Knoxville, IA Comprehensive Plan 2025-2045

Please join us at the Draft Comprehensive Plan Open House tentatively scheduled for April 2025 to review and provide feedback on the Draft Comprehensive Plan. Attend the Open House to:

• Learn about the draft plan, previous input that has shaped the work, and how the City is preparing for action.
• Help refine the plan content, including goals and strategies.
• Engage in activities to help shape future growth areas.

Additional details will follow soon.

Please contact Knoxville City Hall at 641-828-0550 if you have any questions.

The Knoxville Comprehensive Plan 2025-2045 is based upon the community engagement and planning process and the Iowa Smart Planning Act’s guidance. The Plan is divided into 6 sections, supplemented by two appendices, as described below:

• Section 1: Overview provides a summary of Knoxville’s history, existing conditions, the planning process, and community engagement methods.
• Section 2: Revitalization focuses on economic development, housing, and community character issues.
• Section 3: Infrastructure outlines the current state of community facilities, utilities, transportation, and recreation and trails.
• Section 4: Resources discusses conservation efforts in agriculture, natural resources, intergovernmental collaboration, sustainability, and resiliency.
• Section 5: Land Use defines current land use characteristics and future land use directions.
• Section 6: Implementation offers guidance for implementing the plan, including a matrix of goals, recommendations, and potential partners.
• Appendix A contains the complete results of community engagement efforts, which is available in a separate document.
• Appendix B contains detailed charts and graphics to showcase Knoxville’s community profile data, which is available in a separate document.

Sections 2 through 5 highlight four key community focus areas: Revitalization, Infrastructure, Resources, and Land Use. Each focus area includes several elements, all of which have specific goals and strategies outlined in the implementation matrix.

In Iowa, comprehensive planning is guided by state laws that encourage communities to adopt long-term plans to manage growth and development effectively. Iowa Code Chapters 335 and 414 allow counties and cities to adopt zoning ordinances consistent with a comprehensive plan, promoting public health, safety, and welfare.

Further supporting this effort, the Iowa Smart Planning Act of 2010 introduced a framework for responsible planning, including 10 Smart Planning Principles and 13 plan elements such as land use, housing, transportation, agriculture, and natural resources. While comprehensive plans are not mandated, they are invaluable for setting a clear vision and securing funding opportunities.

A comprehensive plan, also known as a general plan, master plan, or land use plan, is a document designed to guide the future actions of a community. It establishes a shared vision for a community, providing a framework to manage growth, development, public improvements, and changes over time.

The Zoning Code, on the other hand, is the tool that translates the vision of the Comprehensive Plan to life. It serves as the official document that guides the implementation of the Plan, often accompanied by subdivision regulations as part of the broader development rules.

Essentially, the main difference between the Comprehensive Plan and the Zoning Code is that the former sets forth the objectives and goals of the community with respect to land use, while the latter is a regulatory device through which the plan's goals and policies are carried out or achieved.

Together, they will help ensure Knoxville’s existing and future development aligns with its values and aspirations. They are an active part of the community’s efforts to attract people and businesses to the City of Knoxville’s unique feel and development opportunities. The content within this plan sets to create the best version of the City for future generations to live, work, play, stay, and learn.

The comprehensive planning process began in August 2024 and progressed through four main phases:

Phase 1 – Project Kick-Off and Research

The process began with an initial meeting of the Comprehensive Plan Planning Team to discuss project goals and establish a vision while research on existing conditions and trends provided the foundation for the plan.

Phase 2 – Engagement Development and Facilitation

The second phase involved developing and facilitating community engagement activities to gather public input and ultimately, identify shared priorities and themes.

Phase 3 – Draft Plan Development and Review

In phase three, the Draft Plan was written and reviewed in collaboration with the Planning Team, Planning and Zoning Commission, City Council, and the public.

Phase 4 – Draft Plan Review and Adoption

Public responses to the Draft Plan were reviewed by the Planning Team and revisions were made. The Draft Plan was presented at public hearings to the Planning and Zoning Commission for formal review and to City Council for adoption.

Community engagement is a critical component in the preparation of comprehensive plans. At key points in the planning process residents, employers, business owners, developers, City staff, and other stakeholders are asked to participate in the process by providing ideas, information, and feedback.

The initial period of community engagement occurred in Fall 2024. The following efforts were made to solicit public input:

• An online Community Survey (282 Respondents),
• An online Crowdsource Map (48 Respondents).
• An initial Public Open House (30 People in Attendance).
• Key Stakeholder Meetings (31 Meetings).
• Initial meetings with the Knoxville Planning & Zoning Commission, Parks and Recreation Commission, and City Council.

Community Survey

Crowdsource Map

Prior to the approval of the Comprehensive Plan, the Draft Plan will be made available for public review. Public consultation at this phase of the process will include:

• Posting the Draft Plan on the City’s website and providing an opportunity to respond to the Draft Plan online.
• Hosting a Public Open House that provides an opportunity for questions and comments.
• Planning & Zoning Commission Meeting Review.
• City Council Meeting Review.

Comprehensive Plan Update Open House

On Wednesday, September 25, 2024, Knoxville City Staff held a community Open House event to gather initial community input on the Comprehensive Plan update. The event was hosted from 5:00 - 7:00 PM at the Knoxville Public Library (213 E Montgomery St., Knoxville, IA 50138).

Following a review of the Draft Plan comments, revisions will be made and the Draft Plan will move forward for approval through the following actions:

• Posting the Draft Plan on the City’s website.
• A Planning & Zoning Commission Meeting.
• A Public Hearing of the City Council.

A Summary of Community Responses to Date:

Through the community engagement process to date, respondents have generally expressed:

• Satisfaction with Knoxville as a city to live in.
• Confidence that Knoxville is well-positioned to grow and prosper.
• A desire to improve Knoxville by increasing opportunities for employment, shopping and hospitality, housing, parks, recreation, and culture.
• A desire to maintain and enhance Knoxville’s ‘small town character,’ its historic Downtown, and established neighborhoods.
• Recognition of the need for the City to continue to reinvest in its streets, parks and recreational facilities, and other public infrastructure.
• Support for a wide diversity of residential, commercial, and employment-related types of development.

Respondents particularly noted their desire for additional:

• Parks and recreation facilities, including an outdoor sports-plex, outdoor swimming pool, and trails.
• Shopping and restaurant options.
• Senior Citizen Housing and a Senior Center.

The insights and feedback gathered through this comprehensive community engagement process have been instrumental in shaping the Knoxville Comprehensive Plan. By actively involving the community, we ensure that the plan embodies the collective vision and aspirations of Knoxville's residents.

Knoxville’s History

Knoxville is located in the south-central portion of Iowa about 35 miles southeast of Des Moines. It was established in 1845 as the seat of Marion County. The City is named after General Henry Knox, who served as the Nation’s Chief of Artillery during the Revolutionary War and became America’s first Secretary of War under President George Washington.

The land that is now Knoxville was originally home to the Sac and Meskwaki Nations, who lived among the tall prairie grasses and mixed forests. European settlers began arriving in the area, and in 1842, a treaty was signed that transferred native land to the settlers.

Knoxville’s early economy developed around its role as an agricultural service center and a manufacturing hub. The Chicago, Burlington, & Quincy Railway arrived in Knoxville in 1875, followed by the Chicago, Rock Island & Pacific Railway in 1876. The coming of the railways spurred investment and local commerce. The City also briefly supported two coal mines, one located just eight blocks north of Court House Square, though these operations had ceased by 1892.

Also in 1892, the State of Iowa established the State Industrial Home for the Blind which laid the groundwork for what later became the VA Hospital Campus in 1920. At its peak, the hospital operated 1,631 beds, serving as a vital institution in the community.

