For years, Third Ward residents have had to roll with the changes in their community, often having to live with decisions made in the corridors of power at City Hall.

That's how East Broadway, the main road running through one of Houston's historical African-American neighborhoods, became Dowling Street, named in honor of a Confederate war hero. That's how Dowling's name ended up on street signs along the east side of Emancipation Park, so named because it was the place recently-freed blacks celebrated the end of slavery.

Times have changed, however, and now community leaders and local officials are poised to change Dowling Street into Emancipation Avenue - even though doing so will require changing the rules at City Hall.

Community efforts to gather enough support from property owners on Dowling have come up short of meeting the city's requirements for a resident-initiated name-change. That has caused State Rep. Garnet Coleman, who represents the area, to urge the city to revise its standards for how to change street names.

"Rightly so, because the process is impossible," Coleman said, defending the decision to revise the rules during the process.

Houston planning officials, at the direction of Mayor Sylvester Turner, are proposing amendments to the rules to allow for city-initiated street name changes, starting with Dowling. That would mean that rather than requiring 75 percent of landowners along the street to support the renaming, the city can consider a name change if "sufficient" evidence of community support exists, after extensive public outreach.

City planning officials agree current standards lack the latitude to allow communities to sponsor name changes, especially along thoroughfares like Dowling that are a blend of residential, business and nonprofit property owners.

The mixed uses, absentee landlords and inaccurate property records in some cases made gathering signatures from three-fourths of property owners challenging, Coleman said.

"We sent out petitions to all of the property owners," Coleman said, "We weren't able to get to 50 percent back. The hurdle is too high."

The efforts come as change far beyond the name of a street is coming to Third Ward.

Following what some consider years of neglect, vacant lots along Dowling are being cleared of brush and primed for development. Emancipation Park, bounded by fences now, is being reclaimed as the heart of the community.

Purchased in 1872 by black community leaders so they'd have a place to celebrate Juneteeth - the end of slavery in Texas - the park is bounded by Dowling Street, named for Confederate soldier Richard Dowling.

Houston leaders renamed the street for Dowling in 1892, as the area became a bastion of black America - many suspect maliciously to make the community's main street celebrate a Confederate war hero.

Facing gentrification, residents and former residents are committed to keeping their culture in tact and honor Emancipation Park.

"For this community, it is the history behind it," said Eoles Whitaker II, who grew up in the historic neighborhood. "Without the history behind it, you don't understand the weight of what is happening."

Coleman and others began the effort following the June 17, 2015 shooting of nine black members of a Charleston, S.C., church, which sparked a national debate about Confederate symbols and honorifics, culminating in the removal of the Confederate flag from the South Carolina statehouse grounds.

In Houston, public school officials last month approved spending $1.2 million to rename eight local schools named for Confederates or loyalists. In 2014, Houston Independent School District also barred the use of Native American mascots, deeming them offensive.

Meanwhile, although the city's rules for renaming streets have not changed - that will require City Council approval - planning officials are proceeding with the street change to Emancipation as a pilot of the new procedures. Notices were sent out last month to property owners along Dowling and a public meeting is scheduled for Oct. 13 before the planning commission.

Officials stressed while there is groundswell for a name change, the process is in the early stages.

"Mayor Turner supports the idea and believes it makes sense given the park's prominence in the community," Turner's spokeswoman Janice Evans said of the proposal for Emancipation Avenue. "However, we are still taking public input and there have been no final decisions."

Houston parks and local streets surrounding them often share names. Memorial Drive runs through Memorial Park, while MacGregor Way ends at MacGregor Park.

Regardless of the what the planning commission recommends, the decision moves to City Council. If approved, the name of the street would change 90 days later, once residents and property owners are notified and Houston Public Works installs the new street signs.

Change doesn't necessarily come easy. Renaming the street Emancipation Avenue means every office, retailer, eatery and resident suddenly would have a new postal address. Business cards, stationery and advertisements would need to be updated. City maps and street signs would be replaced.

The cost, and how it would be paid for, will be analyzed before City Council votes, but that analysis hasn't been completed, said Brian Crimmins, chief of staff for the planning department.

Many of the specifics will be determined by community input, planning director Patrick Walsh said. Though the rule changes under consideration give officials latitude to determine what "sufficient" support means, it also requires numerous ways to solicit comment.

Walsh said he expects a large showing at the Oct. 13 planning commission meeting, from both those pressing for the name change and others opposed.

The debate divides many area residents, some outraged it's taken this long to remove a name associated with keeping blacks in bondage; others that shrug and don't know what all the fuss is about.

"It's not hurting anybody," said Robert Pepper, 66, as he walked up Dowling on a recent evening.

Dowling extends outside the Third Ward, meaning about a mile of the three-mile road isn't in the neighborhood, and those landowners and residents will be affected, too.

Supporters say all of the changes are worth it to remove what many consider a constant reminder of racism in a community desperately holding on to its heritage.

As investment comes into Third Ward, those who grew up there - many who live in the neighborhood and many that moved long ago - fear the revitalization will ruin the historically African American fabric of the community. Changing the name of the street to match Emancipation Park is a way to hold onto that rich history.

"Our history, the history of this community, is in that park," said Theola Petteway, executive director of the OST/Alameda Corridors Redevelopment Authority.

Emancipation Park was originally part of land granted to Houston's first mayor, James Holman, in 1839. Black community leaders in 1872 bought it. Eventually it was donated to the city in 1916, and for two decades was the only Houston park open to blacks.

To many, it is a symbol of the Third Ward's resilience and self-improvement, as well as a modern-day respite for celebrations and enjoyment.

Dowling's legacy was less long-lasting. Born in Ireland, Dowling immigrated with his parents and moved to Houston in 1857, where he founded some popular saloons. When the Civil War began, he enlisted for the Confederacy and proved himself a skilled artillery officer.

As Lt. Dowling, he helped win the Battle of Sabine Pass by shelling Union ships when they tried to enter the waterways leading to the Sabine River.

Houston rejoiced in his efforts, which believed saved the city from a Union incursion.

Dowling then returned to his saloon businesses and died in 1867, a quarter-century before city leaders renamed East Broadway in his honor.

In 2013, community and city leaders began a $33 million renovation of Emancipation Park that includes improvements to the community center and pool, as well as a new building that serves as an entrance way to the park. Officials plan to reopen the park in November to celebrate its centennial as a city park.

It's critical, Petteway said, the city pay attention to the residents and community interests, and not just those that own property along the street when they consider tying the street to the park.

"If they don't take in all that community reaction, and just listen to the property owners, it's another form of discrimination," she said.