Level I - Board Review: JC Penney Building
11-A-25-DT
Approve Subject To Conditions
APPROVE certificate 11-A-25-DT, subject to the following conditions:1) Signage to return to the Board as a separate application.2) The sidelites of the proposed door and the glass panes of the first, second, and fourth bay shall be transparent.3) Structural details of the canopy installation shall be reviewed and approved by Planning staff.
Recommendation
Staff recommends approval of Certificate 11-A-25-DT, subject to two conditions:1) Signage to return to the Board as a separate application.
2) The sidelites of the proposed door and the glass panes of the first, second, and fourth bay shall be transparent.
Applicant Request
Level I - Board Review: Exterior rehabilitation- Exterior rehabilitation includes renovating the existing storefronts, installing a canopy over the storefronts, and renovating the guardrails around the furniture on the sidewalk. The sidewalk furniture and guardrails are not permanently attached to the building and are outside the scope of this review.
- Two bays of storefronts to the left (the first and second bays) with doors and operable partitions will be retained. The existing storefront doors on the fourth bay will be demolished, and the existing third bay of storefronts with operable partitions will be relocated to the fourth bay. A new wooden door featuring a circular stained glass design and side lites will be installed on the third bay. The new door is slightly narrower than the existing storefront to be replaced, and additional wall area will be added on two sides of the door, matching the existing wall area of the storefront bay.
- A painted aluminum canopy measuring 8'-2" deep by 46'-1" wide will be installed over the existing lower-level transom above the storefront doors, with 9'-2" clear height from the sidewalk. The 1'-5" tall canopy structure is primarily flat, except for an arch above the entrance door on the third bay. It is supported by five angled metal tie rods connected to the building at the storefront signboard, and the masonry piers on either side of the storefront.
Property Notes / Work to be Completed
- The project is located within the Gay Street Commercial Historic District, and the 'Historic Resources' section of the design guidelines will apply. While the original building was built around the 1900s, there have been several exterior rehabilitation projects, so the proposal will not result in the modification or removal of any character-defining historic features. It remains a non-contributing structure within the National Register of Historic Districts.
- Overall, the renovation of storefronts with "a largely consistent rhythm of entrances and windows" meets the design guidelines. The project maintains the two leftmost storefronts and relocates the third bay's operable storefront system to the fourth bay. The new main entrance, located in the third bay, is recessed "from the exterior building face to provide depth to the façade" and aligns with the storefront system in the bays to either side. The sidelites provide transparency, and the stained glass pane in the wood door differentiates the main entrance from the other storefront door and operable panels. While the third bay proposes new wall additions, it is very minimal in size and does not create the appearance of a blank wall. The entrance is proportionate to the building's height and width.
- Although the building did not include a canopy during its original construction, the abutting northern building has historically had one. The historic section of the guideline recommends awnings in traditional shape and material. The proposed flat canopy can be considered since it is "of a human scale" and "reduces the mass of buildings as experienced at the street level." The Board should discuss the arched portion of the canopy.
- The elevation drawings include some signs; however, they do not provide the necessary dimensions and illumination details.
Applicable Guidelines
Downtown Design Guidelines
See Guidelines- B. PRIVATE REALM
- 1. Building Mass, Scale, and Form
- 1c. Use building materials, cornice lines, signs, and awnings of a human scale in order to reduce the mass of buildings as experienced at the street level.
- 1e. Avoid blank walls along street-facing elevations.
- 3. Building Materials
- 3a. Use complimentary materials and elements, especially next to historic buildings.
- 4. Architectural Character
- 4a. Encourage first floor uses that draw walk-in traffic; businesses that do not require pedestrian traffic should be located on other floors.
- 4b. Enhance pedestrian interest in commercial and office buildings by creating a largely transparent and consistent rhythm of entrances and windows.
- 5. Ground Floor Doors and Windows
- 5a. Use consistent rhythm of openings, windows, doorways, and entries.
- 5c. Design entrances according to the proportions of the building's height and width.
- 5e. All windows at the pedestrian level should be clear.
- 5f. Recess ground floor window frames and doors from the exterior building face to provide depth to the façade.
- C. HISTORIC RESOURCES
- 2. Storefronts
- 2a. Restore and maintain storefronts as they were originally.
- 3. Entrances
- 3a. Establish recessed entries, either rectangular or with slightly canted sides, which are appropriate in storefronts.
- 8. Awnings
- 8a. Allow awnings in traditional shapes and materials.
Meeting Date
November 19, 2025
JC Penney Building
412 S. Gay St. 37902
DK-H (Downtown Knoxville, Historic Subdistrict)
