Richard H. Fulton, the former Nashville mayor and congressman and one of the city's most consequential political leaders of the 20th century, died on Wednesday night. He was 91.

A social liberal and pro-business politician, Fulton provided the template for the city's mayors since the 1960s. He began his career as a political insurgent too young to serve in his first elected office and then went on to define Nashville's political scene for nearly 40 years.

Fulton was the second mayor of Davidson County's metropolitan form of government, serving for 12 years from 1975 until 1987. He died at Alive Hospice in Nashville, a Fulton family friend confirmed.

Fulton, a Democrat, was elected mayor after serving seven terms in Congress representing the Nashville area.

His critical votes included support for the historic Civil Rights Act of 1964. He was one of just seven Southern Democrats in the House out of 87 to vote for the landmark legislation. Four years later, he voted for the Fair Housing Act.

As mayor, he was a leading visionary of downtown development long before Nashville had a thriving urban core. Fulton was the driving force behind developing Second Avenue North, Riverfront Park, the Nashville Convention Center, the construction of Interstate 440, the expanded use of the Metro Development and Housing Agency to drive development, and adding 485 acres of parks.

"Richard Fulton helped make modern-day Nashville what it is with his leadership as mayor, and he helped America live up to its promises by creating new freedoms with his votes for civil rights, voting rights, health care and fair housing in Congress," Mayor David Briley said in a statement. "He was the right man at the right time to lead our city forward.

"I’ll never forget interning in Mayor Fulton’s office when I was a college student. Watching him work taught me a lot about Nashville, about building a better city and about leadership, and I still carry those lessons with me every day. Jodie and I send our condolences to Mayor Fulton’s family.”

Get breaking news first:Full access to Tennessean.com is now on sale

Fulton called 'progressive visionary'

In memory of Fulton, Briley had flags at Metro buildings lowered to half staff, the Korean Veterans Memorial Bridge was lit up with blue lights, and a memorial wreath placed at Metro's downtown Richard Fulton Campus, which is named in his honor.

“My home city of Nashville would not be the flourishing and vibrant city that it is today without Mayor Richard Fulton's leadership," former Vice President Al Gore said. "Dick Fulton was a progressive visionary whose legacy has left an indelible mark on this great city. He will be greatly missed.”

Fulton was a social progressive before it was the default political setting in Nashville. On the campaign trail, Fulton aggressively courted the black vote, a rarity among white politicians in the 1960s.

As a congressman, he was the first member of Tennessee's delegation to hire a person of color to his staff.

Rich Riebeling, a longtime top aide for multiple mayors who got his start under Fulton, said he considered Fulton part of his family. He credited his former boss with bringing Nashville "into the modern age" as mayor, pointing to his work to revitalize downtown, and seeing "Nashville's potential to be an even greater city" after assuming office from Mayor Beverly Briley.

“He was a public figure but a really private man who really taught me the importance of doing things for your community and taking challenges and taking on tough tasks," Riebeling said.

He said Fulton lived by the motto"If you believe in something, you should be willing to fight for it, and he did.”

U.S. Rep. Jim Cooper, D-Nashville, said Fulton did "more than anyone else" to make Nashville great.

“He was also the best Southern congressman, putting Tennessee on the right side of history during the Civil Rights era," Cooper said. "We are all better because of his love for Nashville and his brave, visionary leadership.”

From East High football to politics

Born in 1927 into a working-class family, Fulton grew up in East Nashville, attending Warner Elementary School and then East High School, where he was a football star. His father worked for the railroad, and his mother was a homemaker.

After high school, Fulton served in the U.S. Navy during World War II before returning to play at the University of Tennessee. He left college and returned home to East Nashville to help his brother run a neighborhood market.

In fact, Fulton's first foray into politics wasn't as a candidate, but rather a supporter of his brother Lyle Fulton's successful campaign for the state Senate. Lyle died after a brief battle with liver cancer, and Fulton successfully was elected to his brother's seat.

But because he was only 29 years old, Fulton was unable to serve in that role until he ran again in 1956 and won.

Meanwhile, Fulton's 1962 Democratic primary victory for Congress is cemented in Nashville political lore. Fulton's opponent Carlton Loser, the incumbent Democratic congressman, initially was declared the primary winner.

But aggressive reporting by The Tennessean — the editorial board of which, led by editor-in-chief John Seigenthaler, backed Fulton — uncovered corruption that led to lawsuits against the election commission by upstart attorney George Barrett, who was a childhood friend of Fulton's.

