July 24, 2025 — An appeal from a long-time resident of The Nations read it now

July 19, 2025 — Important update for our neighbors in The Nations read it now

A top-down transformation for The Nations: an analysis of council member Rollin Horton’s rezoning plan

Article by Christopher Remke, AIA (ret) • 7.5 minute read

There is currently an Urban Design Overlay (UDO) rezoning proposal for The Nations before the Metro Planning Department. It is one more example of planning that is often designed by experts and officials who, despite good intentions, can end up pushing complex, one-size-fits-all solutions onto unique neighborhoods. They are often wrapped in persuasive language that suggests these changes are a moral necessity, but the promised benefits, like affordability, rarely materialize. In this case, a national trend called the "Missing Middle" is being applied as a blanket solution, whether it fits a neighborhood's actual needs or not. Read on to learn more about the plan and how it will effect The Nations neighborhood.

What is this rezoning and did we ask for it?

For the residents of The Nations, a notice of rezoning can be jarring. The immediate questions are simple: What does this mean for my home, my street, and my neighborhood? And who asked for this? This analysis addresses those questions directly. At the request of Council Member Rollin Horton, a sweeping rezoning proposal is underway that will fundamentally and permanently alter the character of The Nations.

This is not a minor adjustment. Council Member Horton's application proposes a new, custom-written Urban Design Overlay (UDO) that, in conjunction with widespread rezoning, will cover nearly 400 acres of the neighborhood. This UDO is a new rulebook for development, designed to override many existing zoning protections. Its stated goals are to "expand housing options," "encourage the redevelopment of industrial areas," and bring the neighborhood into "greater alignment with the vision and goals of NashvilleNext".

The plan divides The Nations into four "Character Areas"—Residential, Neighborhood Center, Mixed-use Corridor, and Mixed-use Redevelopment—each with rules that aggressively promote density. In practice, this means:

Abolishing Traditional Single-Family Zoning: Many lots currently zoned for single-family homes will be rezoned to allow for multi-unit structures like duplexes, triplexes, and apartment buildings.

Increasing Building Height and Bulk: The UDO permits building heights up to 75 feet in some areas—the equivalent of a seven-story building—and allows developers to build much closer to property lines, reducing space, light, privacy, and leading to the further loss of mature tree canopies.

Applying Suspiciously High-Density Base Zoning: The plan applies dense base zoning like RM20 (20 units per acre) and RM40 (40 units per acre) even in traditionally lower-density residential areas. For perspective, the density of RM40 is similar to that of The Union Apartments on Centennial. One must question this use; if the goal isn't an endgame of high-density redevelopment, why is it included?

Prioritizing Redevelopment: The plan is explicitly designed to encourage the "redevelopment" of existing properties, creating powerful incentives for developers to tear down older, often more affordable homes and replace them with larger, more profitable multi-unit projects.

The Nations, already a center for urban infill over the last decade, is now being targeted for a complete and comprehensive redevelopment.

This UDO rezoning proposal is presented as a thoughtful solution to Nashville's housing challenges. However, this analysis will demonstrate that it is a top-down plan that ignores critical on-the-ground realities. The Nations, already a center for urban infill over the last decade, is now being targeted for a complete and comprehensive redevelopment. This is a blueprint for accelerated gentrification that will fail to deliver on its promise of affordability, place an unbearable strain on the neighborhood's already fragile infrastructure, and override the authentic character of the community. The evidence suggests this plan was not born from a neighborhood request but from a political ideology, perhaps motivated by a desire to land "political points" for career-building, and it is the residents of The Nations who will bear the cost.

The affordability myth: who truly profits from the Nations' rezoning?

The central promise of Council Member Horton’s Urban Design Overlay is its goal to prioritize "housing affordability". This is the primary justification for the disruption this plan will cause. Yet, a clear-eyed look at the real estate market in The Nations reveals this claim to be a myth. The economic forces this plan unleashes will not create affordable housing for working Nashvillians; instead, it will generate massive profits for developers while making the neighborhood more expensive for everyone else.

The simple fact is that new construction in The Nations is already a luxury product. The cost of land is too high and the profit motive too strong for any other outcome. A review of current market data confirms this:

New Homes are Not “Affordable”: New construction single-family homes and townhomes in The Nations and the surrounding 37209 zip code are routinely listed for between $700,000 and $1.5 million.

New Rentals are Not “Affordable”: While the average rent in The Nations is over $1,700 per month, new luxury apartment buildings—the very kind this UDO encourages—command much higher rents, with one, two, and three-bedroom units frequently listed for $2,300 to over $4,000 per month.

Council Member Horton’s plan does nothing to change this economic reality. In fact, it worsens it. Proponents of such plans rely on the theory of "filtering," where building high-end supply will eventually trickle down to create affordability. However, in a hot market like Nashville, the opposite occurs: older, more affordable homes are demolished and "filter up" in price, a process more accurately called gentrification. By making it easier to build multi-unit structures, the policy makes every single-family home a potential teardown, putting families in competition with cash-flush developers.

This rezoning is not a housing plan; it is a wealth-creation tool for a select few. The UDO’s provision of "development bonuses" for things like increased Floor Area Ratio (FAR) functions as a de facto subsidy for corporate real estate owners. These bonuses attract outside capital to build here, but the connection to affordability for the households The Nations actually serves are promises that will be unkept. It incentivizes the replacement of moderately priced homes with high-end rental units owned by investors, a dynamic seen across Nashville where "Missing Middle" policies have led to a surge in luxury duplexes, not affordable starter homes.