The City’s identity is perhaps best known for its connection to sprint car racing. Knoxville’s reputation extends far beyond its borders as the ‘Sprint Car Capital of the World.’  The Knoxville Raceway, established in 1874, has evolved into a premier auto racing venue that draws many thousands of fans to the Sprint Car Nationals each year. The National Sprint Car Hall of Fame & Museum, which opened in 1992, also adds to the City’s appeal with its impressive collection of racing vehicles, history, and memorabilia.

Knoxville Today

Today, the City of Knoxville is a vibrant community of approximately 7,600 residents spread across its 4.62 square miles. The City offers convenient access to Des Moines and surrounding communities such as Pella, Oskaloosa, Newton, and Indianola on Highways 5, 14, and 92.

Knoxville has continued to maintain its small town character, which is most appreciated in its Downtown area, and features a collection of 100-year-old commercial buildings surrounding the Marion County Court House and Square.

As a historic community, Knoxville has plenty to offer residents and visitors, including the Knoxville Raceway and campgrounds, National Sprint Car Hall of Fame & Museum, and the Marion County Fair. The historic Court House Square is home to a variety of local businesses and the recently rehabilitated Grand Theater, providing cultural experiences and entertainment for all. Knoxville’s Public Library, which includes an original Carnegie Library building, is located just one block off the Square. New dining and retail options, many of them surrounding the Square, further enhance the City’s appeal.

The closure of the Veterans Hospital in 2009 marked a significant shift for Knoxville, leading to population and economic challenges. However, this shift has sparked new opportunities for the community's revitalization. In 2020, Marion County acquired the 152-acre former VA Hospital Campus and initiated a major redevelopment project in collaboration with the City of Knoxville. The site is being transformed into a predominantly residential community complemented by recreational amenities and infrastructure that will enhance community life and attract new residents and businesses to Knoxville.

With a strong foundation rooted in its history and guided by strategic revitalization and positive community marketing efforts, Knoxville is poised for continued growth while preserving its small-town charm.

Knoxville Tomorrow

While Knoxville’s future cannot be predicted with complete certainty, the City can pursue a vision for its growth that honors its values and preserves its distinctive identity. The Knoxville Comprehensive Plan 2025-2045 serves as a guiding framework of who Knoxville is and where it wants to go, outlining goals and strategies that shape land use policy and decision-making for the next 20 years.

Informed by input from City residents, elected officials, City staff, and stakeholders, the Comprehensive Plan establishes a shared vision of those who live, work, and play here. It emphasizes sustainable growth, ensuring there is adequate infrastructure and opportunities to meet the needs of current and future residents while protecting the natural environment.

Recognizing that the City will continue to evolve, the Comprehensive Plan can and should evolve with it, moving toward the goals and strategies outlined in this plan while meeting new challenges and opportunities. Additionally, although not a regulatory tool, the plan’s success depends on alignment with the City Code and other, municipal policies, programs, and practices. This alignment enables the City of Knoxville to collaborate effectively with developers to encourage sustainable, high-quality, efficient development that is compatible with the community’s character.

The Knoxville Comprehensive Plan 2025-2045 offers more than a vision— it is a call to action. Residents, business owners, and other stakeholders are invited to help shape a future that reflects their values and aspirations, ultimately ensuring Knoxville remains a vibrant, thriving community for all.

The Knoxville Comprehensive Plan centers on four overarching community focus areas: Revitalization, Infrastructure, Resources, and Land Use. These focus areas drive balanced, multidisciplinary implementation, influencing policies and projects throughout the plan. Each focus area contains one or more elements, with goals and strategies for each element outlined in Section 6: Implementation.

Revitalization includes three elements: Economic Development, Housing Development, and Community Character.

Employment

A thriving economy is fundamental to Knoxville’s quality of life. Economic opportunity empowers individuals, strengthens households and local businesses, and fosters community well-being. A strong economy not only enhances the ability of Knoxville to thrive but also ensures that a robust tax base is available to support public services and infrastructure.

Knoxville benefits from a strong employment base, with manufacturing as the cornerstone to its economy. Unlike many North American industrial centers, manufacturing employment in Knoxville continues to grow. Major employers such as Weiler, 3M Corporation, and Hormel Foods collectively employ some 2,000 people. All three of these companies have reinvested heavily in their manufacturing facilities, which indicates a desire to continue operations in Knoxville. Weiler, in particular, has expanded operations over the past 20 years. It now has 800 employees working in the community and has made Knoxville its corporate headquarters.

Knoxville Hospital and Clinics and the Knoxville Community School District are also major employers, each of which has approximately 300 employees. In their own ways they contribute significantly to the City’s economic and community health and development. Knoxville Hospital has expanded on numerous occasions and has plans to continue to do so. The Knoxville School District has built a new high school and junior high and is now considering its options regarding its existing elementary school. Where so many rural communities have lost their hospitals and schools to consolidation and closure, Knoxville’s institutions remain strong.

Marion County and the City of Knoxville are also significant employers with approximately 140 and 120 employees, respectively. Other major local employers include Walmart, Fareway, and HyVee.

Employment Areas

Major employment locations are as follows:

• Manufacturing – Along Main Street at the eastern city limits; and on Highway 14, south of Highway 5.
• Larger Retailers, Chain Restaurants, and Commercial Services – Along Highway 14, north of Highway 5.
• Independent retailers and restaurants are concentrated in the Downtown area, as are financial, personal, community, and government services.

Knoxville currently has a shortage of industrial land for development. Weiler’s future expansion plans, in particular, are constrained by this shortage. Knoxville’s ability to attract new manufacturing companies is similarly constrained.

Commercial development along Highway 14 is also limited by the lack of readily available development sites. While there are some underutilized sites along the Highway, few of them are currently available for larger commercial development.

Knoxville’s Court House Square and the 100-year-old buildings that surround it are unlikely to redevelop. Knoxville’s revitalization efforts have focused on commercial building rehabilitation, upper-story housing conversion, streetscape improvements, and renovation/expansion of major public buildings such as the Marion County Court House, Grand Theater, and Knoxville Public Library.

There are also underutilized sites on Downtown’s periphery that are capable of accommodating infill commercial, residential, quasi-public, and mixed-use development.

Housing is also fundamental to the well-being of Knoxville’s residents and to the City’s future economic prosperity. A diverse, high-quality housing stock, in plentiful supply, assists Knoxville’s employers in recruiting and retaining employees by ensuring that Knoxville’s current and prospective future residents can find housing that is suited to their needs.  

Residential Neighborhoods

Knoxville’s current housing stock reflects its historical growth, with the average home built in 1950. Knoxville’s early housing development was centered around the Downtown, expanding outward in all directions. Its principal residential areas can be summarized as follows:

• Older, established neighborhoods that radiate outward from Downtown. These areas are often zoned either R-2 or R-3. They have a mix of housing types and styles, with some nonresidential uses (e.g., churches, funeral homes, and small commercial buildings) in the mix.
• Newer, suburban-style neighborhoods which are located at the north end of the City. These areas are zoned R-1 and composed primarily of single-family houses.

Until very recently, new housing development in Knoxville was constrained by a severe shortage of developable land. New initiatives in the Veterans District and on Bell Avenue, have significantly increased the amount of developable residential land in the City:

• The Veterans District is being jointly developed by Marion County and the City of Knoxville. It is located on the former VA Hospital Campus and comprises 152 acres. The District has the capacity to accommodate 700 or more units, in a wide range of housing types, tenures, and price points.
• The Bell Avenue lands are being developed by Kading Properties. They are located to the east of Walmart, comprise some 50 acres, and have the capacity to accommodate 400 or more multi-family homes.

