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If you’ve been browsing listings online, you’ve probably heard the rumors that Tennessee is the “wild west” of real estate—a place where you can buy a mountain plot, build whatever you want, and never hear a peep from the government.
I hate to burst the bubble, but as of early 2026, that is largely a myth. While it is true that we have more freedom here than in many coastal states, East Tennessee has a distinct set of rules regarding what you can build and where. Whether you are looking at moving to Knoxville or hunting for a cabin investment in Sevier County, understanding the lay of the land—literally and legally—is the only way to protect your money.
Let’s break down how zoning, land use, and permits actually work here so you can buy with confidence.
How Land Use Authority Works in Tennessee
Before we look at specific counties, you need to understand the legal framework. Tennessee operates under something called “Dillon’s Rule.” In plain English, this means local governments (cities and counties) only have the powers that the state explicitly grants them. They can’t just make up rules on the fly, but the rules they do enforce are legally binding.
City Limits vs. Unincorporated County
This is the first thing I tell every client. There is a massive difference between buying property inside a municipality (like the City of Knoxville or City of Gatlinburg) and buying in the “unincorporated” county.
Inside city limits, you have stricter zoning, more code enforcement, and city taxes. In the unincorporated county, regulations are generally looser, but they are not nonexistent. You still have to deal with county zoning maps and state-level environmental rules.
The “Unrestricted Land” Myth
You will see the word “unrestricted” plastered all over land listings. This is where buyers get burned. Usually, when a seller says “unrestricted,” they are talking about deed restrictions (private rules like HOAs). They mean there is no developer telling you that your house has to be brick or that you can’t own a goat.
However, “unrestricted” in a listing description does not mean the property is exempt from government zoning. You might have an unrestricted deed, but if the county zones that land as “Residential,” you still can’t open a commercial hog farm or a high-traffic retail store.
Common Zoning Categories: Residential vs. Agricultural
Most of the property you’ll encounter in East Tennessee falls into a few standard buckets. Knowing the difference can save you from buying a lot that won’t work for your plans.
Residential (R-1, R-2, RA) This is your standard suburban zoning. If you are looking at homes in established neighborhoods, this is likely what you’ll see. These zones are designed for living, not farming. You usually cannot keep livestock (aside from maybe a few backyard hens, depending on the specific ordinance), and you certainly cannot run a noisy commercial business from the garage.
Agricultural (A-1, Greenbelt) For those wanting elbow room, Agricultural zoning is the gold standard. In many East Tennessee counties, A-1 zoning allows for a mix of residential living and farming. It typically allows for lower density—often one or two dwellings per acre—and gives you the freedom to have horses, barns, and gardens.
If you are buying a larger tract (15 acres or more), you need to ask about “Greenbelt” status. This is a state program that assesses your property taxes based on its “use value” (farming/forestry) rather than its market value. It can save you thousands a year, but you have to generate a small amount of agricultural income (often around $1,500/year average) to qualify.
Mobile Home Considerations Do not assume you can put a manufactured home anywhere. Even in rural areas, many zones (like standard R-1) prohibit single-wide or even double-wide homes. You often need to look for specific “RA” (Residential Agricultural) zones or areas with a mobile home overlay.
County-Specific Rules: Knox, Sevier, and Surrounding Areas
Real estate is hyper-local. The rules in Knoxville are completely different from the rules in the Smoky Mountains. Here is a snapshot of the regulatory landscape as of 2026.
Knox County & Knoxville
If you are relocating to the Knoxville area, you will hear a lot about “Recode Knoxville.” This was a massive overhaul of the city’s zoning code a few years back. The goal was to encourage mixed-use development and increase density.
- The Upside: It is now easier in many parts of the city to build Accessory Dwelling Units (ADUs) or develop distinct urban neighborhoods.
- The Constraint: Enforcement is strict. If you try to run an unpermitted business or rental in a residential zone, Code Enforcement will eventually knock on your door.
Sevier County (The Cabin Capital)
Sevier County (home to Gatlinburg, Pigeon Forge, and Sevierville) is the heart of the short-term rental market. For years, it was fairly loose, but that era has ended.
- Safety First: Following the 2016 wildfires, fire safety is paramount. New builds and major renovations—especially those over 5,000 square feet or with large occupancy numbers—often require commercial-grade sprinkler systems.
- Strict Permits: As of 2024–2026, Short Term Rental Unit (STRU) permits are mandatory and rigorously enforced. You cannot just buy a cabin and list it on Airbnb. You must pass safety inspections regarding decks, railings, and egress.
Cocke and Blount Counties
- Cocke County: Historically known for having little to no zoning, Cocke County adopted a proper zoning map in late 2023. It is no longer a free-for-all. There are distinct boundaries for commercial and agricultural use now.
- Blount County: This area is very protective of its aesthetics. There are specific regulations regarding the “view shed” of the Great Smoky Mountains Parkway to prevent billboards and ugly development from ruining the mountain vistas.
Mountain and Water Restrictions: Slopes and Shorelines
In East Tennessee, the physical land often dictates what you can do just as much as the law does.
