner in helping fund many of the improvements above.
Today, in addition to the Emerald programs it offers, the pool is regularly open to the public and community at large.
Are synthetic turf fields a health hazard?
Synthetic turf fields are common in youth sports and recreation activities throughout the United States.
Knox County Schools has installed turf fields at every high school, and turf has been in use in sports since the mid-1960s. There is no peer-reviewed evidence of health concerns for users of synthetic turf for recreation, although there are proponents for more studies of health impacts of athletes on both synthetic turf and natural grass surfaces due chemicals within both playing surfaces (rubber, fertilizers, herbicides).
About that 2019 Chilhowee Park plan – that was six years ago. Is it out of date?
Strategic planning is designed to guide decisions and resource investments for many years. Similar plans that are still being used to guide investment include the South Waterfront Vision Plan (2006) and the Cumberland Avenue Corridor Study (2007).
How is the City addressing affordable housing around this site?
The proposal includes using funds from the sale of the property specifically for infill housing projects in East Knoxville. In addition, the City has a comprehensive attainable housing strategy.
Click here to view the City's housing strategy.