Recent Housing Developments

Housing development has been proceeding in earnest in both new neighborhoods:

• Phase I of the Veterans District has 16 single-family homes completed or currently under construction, with a 48-unit affordable seniors apartment and a 36-unit market rental apartment to begin construction in the Spring of 2025.
• Kading has completed Terrace View, which is a 144-unit, market-rental town housing project. They have recently commenced construction of the Villas on Bell, which, when fully completed, will accommodate as many as 250 units of market rental town housing.

The Veterans District is an example of the proactive approach to housing development that Marion County and the City of Knoxville have taken. Bell Ave is an example of private sector-initiated housing development, which in this case also involved the annexation of land to complete the Villas project. Developments in both the Veterans District and along Bell Avenue have benefitted from state development incentives (e.g., workforce housing and low-income housing tax credits), as well as tax increment financing.

Projected Housing Demand

In 2024, Marion County completed a housing needs analysis which projects the following demand for housing in Knoxville between 2024 and 2035.

It is worth noting that there is often a difference between projected housing demand and actual housing developed over the projected time frame. It does, however, appear that the Veterans District and Bell Avenue have the capacity to absorb a significant portion of the projected housing demand, with the remainder of the projected demand being absorbed by infill development and possible development in future annexation areas.

Rehabilitation of Existing Housing

Reinvestment in Knoxville’s existing housing stock is also important if the city is to continue to grow and prosper. While the overwhelming majority of this reinvestment will come from private owners, steps must be taken to assist those homeowners who are unable to finance these necessary improvements.

With financial assistance from the City of Knoxville and the Central Iowa Trust Fund, Habitat for Humanity of Marion County operates a Critical Home Repair Program to provide such assistance. To date, the City’s contribution has been drawn from its LMI Fund. As new residential development occurs with TIF-supported funding, the City’s LMI is expected to increase, making greater investment in the Critical Home Repair Program possible.

As Knoxville continues to grow, the preservation of its ‘small town’ character is important to its residents. Knoxville’s small town ‘feel’ is personified by its Downtown and surrounding established neighborhoods.

Downtown Knoxville is a collection of two-story commercial buildings, most of which are 100 or more years old. They surround Court House Square and front the adjoining blocks of Robinson and Main Streets. Major Downtown heritage buildings include the Marion County Court House (circa 1895), the Grand Theater (circa 1920), and on nearby Montgomery Street, the Knoxville (nee Carnegie) Library (circa 1925).

The established neighborhoods, that radiate out from the Downtown, are built on a grid street system and contain a significant number of 100-year-old buildings. While these neighborhoods remain predominantly in single-family uses, there also exist a number of duplexes, converted dwellings, and small apartments; as well as existing and former churches, funeral homes, and commercial buildings. This mix of buildings and uses conveys a sense of Knoxville and its history.

The Knoxville Raceway and the National Sprint Car Hall of Fame also contribute to Knoxville’s community character. Known as the ‘Sprint Car Capital of the World,’ Knoxville hosts tens of thousands of spectators at events during the racing season. During the Sprint Car Nationals in August, attendance at the Raceway can exceed 20,000 people per day.

Going forward, it will be important to ensure that Knoxville’s small-town character is not only maintained but also enhanced. In some cases, this requires reinvestment in older homes and commercial buildings. In other cases, it involves ensuring that infill development is sensitive to the surrounding built environment. In the case of the Raceway and the Museum, it requires an acknowledgment that these institutions must continue to reinvest and change with the times.

Building and maintaining an efficient infrastructure is essential to Knoxville’s future. That infrastructure includes Community Facilities and Utilities; Parks, Recreational Facilities, Trails, and Transportation systems.

Community Facilities

Community facilities play an important role in Knoxville today and will continue to do so in the future. Among these are facilities owned and operated by the City of Knoxville, Marion County, Knoxville Hospital and Clinics, Knoxville Community Schools, and various nonprofit organizations. They include:

• The City of Knoxville – City Hall, Police and Fire Stations, Public Library, Knoxville Recreation Center, Knoxville Municipal Airport, and Graceland Cemetery.
• Marion County – The Court House, as well as various administrative buildings and service depots.
• Knoxville Hospital.
• Knoxville Community Schools – Elementary, Middle, and High Schools, and Knoxville Performing Arts Centre.
• Knoxville Raceway, National Sprint Car Hall of Fame & Museum, and the Grand Theater.

Recent developments include:

• Knoxville Public Library (expansion, renovation, and park development).
• Marion County Court House (renovation).
• Knoxville Hospital (expansion).
• Knoxville Community Schools (new Middle and High Schools).
• Knoxville Sprint Car Museum (additional box seating).

Expected future developments include:

• Knoxville Civic Building (new City Hall, Police and Fire Stations).
• Knoxville Hospital (additional expansions).
• Knoxville Community Schools (possible new development in the Veterans District or renovation of the existing Northstar Elementary School).

Community Utilities

The City of Knoxville develops and maintains its water, sanitary, and storm sewer systems. The existing systems expand as development in new areas is initiated.

Knoxville's water supply is drawn from the Jordan Aquifer, with the Knoxville Water Works currently operating 3 wells. The system has the capacity to treat up to 3 million gallons per day, though current usage averages around 1.3 million gallons daily. Planned upgrades to the wells, including replacing one and relining another, are intended to maintain service reliability and ensure adequate supply for anticipated growth over the next 10 years. These upgrades are not designed to increase the system’s capacity but are expected to meet current needs and projected demand.

Additionally, Knoxville’s sanitary sewer system serves residential, commercial, and industrial users, directing wastewater to the municipal treatment facility by gravity or through lift stations. The system includes 48 miles of sewer pipes, ranging from 6 to 36 inches in diameter, and over 1,100 manholes. The treatment facility is a GRADE III facility recognized by the Iowa Department of Natural Resources and has the capacity to treat up to 4.48 million gallons per day.

At present, both the Water and Sanitary Treatment plants have the capacity to accommodate population growth of up to 10,000 people and beyond. It is also worth noting that some of the City’s water and sanitary facilities, as well as Graceland Cemetery, are located outside of the city limits in Marion County.

In addition to these services, Knoxville relies on nonlocal providers for utilities such as electricity, gas, cable television, and internet. While most services can accommodate the City’s anticipated growth, increasing demand for broadband access will likely require further investment.

Knoxville’s transportation network is vital to the City’s daily operations as well as its long-term prosperity. As Knoxville grows, opportunities to create a more connected and accessible community for residents, businesses, commuters, and visitors exist.

Existing Transportation System

Knoxville is accessed primarily from:

• Highway 14 – North and South.
• Highway 5 – East and West.
• Highway 15 – East from Pella.

Within Knoxville, the primary streets are:

• Highway 14 (Lincoln Street) – North/South.
• Business Highway 92 (W Pleasant and E Main Streets) – East/West.

Traffic volumes along Highways 14 and Business 92 are relatively low, with Highway 14 traffic estimated to be approximately 7,700 trips per day; and Business 92 averaging some 5,000 trips per day.

Public transportation access to and within Knoxville is more limited, with the Heart of Iowa Regional Transit Agency (HIRTA), independent taxis, and ride-sharing options available. Free shuttle service between the Raceway, local hotels, campgrounds, and Downtown are also provided during the Sprint Car Nationals.

A rail line, operated by BNSF, also runs through the center of Knoxville along its East-West axis. Freight traffic is minimal, however, with approximately two trains traveling through the City each day.

Expected Additions to the Transportation System

The current system of highways and primary streets is considered to be adequate for the foreseeable future. No major improvements are anticipated at this time.

As development proceeds within Knoxville and in adjoining areas, some local street improvements can be anticipated, including:

• Paving Bell Avenue and S Willitts Drive, from Christ’s Church to the Park Lane Development.
• Paving S Roche Street, from Bell Avenue north to the city limits.