Hillside and Ridgetop Protection
Both Knox and Sevier counties (and others) have adopted “Hillside Protection” ordinances. These rules kick in when you are building on land with a slope greater than 30% (or sometimes 30 degrees, depending on the specific code).
- The Impact: These rules limit how much land you can clear and how dense you can build.
- The Cost: If you buy a steep view lot, be prepared to pay for engineered grading plans. You cannot just push dirt around with a bulldozer anymore; you need a plan that ensures you won’t cause a landslide on your neighbor below.
TVA Shorelines & The “26a” Permit
If you are looking at lakefront property in Tennessee, the Tennessee Valley Authority (TVA) is your new partner. TVA manages the water levels and the shorelines of the major lakes (Norris, Douglas, Fort Loudoun, etc.).
- The Rule: You might own the land down to the water, but TVA likely holds a “flowage easement.”
- The Permit: You cannot build a dock, a retaining wall, or even stabilize the bank with rip-rap without a “26a Permit.” This is non-negotiable. If you build an unpermitted dock, they can (and will) make you tear it down at your expense.
Floodplains
Always check the FEMA flood maps. In our mountainous terrain, valleys flood quickly. Building in a “floodway” is generally prohibited. Building in a “floodplain” is possible but requires an elevation certificate and expensive flood insurance.
Investor Guide: STRs, ADUs, and Alternative Living
For those looking at investing in Tennessee real estate, specifically for cash flow, here is the reality of the current market.
Short Term Rentals (STRs)
- Knoxville: Very strict. In most residential zones, you must be an owner-occupant to get an STR permit. This essentially bans “whole home” investor-owned Airbnbs in standard neighborhoods.
- Sevier County: Permitted, but regulated. You pay an annual permit fee (often around $250 – $750 depending on location/size) and must pass life-safety inspections.
Unincorporated Areas: Generally easier to permit than city centers, but never assume. Always verify the current overlay map
Accessory Dwelling Units (ADUs)
Knoxville is becoming more ADU-friendly to help with housing shortages. Generally, you can build a “granny flat” or garage apartment if:
- The owner lives in the main house or the ADU.
- The ADU is smaller than the main house (usually capped at 600–1,200 sq ft depending on lot size).
- You can meet setback and parking requirements.
RV Living
This is the most common question I get: “Can I buy land and live in my RV?”
- The Answer: Generally, no. Most counties prohibit using an RV as a permanent residence on private land. They are considered recreational vehicles, not dwellings.
- The Exceptions: You can usually live in one temporarily while you have an active building permit for a permanent home. Also, Greene County recently passed a resolution allowing permanent RV living under very specific conditions (must have septic, water, and paid taxes), but this is the exception, not the rule.
How to Verify Zoning Before You Buy
Never take a listing agent’s word—or even my word—as the final gospel. Regulations change. Here is how you do your due diligence.
- Use GIS Maps: Every county has a Geographic Information System (GIS) website. Search “KGIS” for Knox or “Sevier County GIS.” These maps allow you to toggle on zoning layers, flood zones, and property lines.
- Call the Planner: Find out if the property is in the city or the county, then call that specific planning department. Ask specifically: “What is the zoning classification for this parcel, and does it allow for [your specific plan]?”
- Check Septic Records: In rural areas, soil is everything. You can search the Tennessee Department of Environment & Conservation (TDEC) database online for existing septic permits. If there is no record, you are buying a mystery until you get a soil scientist out there.
- Read the Deed: Ask the title company for the “restrictions and covenants” running with the land. Remember, zoning might allow pigs, but the deed might forbid them. The stricter rule always wins.
FAQ: Zoning and Land Use in East Tennessee
Can I live in an RV on my own land in East Tennessee?
In most counties, you cannot use an RV as a permanent residence on private land. You are typically limited to designated RV parks or campgrounds. However, most counties will allow you to live in an RV temporarily (often for 6 to 12 months) if you have an active building permit and are actively constructing a permanent home.
Does unrestricted land mean I can build whatever I want?
No. “Unrestricted” usually refers to a lack of private deed restrictions or HOAs. You are still subject to county zoning ordinances, building codes, and state health regulations regarding septic systems and water access.
What is the 26a permit for TVA lakes?
The 26a permit is an approval issued by the Tennessee Valley Authority for any construction along the shoreline or in the water of TVA-managed reservoirs. This includes docks, boat slips, shoreline stabilization, and even steps leading down to the water; without it, your structure is illegal.
Are barndominiums allowed in Knox and Sevier counties?
Yes, barndominiums are generally allowed, but they must meet residential building codes, not just agricultural codes. You cannot simply build a metal pole barn and move in; it must have proper insulation, framing, egress windows, and a foundation that meets the residential code for that jurisdiction.
How do I look up zoning for a property in Tennessee?
The most reliable way is to use the county’s GIS (Geographic Information System) website, such as KGIS for Knoxville or the Tennessee Property Data Viewer for rural counties. Once you identify the zoning code (like A-1 or R-2), cross-reference it with the county’s zoning ordinance document to see permitted uses.
Disclaimer: I am a real estate expert, not an attorney or a government official. Zoning laws and ordinances can change at any time. Always verify specific regulations with the local planning commission or a land-use attorney before making a purchase.