This rezoning is not a housing plan; it is a wealth-creation tool for a select few.

The unfunded mandate: breaking the Nations' already strained infrastructure

Beyond the false promise of affordability, Council Member Horton’s rezoning application functions as a massive, unfunded mandate that will push the neighborhood's infrastructure past its breaking point. Any rezoning plan advanced without a committed and funded infrastructure plan is merely a field of dreams. It is a prescription for chaos. We have much of that already; do we need more? The proposal invites thousands of new residents without a comprehensive plan to handle the impact on flooding, traffic, and schools. Existing residents will be left to deal with the consequences.

A Worsening Flood Problem

The Nations has a well-documented and serious issue with flooding and poor drainage. After heavy rains, standing water is a common sight. This problem is a direct result of an underdeveloped stormwater system already inadequate for the current density. The proposed UDO will make this dramatically worse. By increasing the Maximum Impervious Surface Ratio (ISR) to as high as 90% in some areas, the plan encourages developers to replace permeable green space with impermeable concrete and asphalt. This will funnel more runoff into an overwhelmed system, increasing the frequency and severity of flooding for the entire community.

Guaranteed Gridlock

Traffic in Nashville is already ranked among the worst in the nation, and residents of The Nations experience this daily. Arterial roads like Centennial Boulevard and 51st Avenue North are already congested. The city's own transportation department admits its traffic study guidelines are outdated and fail to account for Nashville's rapid growth. Adding thousands of new housing units—without a single concurrent, planned, permitted and funded project to improve transporation accommodations, parking, and basic infrastructure options is a recipe for permanent gridlock. The UDO's parking standards and the reduction of required parking will push more cars onto the streets, allowing for more density, will only add to the number of cars on crowded neighborhood streets.

Overburdened Schools

The new housing units will inevitably bring more families with children, placing a sudden and significant burden on local schools like Cockrill Elementary, West End Middle School, and Pearl-Cohn High School. While Metro Nashville Public Schools struggles with capacity district-wide, this plan offers no provision for expanding these specific schools to accommodate the influx of new students it will generate. The predictable result is overcrowded classrooms, strained resources, and the potential for disruptive school rezoning.

A question of consent and a call to action

This brings us back to the most fundamental question: Did the community of The Nations ask for this? All evidence points to a process driven not by residents, but by a council member and city planners advancing a specific development ideology. Across Nashville, similar top-down rezoning efforts have been met with fierce community opposition precisely because they ignore the voices of the people who know their neighborhoods best.

Your voice is the most powerful tool to ensure that this rezoning serves the community, not just developers.

The Nations has an active and engaged Neighborhood Association, a testament to a community that cares deeply about its future. A plan of this magnitude should have been built from the ground up, in partnership with residents. Instead, it has been delivered as a pre-packaged mandate. This is not democratic governance; it is a decree.

The good news is that it is not too late to act. The plan still requires multiple readings before the Metro Council. Your voice is the most powerful tool to ensure that this rezoning serves the community, not just developers. Here is how you can take effective action now:

1. Contact Council Member Rollin Horton Directly

As the applicant for this rezoning, your council member is the most important person to hear from. Call his office at 615-432-1320 and email him at rollin.horton@nashville.gov. Respectfully but firmly state your opposition. Use specific facts from this report:

This plan will not create affordable housing. When you are told that adding density will improve prices, counter with the fact that new homes here already cost over $700,000 and are not affordable for working families.
Our neighborhood already floods. Increasing impervious surfaces to 90% will make it worse.
"What is the plan for our schools and traffic? This UDO adds density with no infrastructure support.

2. Engage with The Nations Neighborhood Association (NNA)

The NNA is your organized voice. A strong, unified neighborhood association is critical in these debates.

3. Attend and Speak at Public Hearings

Make your voice heard at the Metro Planning Commission and Metro Council meetings where this will be debated. A physical presence sends a powerful message. You can find meeting schedules on the Metro government website. Prepare a two-minute statement focusing on your biggest concerns.

4. Share This Page

This analysis is a tool for you and your neighbors. Email it, post it on social media, and discuss it with others in the community. An informed neighborhood is an empowered neighborhood.

The Nations is at a crossroads. One path is a top-down, developer-driven future that risks the neighborhood's character and stability. The other is a future shaped by the people who live here. Now is the time to ensure your voice determines which path is chosen.

Reference: Official Application Links

Rezoning Application (2025Z-047PR-001): https://nashville.legistar.com/LegislationDetail.aspx?ID=7358070&GUID=E7BED568-B233-4630-ABBD-DD1356C12684
Urban Design Overlay (UDO) Application (2025UD-002-001): https://nashville.legistar.com/LegislationDetail.aspx?ID=7358071&GUID=A2249341-D67A-4C63-B76B-0C35524AFE45
The Nations Neighborhood Association slide deck: https://www.canva.com/design/DAGpg-IXNaA/cuKpTninIvOcdGi-H6MG1Q/edit

About the author:

Christopher Remke, AIA [ret], is a seasoned advisor and strategist with decades of experience in architecture, development, and capital project delivery. His work spans from early planning through ownership and execution, with a focus on clarifying complex challenges and guiding both communities and investors toward practical, outcome-driven solutions. Known for his ability to step into complex or stalled initiatives, Remke uses a deconstructionist, team-advocacy approach to untangle priorities, realign focus, and restore forward momentum. His Substack, builttothink, explores planning, housing, and public policy through the lens of firsthand experience and bottom-up insight, with a primary focus on Nashville, Tennessee.