There is a 47-acre development site on the north side of Bell Avenue, which is located within the City limits. Paving W Bell in association with the development in this location can be expected. 

Kading’s new Villas on Bell project includes the extension of Bell Avenue to S Roche Street. There are significant potential development sites to the north and south of Belle Avenue. Paving Roche Street, north of Bell Avenue, is expected to occur when new development proceeds in this area. Some of the potential development sites (e.g., those located east of Roche Street) would also require annexation. 

In both cases, these local roads are on the boundary of the City and County. The two local governments have agreements to jointly fund these improvements when the need arises. If associated with a major development project, portions of the improvement cost could possibly be funded with tax increment financing. 

Respondents in the community engagement process also emphasized the importance of maintaining and improving existing city streets. Regular maintenance serves to extend the life of existing streets, delaying the need for full reconstruction for many years. The City operates a repaving program for local streets, which is expected to continue going forward. 

Transportation Map

The Transportation Map identifies key areas for future growth and development, directly guiding transportation improvements based on current and future land use needs. This map complements the Future Land Use Map and Future Growth Areas Map, focusing on specific corridors on or near Knoxville’s primary roadways, ensuring that development in these nodes prioritizes safety, accessibility, usability, and aesthetic quality.

1. Business Highway 92

Location: Business Highway 92 (West Pleasant Street/East Main Street) Description: Business Highway 92 is Knoxville’s main east-west transportation route connecting residential, commercial, and industrial areas in Knoxville. Development on the west side, serving as the main entryway into the city, is guided by the 2024 Veterans District Concept Plan. Redevelopment of the east side is expected to be minimal over the next few years. 

2. Highway 14

Location: Highway 14 (Lincoln Street) Description: Highway 14 is Knoxville’s main north-south transportation route, primarily serving commercial uses, and facilitating both local and regional traffic flow in Knoxville. Transportation improvements have recently been undertaken to optimize traffic flow.  Future improvements, including additional pedestrian safe crossings, should be expected to occur as commercial development continues and traffic increases.

3. Bell Avenue Street Paving

Location: Bell Avenue from Highway 14 to Willetts Drive Description: Paving Bell Avenue from Christ’s Church to Willetts Drive should occur in conjunction with the development of adjacent vacant lands or as traffic increases there.

4. South Roche Street Paving

Location: South Roche Street Description: Paving South Roche Street is expected to occur as additional residential development happens in the area.  The construction of sidewalks or multi-use pathways should also be considered to encourage walkability and provide connections to the nearby Competine Trail.

A quality parks and recreation system is a key aspect of Knoxville’s quality of life, supporting the needs of users of all ages and abilities. As the City continues to grow, a balanced approach is necessary to maintain, enhance, and expand park and recreational facilities, while improving connectivity within the broader trail network. Knoxville has made several strides in expanding its trail system, and future efforts should align park and trail development with the City’s growth areas and recommendations outlined in the Implementation Matrix.

 Existing Parks, Recreational Amenities, and Trails

Knoxville’s parks, recreation facilities, and trail system offer a variety of recreational opportunities and amenities, including:

1. Youngs Park – Located on Highway 14, near the Knoxville Raceway. The approximately 15-acre park offers a baseball field, youth soccer fields, a skate park, and a children’s playground.
2. Veterans Park and Splash Pad – Located on W Pleasant Street in the Veterans District. The approximately 3-acre park features a splash pad and innovative playground in a bucolic setting.
3. Auld Park – Located on North 1st Street at E Reno Street and E Douglas Street. The approximately 14-acre park offers a large wooden playground, a smaller children’s playground, a basketball court, shelters, and a dog park.
4. Knoxville Recreation Center – Located on S Park Lane at W Madison Street. The 13-acre site offers an indoor recreation center and pool, outdoor tennis and basketball courts, and an outdoor children’s play area.
5. Competine Trail – A 2-mile trail that follows Competine Creek from the Marion County Campground to E 5 ^th  Street.

Other parks, recreation, and trail facilities include Dixie’s Garden, Brooks Garden, East Park, Veterans Trail, Panther Park, and Edwards Park. 

Proposed Additions 

Respondents in the community engagement process strongly supported efforts to maintain existing parks, recreational facilities, and trails. They also expressed a desire to build an outdoor sports complex that would provide baseball and soccer fields, an outdoor pool, and extensions to the existing trail system including a possible connection to Lake Red Rock. 

The Competine Trail is Knoxville’s largest trail. It follows Competine Creek west from 5th Street, ending at the Marion County Campground. The newly developed Veterans Trail connects to the Competine Trail at the Campground. It then travels north and east, through the Veterans District to Young’s Park and the Raceway.  

Expansion of the Competine Trail eastward to Attica Road is expected. From there, a northward extension to Lake Red Rock would be possible. Connecting to Lake Red Rock would also link Knoxville to other larger trail systems to the north. 

The Knoxville Parks and Recreation Master Plan also proposes the development of an outdoor sports complex. The City has been exploring potential locations on its periphery, as well as the possibility of expanding Young’s Park for such purposes. To explore the strategic vision and priorities for Knoxville's parks, recreation amenities, and trails, please refer to the City of Knoxville Parks and Recreation Master Plan and the City of Knoxville Bicycle and Trail Master Plan.

A city's long-term success depends on the careful management of its resources, collaboration across jurisdictions, and the ability to adapt to future challenges. This section focuses on Agriculture and Natural Resources, Intergovernmental Collaboration, and Sustainability and Resiliency.

Agriculture and Natural Resources involve the protection of land, water, and ecosystems.

Knoxville is surrounded by diverse natural landscapes which influence land use, transportation, environmental, and community planning decisions. Preserving and enhancing significant natural amenities, such as Competine Creek, should remain a priority as development proceeds in Knoxville. The city also benefits from its proximity to Lake Red Rock, which provides opportunities for outdoor recreation, tourism, and ecological preservation. While Knoxville does not have significant agricultural lands within its city limits, agricultural production remains a vital component of Marion County’s economy and contributes to its rural character.

Key environmental factors to consider include:

• Agricultural Land – While it is expected that most of Knoxville’s existing agricultural land will be developed in the future, it is incumbent upon the City to ensure that these lands are developed in an efficient manner which also retains significant natural areas that may exist within them. Similarly, the annexation of agricultural lands for future development should adhere to these principles.
• Floodplain Areas – A 1 percent annual flood risk exists along Competine Creek, which primarily affects the southern and eastern portions of the City. Protecting these areas is essential for flood mitigation, stormwater management, and the maintenance of biodiversity in the region.
• Watersheds – Knoxville lies within the HU8 07100008: Lake Red Rock and HU8 07100009: Lower Des Moines watersheds. Effective watershed management is vital to ensuring clean water for both human consumption and ecosystem health.
• Terrain – Knoxville is located within an area of rolling hills. Individual parcels can contain considerable slope changes. Slope adaptive development concepts should be pursued in these areas.
• Soil Composition – Knoxville’s soils include mixtures of loess, shale, and glacial till. These soils provide the basis for Marion County’s agricultural production. Future development should be designed to prevent soil erosion and maintain soil fertility where appropriate.

Successful communities are built with effective collaboration between a city’s various departments and offices, as well as with state and federal government departments, neighboring municipalities, local school districts, hospitals, businesses, and nonprofit organizations.

The City of Knoxville is governed by a mayor and a 5-member council that oversees the municipality’s operations. The Mayor and City Council are supported in this endeavor by various departments, boards, commissions, and other local partners, including:

• Departments – Administration, Economic & Community Development, Fire & Rescue, Municipal Airport, Planning & Zoning, Public Library, Police, Parks & Recreation, and Public Works.
• Boards and Commissions – Airport Commission, Board of Adjustment, Civil Service Board, Library Board, Low Rent Housing Board, Parks & Recreation Commission, Planning & Zoning Commission, and Water Board.
• Local Partners – Knoxville Chamber of Commerce, Knoxville Community School District, Knoxville Economic Development Corporation (KEDC), Knoxville Hospital and Clinics, Knoxville Raceway, Low Rent Housing Agency of Knoxville, and the National Sprint Car Hall of Fame & Museum.