Because of issues raised by the newspaper and in the lawsuits, the original primary results were thrown out. Fulton won a follow-up primary election, and then went on to represent Nashville in Congress for more than a decade.

Former U.S Rep. Bob Clement, D-Nashville, who like Cooper held Fulton's former seat, said he remembers Fulton as a "distinguished, charming person."

"He had a real love and appreciation for public service and, as we know, served at the local, state and federal level. Dick was a real diplomat and was very helpful to me in terms of advice and counsel. He will truly be missed," said Clement.

Civil rights supporter

Fulton was an ardent supporter of the civil rights movement — a position that wasn't always popular in the capital of a former Confederate state. Fulton credited his time in the Navy with influencing his progressive political views on race.

But notably, during an earlier unsuccessful election challenge against then-U.S. Rep. Percy Priest in 1956, Fulton criticized his opponent for not signing the "Southern Manifesto," which was signed by 101 Southern Democrats in opposition of integration in public places — including schools.

As mayor, Fulton married his progressive social views with a pro-business agenda that foreshadowed the mayoral tenures of successors Phil Bredesen and Karl Dean.

More than a decade before Bredesen successfully lured professional sports franchises to Nashville, Fulton advocated for the city to host the 1996 Olympics, which eventually was awarded to Atlanta.

“Richard Fulton embodied the spirit of Nashville at its best," Bredesen said. "I knew him first as mayor — he was the man I ran to replace in 1987 — and respected all he did to move Nashville forward."

"But it was his action as a Congressman — being one of the few from the South voting for the Civil Rights Act — that I admired most," Bredesen said. "The character and courage he showed was an inspiration to others for the rest of his life. Nashville will miss him.”

Pushing for a revamped downtown

Prior to the $623 million Music City Center convention hall, the city's original lower Broadway convention center achieved wide acclaim and became the anchor for business tourism nearly 30 years before Nashville achieved "It City" status. Fulton was that project's chief champion.

Charlie Cardwell, the current Metropolitan trustee who was finance director for Fulton beginning in 1981 — as he began the public push to finance the convention center — said Fulton "set the stage for what Nashville is today."

"I've served with or under all the mayors since then. He was a leader and he had the vision of what Nashville needed to be in the future."

Cardwell said Fulton had a "bashful part of his makeup," despite appearing flamboyant in his presentation. He recalled how Fulton modernized previously neglected parts of Nashville, pointing to a massive $419 million sewer expansion to neighborhoods that lacked the infrastructure.

"He could work any part of Nashville, whether it be Belle Meade or East Nashville or North Nashville," Cardwell said. "He took care of every area of Nashville on a level basis."

Pat Nolan, a longtime Nashville political analyst who served as a press secretary for Fulton, said Fulton's support for civil rights almost cost him his re-election in 1968, when he narrowly beat Republican challenger George Kelley.

"Congressman Fulton had the courage of his convictions," Nolan wrote in a tribute, noting also that Fulton was criticized for his efforts to revitalize downtown.

"In some cases it took additional years for the seeds he planted to come to fruition, but clearly what we enjoy in a vibrant Nashville today is the ongoing culmination of a dream he had for our city decades ago. RIP, Mayor. We all remain in your debt for your service to our community."

'Among the bravest and most beloved public servants'

In addition to Seigenthaler and Barrett, Fulton's political contemporaries included John Jay Hooker, Sheriff Fate Thomas and attorney Cecil Branstetter. Together, the pack of young Democrats ascended to the top of the city's political ladder. Seigenthaler, Barrett, Branstetter and Hooker all died in recent years.

Virtually every civic decision of substantial impact was made by the closely knit group of leaders, often wielding their power by way of closed-door meetings that escaped public scrutiny.

When Thomas was indicted and then convicted of corruption charges, the city's political establishment experienced upheaval that created to a citywide appetite for new leaders.

Fulton maintained broader political ambition, running unsuccessfully for governor twice. He tried to resurrect his political career in 1999 by running again for mayor. At 72, Fulton made it to the runoff against state lawmaker Bill Purcell, but instead of continuing on with a hard-nosed election, Fulton stepped aside and announced his support for Purcell before the second round of voting.

"He was among the bravest and most beloved public servants in our history and he always will be," Purcell said. "He loved public service, but he loved Nashville most of all."

Fulton pursued a successful career in business after completing three terms as mayor.

The Fulton family has not announced details of funeral arrangements.

Staff writer Lizzy Alfs contributed to this report. Reach Nate Rau at 615-259-8094 and nrau@tennessean.com. Follow him on Twitter @tnnaterau.