Collaboration among neighboring local governments and organizations further enhances Knoxville’s ability to address common challenges. Key regional partners include:

• Regional Partners – Marion County, Mid-Iowa Planning Alliance (MIPA), Habitat for Humanity of Marion County, Central Iowa Housing Trust Fund (CIHTF), and the neighboring cities of Pella and Pleasantville.

In Knoxville’s case, a strong working relationship exists with Marion County. This relationship is the cornerstone of the efforts to develop the Veterans District. The City of Knoxville also communicates with the neighboring cities of Pella and Pleasantville on matters of common interest.

Knoxville works on specific projects with MIPA, using them as a consulting resource. MIPA often provides City Staff with information regarding best practices, available funding programs, and upon request, provides administrative support for specific state-funded programs.

Knoxville also has a strong relationship with the Central Iowa Housing Trust Fund (CIHTF) and Habitat for Humanity of Marion County. Each year, the City Guarantees the local match for CIHTF funding projects; and the City and CIHTF jointly fund Habitat’s Critical Home Repair Program in Knoxville. The City has also provided funding to assist Habitat in the purchase of infill lots for home construction. The City’s LMI is commonly used to provide this financial support. As the LMI Funds grow with new residential development, greater use of the LMI fund for these purposes is anticipated.

Knoxville also works with various state departments and organizations, including the Iowa Economic Development Authority (IEDA), Iowa Finance Authority (IFA), the Iowa Department of Natural Resources (Iowa DNR), and the Department of Transportation (IDOT).

IEDA, in particular, has partnered with the City of Knoxville on numerous Downtown revitalization projects (e.g., Community Catalyst Building Remediation and Community Development Block Grants) and housing development programs (e.g., Workforce Housing Tax Credits).

One of the primary purposes of planning is to protect public health and safety. To remain both sustainable and resilient, Knoxville must develop strategies that mitigate risks from extreme weather events, pandemics, and economic recessions, while also adapting to long-term environmental changes. Strong social networks, robust economies, thoughtful government planning and expenditures, and the protection of vital natural resources all contribute to a community’s ability to respond to unexpected events and disruptions.

According to Marion County’s Multi-Jurisdictional Hazard Mitigation Plan, Knoxville faces a relatively low risk from natural disasters, with flooding being the primary concern. Knoxville itself faces only a slight risk from Competine Creek. The greater flood risks occur in the White Breast Creek area to the west of the city. And, like all Iowa communities, Knoxville faces a tornado risk.

The Hazard Mitigation Plan identifies four City of Knoxville-owned and operated disaster response facilities, including its Police and Fire Stations, Water Department & Tower, and Water Reclamation Facility. The City of Knoxville is preparing to build a new civic complex that will replace the existing City Hall, Police and Fire Stations with a single facility on Highway 14. Its water and reclamation facilities are properly maintained and updated as the need arises.

Beyond facilities management, the City of Knoxville should continue to review and update various strategies as the need arises. These strategies include but are not limited to building and fire code enforcement, water quality and stormwater management studies, enhancing emergency preparedness, as well as responsible land use development and resource conservation.

This section of the plan focuses on creating desirable places to live, work, and play. It addresses the following elements: Existing Land Use, Neighborhoods, and Future Land Use.

Knoxville’s existing pattern of land use is shown on the accompanying map. Residential development occupies a majority of the land in Knoxville. The remaining lands are composed of commercial areas, industrial areas, public lands, and vacant or agricultural lands.

As previously discussed, these uses are concentrated in various parts of the city.

• Industrial uses (shown in violet) are concentrated along E Main at the east end of the City (Hormel and 3M), and along Highway 14 south of Highway 5 (Weiler).
• Commercial uses (shown in red) are located primarily along Highway 14 and in the Downtown.
• Residential uses (shown in yellow and orange) exist in a broad arc around the Downtown and north of Larson Street on either side of Highway 14.
• Publicly owned lands (shown in blue) are scattered throughout the City, with the largest concentrations being west of Highway 14 (e.g., the Knoxville Airport, Knoxville High School & Middle Schools, Knoxville Recreation Center, Knoxville Hospital, and the Veterans District).
• Agricultural and other undeveloped areas (shown in green) are scattered around the City periphery.

It is worth noting that the Existing Land Use Map identifies current land use, regardless of how the individual parcels are currently zoned.

The following map shows the distribution of existing zoning districts across the City. The various zoning districts define how properties can be developed.

Parcels in many of the zoning districts, however, have not been developed to their full potential. For example, there are large numbers of single family homes in the City’s R-2 and R-3 districts which allow for multi-family development.

The existing zoning can be summarized as follows:

Residential Zoning Districts (Yellow, Orange, and Brown)

• R-1 single-family zoning is located in two single-family neighborhoods north of Larson Street.
• R-2 single- and two-family zoning is located in a majority of the residential areas of the City.
• R-3 apartment zoning is located in various areas of the City, but especially in the areas adjacent to the Downtown.
• R-4 mobile home park zoning is found in two locations, i.e., south of E Main Street, and east of Highway 14 north of Bell Avenue.

It is worth noting that City Council has recently added a new residential land use district, R-2 A, which allows town housing development. Town housing projects to date, however, have used the R-3 District.

Commercial Zoning Districts (Red and Pink)

• C-1 is a commercial zoning district that has not been used to any great extent in Knoxville. Now in a revised form, it is expected that the C-1 district will be commonly used for neighborhood commercial development.
• C-2 is the primary auto-oriented commercial zoning district in the city. It is used along Highway 14, and to a lesser extent, along Business Highway 92.
• C-3 has been recently revised. It now allows for a mixture of residential and compatible commercial uses in the Central Business Frame adjacent to the Central Business District.
• C-4 is the primary zoning district in Downtown. It allows for pedestrian-oriented commercial development and upper story housing.

Industrial Zoning Districts (Blue)

• M-1 is Knoxville’s light manufacturing zoning district. M-1 districts exist adjacent to the railway, and near Hormel, 3M, and Weiler. The only undeveloped M-1 location of any size is located in the NE corner of the City. Knoxville Airport is also zoned M-1.
• M-2 is Knoxville’s heavy manufacturing zoning district. It accommodates the Hormel, 3M, and Weiler manufacturing facilities.

Agricultural Zoning (Green)

• The A-1 zoning district is designed to accommodate less intensive agricultural activities within the city limits; and acts as a holding use for future urban development. A-1 is currently employed at the west end of the City in portions of the Veterans District and at the former undeveloped Sunset Ridge subdivision.

Planned Unit Development Zoning (Not shown)

• PUD zoning can be used for developments of merit which do not fit into any of the existing zoning districts. An example of a PUD development is Phase I of the Veterans District, which was developed primarily for single family housing but also allows for duplex and three-unit town house development. This particular PUD requires garages and driveways to be accessed from paved alleys at the rear of the property.

It is also worth noting that the City is considering an amendment to the Zoning Code which would create a PS – Public Service District. The PS district could be applied to large public and quasi-public properties, such as Knoxville Airport, as well as Graceland Cemetery and the waterworks and sanitary lands located north of the existing city limits when they are annexed.

In recent years, the City of Knoxville has been engaged in a process to update its current Zoning Code. Some of the recent changes and a few proposed changes have been discussed in this section. This process is not yet complete, however, and it is expected that amendments to the Zoning Code will be brought forward for Council’s consideration from time to time.

Knoxville’s existing neighborhoods form the backbone of the community, each with its own character and history. Understanding the nature of these neighborhoods and the roles that they can play going forward is essential for effective land use planning.

The three principal types of existing neighborhoods are:

• Downtown – This includes the commercial blocks surrounding Court House Square and adjacent blocks on Robinson and Main Streets. The Downtown was developed on a grid street system and is zoned C-4. It is primarily composed of two-story, brick, commercial buildings that were built between 1900 and 1925.
• Established Neighborhoods – These include the community’s original residential areas. They generally surround the Downtown, were developed on a grid street system and are zoned either R-2 or R-3. They contain a mix of lower density residential uses, with a scattering of quasi-public buildings (e.g., existing and former churches, funeral homes, and commercial buildings) and apartments.
• Single Family Neighborhoods – Two post-1960 residential neighborhoods have been developed north of Larson on either side of Highway 14. These neighborhoods are zoned R-1 and are primarily composed of single family dwellings. The older neighborhood, located east of Highway 14, employs a modified system of streets. The new neighborhood, Westridge, which is located west of Highway 14, uses a curvilinear street system.

At least three different types of neighborhoods are expected to be developed in the Veterans District. Phase I has been built is a neo-urban fashion similar to Knoxville’s established neighborhoods. It features narrow lots and rear-accessed garages. Subsequent phases are expected to be more contemporary in design, with wider lots, front drive garages, and using either a modified grid or curvilinear street system.

Knoxville’s future land use development strategy is intended to accommodate growth and allow for the maintenance and enhancement of Knoxville’s established neighborhoods.

Future land use policies should be based upon the following goals: 

• To maintain and enhance the Downtown and existing neighborhoods in Knoxville.
• To accommodate future demand for commercial development along Highway 14.
• To accommodate future demand for industrial development by expanding Knoxville’s existing industrial areas through annexation.
• To accommodate future demand for residential development in the Veterans District and other potential growth areas on Knoxville’s periphery. 

Future Land Use Development in the Existing Neighborhoods 

Land use policies in the existing neighborhoods should reflect a desire to encourage renovation and, where appropriate, reuse of existing buildings, as well as compatible infill development. These approaches will vary considerably from neighborhood to neighborhood. 

• Central Business District – Rehabilitation and reuse of existing commercial buildings is expected to be the norm in the Downtown. In certain limited circumstances, replacement of an existing building in poor repair with a compatible infill building may occur.
• Central Business Frame – Using the revised C-3 District, a mixture of new residential and commercial developments are expected to occur in areas surrounding the Downtown. In some instances, this will involve residential developments not permitted in the Downtown C-4 District, or commercial and mixed-use developments not permitted in the adjoining R-3 District. In time, the Central Business District Frame is expected to function as a transition from the CBD to the established neighborhoods surrounding it.
• Established Neighborhoods – While maintenance and enhancement of the existing housing stock should be considered a priority in these areas, compatible infill development on vacant or underutilized parcels should also be expected. The nature of this redevelopment will vary depending on the zoning in place and the current mix of land uses in the area.
• Single Family Neighborhoods – Maintenance and enhancement of the existing housing stock is the priority in these areas.
• Veterans District – Development within the Veterans District is expected to be predominantly residential, containing a mix of housing types in various kinds of neighborhood settings.

Future Land Use Map

Future Land Use Map and accompanying future land use designations to come.

Future Growth Areas Map

The Future Growth Areas Map identifies key areas for future growth and development based on existing and future land use needs. This map complements the Existing and Future Land Use Maps focusing on specific areas where development should go.

The Future Growth Areas Map is being updated. An updated map will come by April 2025.

Future Commercial Development:

North Highway 14 – New commercial developments can be expected to occur on the remaining undeveloped and underdeveloped sites on Highway 14 (Area 5) over time. Annexation of lands along Highway 14 north of the city limits for commercial development should also be considered on an opportunity basis (Area 2).

Highway 14 – Intended for infill commercial development (Area 5). Description to come.

Future Industrial Development:

East Knoxville – Expanding the existing industrial area to the north of the 3M Corporation is proposed (Area 4). This would require annexation on an opportunity basis of private lands.

South Knoxville – Expanding the existing industrial area to the south of Weiler is proposed (Area 8). This would require annexation on an opportunity basis of private lands.

Future Residential Development:

Veterans District – Residential development in the Veterans District (Area 1) is expected to occur as described in the Veterans District Concept Plan. The District should develop with a mixture of housing types, tenures, and price points.

Northeast Knoxville – Area 3 contains some land within the existing city limits which is currently zoned C-3 but not developed. The area could be expanded through annexation of private lands on an opportunity basis.

Southeast Knoxville – Area 7 contains land located just outside of the city limits which could be developed for residential purposes. This would require annexation on an opportunity basis, as Kading Properties did in order to develop Villas on Bell Avenue.

Bell Avenue – Area 6 contains approximately 50 acres of developable land within the city limits that are currently zoned C-2 and R-3. Development of this area is expected to reflect some mix of commercial and residential uses.

The purpose of the Knoxville Comprehensive Plan is to guide Knoxville’s future development; a process which is expected to continue throughout the life of the Plan. Implementation of the Comprehensive Plan will involve some changes in the City’s policies, programs, and practices. These changes are not, however, expected to be dramatic. In some cases, they may invoice changes in outlook, emphasis, and priority.

The Comprehensive Plan also acknowledges that development patterns and market demand will evolve over time. As such, it offers a framework that is more general in nature and assumes that some flexibility must be applied as development proceeds under new and changing circumstances.

The goals are divided into various sections that correspond to the subsections detailed in this plan. Each goal is accompanied by at least two strategies for achieving the goal as well as specific action items, an associated timeline, potential partners, and funding opportunities to facilitate the completion of each goal recommendation. This section contains:

• A set of goals for the City to consider in its implementation of the Comprehensive Plan.
• A list of strategies intended to achieve, or at least make progress toward, the realization of those goals. 

The format that follows identifies each goal, a list of recommendations most associated with it, as well as notes regarding the anticipated implementation time frame, the primary agency responsible for implementation, and where appropriate potential partners. In a number of instances, a strategy proposed may apply to more than one goal. Time frames are described as follows: 

• Ongoing (Annual)
• Short Term (1-5 years)
• Long Term (6+ years)

Goal 1: Continue Downtown revitalization efforts. 

S.1A     Continue to invest in façade improvement projects in the Downtown area.

Ongoing – City of Knoxville and Downtown Building Owners 

S.1B     Support applications for State funding to assist in financing large building rehabilitation projects.

Ongoing – City of Knoxville, Downtown Building Owners, and Iowa Economic Development Authority (IEDA) 

S.1C     Rezone properties on the periphery of Downtown the C-3 Central Business District on an opportunity basis, assisting those owners to develop townhouses, apartments, and mixed-use buildings not currently permitted in the existing R-3, C-2, or C-4 districts. Support applications for State funds for new development projects, where appropriate.

Ongoing – City of Knoxville, Downtown Property Owners, and IEDA 

S.1D     Continue to provide and maintain enhanced pedestrian amenities around Court House Square (e.g., banners, benches, trees, planters, artwork, pedestrian and wayfinding signage, and receptacles, etc. in a mix of colors).

Ongoing – City of Knoxville 

S.1E –  Complete the proposed pedestrian street improvements on the remaining Downtown blocks.

Long Term – City of Knoxville 

Goal 2: Promote commercial, industrial, and residential development throughout the community in designated areas. 

S.2A     Support compatible infill developments to maximize the use of existing land and infrastructure.

Ongoing – City of Knoxville and Property Owners 

S.2B     Pursue annexation along Highway 14 to the north of the current city limits to expand commercial development opportunities.

Ongoing – City of Knoxville and Property Owners (on an opportunity basis) 

S.2C     Facilitate the development of a new hotel or expansion of an existing hotel, as demand warrants it.

Short Term to Long Term – City of Knoxville and Potential Hotel Investors 

S.2D     Pursue annexation north of East Pleasant and south of Weiler to accommodate the expansion of Knoxville’s manufacturing base.

Ongoing – City of Knoxville and Property Owners (on an opportunity basis) 

S.2E     Support private sector applications for State assistance in providing new quality jobs.

Ongoing – City of Knoxville and Business Owners

Goal 3: Develop new housing.

S.3A     Continue developing residential lands in the Veterans District as proposed in the Veterans District Concept Plan.

Ongoing – City of Knoxville, Marion County, and Housing Builders and Developers 

S. 3B    Support the development of a mix of housing types, tenures, and price points through various means.

Ongoing – City of Knoxville, Housing Builders and Developers, Iowa Economic Development, Iowa Finance Authority, Habitat for Humanity 

S.3C     Support the development of additional senior citizen housing through various means.

Ongoing – City of Knoxville, Housing Builders and Developers, Iowa Economic Development, Iowa Finance Authority 

S. 3D    Support the development of upper-story housing in Downtown, utilizing programs such as the Community Catalyst Building Remediation Program.

Ongoing – City of Knoxville, Downtown Building Owners, Iowa Economic Development

Goal 4: Maintain and enhance existing neighborhoods. 

S.4A     Support programs designed to assist homeowners in undertaking critical repairs to their homes, using available LMI funding.

Ongoing – City of Knoxville, Habitat for Humanity, and the Central Iowa Trust Fund.

S.4B     Continue to enforce minimum maintenance standards to ensure home safety and preserve neighborhood quality and livability.

Ongoing – City of Knoxville 

S.4C     Protect the integrity of single-family uses in the existing R-1 areas.

Ongoing – City of Knoxville

S.4D     Allow for compatible infill housing within the established neighborhoods.

Ongoing – City of Knoxville 

S.4E     Encourage the adaptive reuse of former commercial, public and quasi-public buildings (e.g., schools, churches, and funeral homes) within the established neighborhoods, provided that they do not negatively impact the surrounding neighborhood. Consider the use of the C-1 Neighborhood Commercial District when the proposed reuse is not residential.

Ongoing – City of Knoxville 

Goal 5: Take steps to ensure that Knoxville remains a welcoming community for residents and visitors. 

S.5A     Encourage preservation of Knoxville’s community character by supporting heritage preservation efforts, design standards, and cultural celebrations such as the Sprint Car Nationals, the Farmer’s Markets, and other such events.

Ongoing – City of Knoxville, Building Owners, Knoxville Raceway and Other Event Producers 

S.5B     Support opportunities to increase the amount of public art in Knoxville.

Ongoing – City of Knoxville, Nonprofit Organizations, and Artists      

S.5C     Support opportunities to promote Downtown Knoxville and independent Knoxville businesses in partnership with other stakeholders (e.g., Explore Knoxville, City and Chamber of Commerce websites, etc.).

Ongoing – City of Knoxville, Chamber of Commerce, Business Owners 

S.5D     Consider the possibility of creating a new Downtown SSMID (Self-Supporting Management Improvement District) that would focus on branding, marketing, and promoting Downtown.

Short Term – City of Knoxville, Downtown Property and Business Owners 

S.5E     Consider the possibility of initiating a new version of the Welcome Wagon, which may rely more on social media than in-person events.

Short Term – Business Owners and possibly Nonprofit Organizations 

Goal 6: Ensure reliable and quality community service for residents and local businesses. 

S.6A     Review existing infrastructure capacity and identify constraints as development in Knoxville proceeds.

S.6B     Review the adequacy of existing police, fire, and emergency services as Knoxville continues to grow.

Short Term – City of Knoxville

S.6C     Proceed with the development of the new Civic Complex, which includes a new City Hall, Police, and Fire Station.

Short Term – City of Knoxville

S.6D     Support the continued expansion of broadband services in Knoxville.

Short Term to Long Term – City of Knoxville, Broadband Service Providers, State and Federal Government

S.6E     Explore the options for the development of a new senior center in Knoxville.

Short Term – City of Knoxville, Knoxville Seniors Center

Goal 7: Provide a safe, efficient transportation network for residents, businesses, and visitors.

S.7A     Continue annual repaving projects for Knoxville’s existing streets.

Ongoing – City of Knoxville

S.7B     Pave Bell Avenue from Christ’s Church to the Park Lane development in association with the development of adjacent lands, utilizing the City/County 28E agreement and possibly a TIF agreement to fund the improvements.

Short to Long Term – City of Knoxville, Marion County, Builders and Developers

S.7C     Pave S Roche Street from its termination point adjacent to Highway 5, north to Knoxville’s city limits (near Terrace Lane) in association with annexation and development of adjacent lands, utilizing the City/County 28E agreement and possibly TIF agreement(s) to fund the improvements.

Short to Long Term – City of Knoxville, Marion County, Builders and Developers

S.7D     Review the need for additional primary street improvements as development proceeds.

Short to Long Term – City of Knoxville

S.7E     Continue to build new and repair existing sidewalks that meet ADA standards as the need arises and funding permits.

Ongoing – City of Knoxville, Builders and Developers

S.7F      Increase the number of bicycle routes within Knoxville as warranted.

Ongoing – City of Knoxville. 

S.7G     Continue to support the growth of Knoxville Municipal Airport.

Ongoing – City of Knoxville 

Goal 8: Develop and support a comprehensive parks, recreation, open space, and trail system to serve the community. 

S.8A     Extend the Competine Trail from 5 ^th  Street S to Attica Road.

Short Term– City of Knoxville 

S.8B     Explore development of a trail connecting Knoxville (possibly north from Attica Road) to Lake Red Rock, with a view to eventually connecting to the Volksweg Trail network on the north side of Lake Red Rock.

Short Term – City of Knoxville, Marion County, Army Corps of Engineers, Property Owners

S.8C     Review and revise the Knoxville Bicycle and Trails Master Plan.

Long Term – City of Knoxville 

S.8D     Identify opportunities for the acquisition of land for park and open space development, with an emphasis on ensuring that such needs are accommodated in newly developing areas.

Short Term – City of Knoxville 

S.8E     Acquire land for the development of an outdoor sportsplex.

Short Term – City of Knoxville

S.8F      Expand Young’s Park as proposed in the Veterans District Concept Plan and make the current ballfield on Highway 14 available for commercial development.

Short Term – City of Knoxville, Marion County, Iowa DNR, US Parks Service, Builder/Developer 

S.8G     Proceed with the development of the outdoor sportsplex.

Long Term – City of Knoxville, Potential Donors, and possibly State or Federal Government 

S.8H     Explore the possibility of expanding the existing Knoxville Recreation Center.

Short Term – City of Knoxville 

S.8I       Provide opportunities for nonprofit organizations to program city parks and recreation areas (e.g., softball, soccer, etc.).

Ongoing – City of Knoxville, Nonprofit Service Providers 

Goal 9: Protect and enhance natural features native to Knoxville and the region. 

S.9A     Implement development mitigation strategies in important natural areas, including wetlands and floodplains, to reduce environmental harm.

Ongoing – City of Knoxville, Builders & Developers 

S.9B     Review Knoxville’s subdivision regulations as it relates to stormwater retention.

Short Term – City of Knoxville, Iowa DNR 

S.9C     Encourage the planting of native species, where appropriate, in Knoxville’s public parks and open space areas.

Ongoing – City of Knoxville 

S.9D     Encourage the use of green infrastructure (e.g., rain gardens, bioswales, permeable pavement) to increase water harvesting on private properties.

Short Term – City of Knoxville 

Goal 10: Strengthen partnerships with neighboring jurisdictions. 

S.10A  Actively participate in discussions with Marion County and surrounding municipalities concerning matters of common interest.

Ongoing, City of Knoxville, Marion County, Cities of Pella, Pleasantville, etc.

S.10B  Remain informed regarding State and Federal regulations and funding opportunities.

Ongoing – City of Knoxville, Mid-Iowa Planning Alliance, (MIPA).

S.10C  Remain informed regarding best practices of similar-sized Iowa cities.

Ongoing – City of Knoxville, MIPA, League of Iowa Cities, various State of Iowa Departments 

Goal 11: Strengthen partnerships with local stakeholders. 

S.11A  Maintain communication with the Knoxville Hospital & Clinics and the Knoxville Community School District on matters of common interest.

Ongoing – City of Knoxville, Knoxville Hospital & Clinics, Knoxville Community School District 

S.11B  Maintain communication with Knoxville’s major employers on matters of common interest.

Ongoing – City of Knoxville, Weiler, 3M Corporation, Hormel

S.11C  Maintain communication with various nonprofit organizations within the Knoxville Community.

Ongoing – City of Knoxville, Knoxville Chamber of Commerce, THRIVE, and others 

Goal 12: Encourage sustainable practices in all aspects of community development. 

S.12A  Consider SMART Planning Principles in the review of all proposed developments and changes to land use and transportation policies.     

Ongoing – City of Knoxville 

S.12B  Promote higher-density and mixed-use developments, where appropriate, to reduce future environmental impacts and lower the cost of unnecessarily extending city services.

Ongoing – City of Knoxville 

S.12C  Continue to enforce compliance with building, fire, and flood control regulations.

Ongoing – City of Knoxville 

Goal 13: Increase resiliency through disaster preparedness and recovery planning.

S.13A  Implement disaster planning strategies, where appropriate, as identified in the Marion County Multi-Jurisdictional Hazard Mitigation Plan.

Ongoing – City of Knoxville, Marion County 

S.13B  Raise awareness of the risks of hazardous materials and effective measures to safeguard public health, safety, property, and the environment.

Ongoing – City of Knoxville, Marion County 

S.13C  Improve communication systems to ensure a swift response during disasters.

Ongoing – City of Knoxville, Marion County 

Goal 14: Continue to improve and refine the City’s planning and development review systems and procedures. 

S.14A  Convert the City’s land use and zoning maps to electronic systems.

Short Term – City of Knoxville 

S.14B  Continue to review and revise the City’s Zoning Code and Subdivision Regulations so that it can more effectively guide future development in Knoxville.

Ongoing – City of Knoxville

 Knoxville Zoning Code 

 Knoxville Zoning Map 

 Knoxville Community & Housing Needs Assessment, 2023, Confluence 

 Veterans District Concept Plan, 2024, Confluence 

 Parks & Recreation Master Plan, 2022, RDG 

 Downtown Assessment Report, 2021, Iowa Economic Development Authority (IEDA) 

 Bicycle & Trail Master Plan, 2015, Snyder & Associates 

 Discover Knoxville Laborshed Report, 2013, Iowa Workforce Development and City of Knoxville 

 Knoxville Comprehensive Plan, 2017, JEO Consulting Group, Inc. 

 Marion County Housing Needs Assessment, 2024, Maxfield Research & Consulting 

 Marion County Multi-Jurisdictional Hazard Mitigation Plan, 2023, JEO Consulting Group, Inc. 

 Marion County Comprehensive Plan, In Progress, Mid-Iowa Planning Alliance (MIPA) 

Understanding resident demographics, economic trends, and geographic information is vital to producing a plan that serves the City of Knoxville. We utilized current data as well as long-term trends to illustrate Knoxville’s past and present, which will help cultivate a resilient future.  

Population Data

Population Change and Projections

Economic Conditions

The top five industries in the City include:

1. Educational services, health care, and social assistance.
2. Manufacturing.
3. Retail trade.
4. Arts, entertainment, recreation, and accommodation and food services.
5. Finance and insurance, real estate, rental, and leasing.

Reflecting this, Knoxville's top five employers are:

1. Weiler - 500 employees
2. Knoxville Community School District - 392 employees
3. 3M - 330 employees
4. Knoxville Hospital & Clinics - 195 employees
5. Hormel - 150 employees

(Data Axle and Esri, 2024)

Housing Stock and Tenure

According to the 2023 American Community Survey, a majority of Knoxville's residents earn a household income between $50,000 and $74,999 and spend less than 20% of their salary on their mortgage, highlighting how affordable housing in the City allows residents to retain a significant portion of their income on discretionary spending. Additionally, residents' homes are valued between $100,000 and $149,999 on average aligning with the affordability of Knoxville's housing market.

A majority of homes in Knoxville were built in 1939 or earlier. Over the past two decades, Knoxville has seen a decrease in the construction of housing structures, despite the rising demand. Additionally, most of the housing structures in the City are detached, single-family.

This data does not account for the recent changes in Knoxville's housing stock, as the recent Veterans District Redevelopment along with additional proposed developments, resulted in the development of 34 homes. The 2024 or 2025 American Community Survey (ACS) and the 2030 U.S. Census will offer more accurate insights into housing trends and development in Knoxville through 2045.

Mapping Existing Conditions

Here is an overview of Knoxville's existing conditions, including parks, recreational amenities and trails, traffic volumes, water, sewer, and energy systems, along with community buildings and facilities, and health services.

 Transportation

Annual Average Daily Traffic Count (AADT) (2025)

Traffic volumes along Highways 14 and Business 92 are relatively low, with Highway 14 traffic estimated to be approximately 7,700 trips per day; and Business 92 averaging some 5,000 trips per day.

Traffic Volume:

• Roadway classification (including Level of Service (LOS))
• Annual Average Daily Traffic (AADT)

Commuting Data

Community Buildings & Facilities:

• Knoxville City Hall
• Knoxville Public Library
• Knoxville Police Department
• Knoxville Fire Department
• Knoxville Streets Department
• Knoxville Chamber of Commerce
• Knoxville Municipal Airport
• Marion County Courthouse
• Marion County Office Building
• Marion County Road Department
• Marion County Sheriff's Office
• Marion County Humane Society
• Marion County Historical Village
• Marion County Fairgrounds
• Knoxville Raceway
• National Sprint Car Hall of Fame & Museum
• Grand Theater
• KNIA / KRLS Radio
• United States Post Office
• West Elementary School
• Northstar Elementary School
• Knoxville Middle School
• Knoxville High School
• Heartland Area Education Agency
• Montgomery Street Preschool
• Stepping Stones Early Learning
• Trinity Lutheran Preschool
• Apostolic Church
• Celebrate Community Church
• Christ's Church
• Community Foresquare Church
• Community of Christ Church
• Cross Roads Gospel Church
• Cross-Walk Youth Center
• Faith Baptist Church
• First Presbyterian Church
• Good Shepherd Lutheran Church
• Knoxville Church of Christ
• Knoxville Church of God
• Knoxville Church of The Nazarene
• Knoxville First United Methodist Church
• Knoxville Seventh-Day Adventist Church
• Living Word Fellowship
• New Covenant Church
• New Journey Church
• New Life Church
• Riverside Community Church
• St. Anthony's Catholic Church
• The Church of Jesus Christ of Latter-day Saints
• Trinity Lutheran Church

Water, Sewer, & Energy Systems:

• Knoxville Water Works
• Knoxville Waste Water Treatment
• Marion County Rural Water District

Health Facilities:

• Knoxville Hospital & Clinics
• Marion County Public Health Department
• Infinity Health