SPRINGFIELD R/UDAT JACKSONVILLE, FLORIDA SEPTEMBER 26 - 30, 1985

TABLE OF CONTENTS

Introduction 1 What is R/UDAT 2 Executive Summary 3 What We Found 6 Vision 8 Critical Issues 10 Strategies 11 Community Organization 25 Historic Preservation 27 Congregate Care 32 D i s pIacemen t 3 7 Cr ime 40 Hou s i ng 4 3 Parks and Recreation 45 48 The General Plan ¥' Arts and Culture 58 Energy |||| 59 R/UDAT Team 65 Resource People and Steering Committee 70 Bibliography 76

This project was funded by a grant from the Jacksonville Department of Housing and Urban Development, City of Jacksonville. Jake M. Godbold, Mayor Richard Bowers, Executive Director Co-sponsored by Jacksonville Chapter, American Institute of Architects IV INTRODUCTION

In October, 1984 the Jacksonville Department of Housing and Urban Development contacted the American Institute of Architects regarding the possibility of conducting a study of the Springfield area of Jacksonville. I t was decided that a Regional/Urban Design Assistance program might be appropriate and AIA suggested that an application documenting the project be drawn up for consideration for a full- fledged R/UDAT study. HUD assembled a group of residents, architects and planners, and enlisted the support of the Jacksonville AIA to develop the program, sponsor the application and serve as the steering committee for the project, should it materialize. The proposal was accepted in April, 1985, a commitment was made to assemble a team, and the study was set for Sept. 26 - 30, 1985, and a team of architects, planners, development specialists, urban designers, landscape architects and sociologists was selected and charged to study the area, consult with neighborhood and area interests and make recommendations to revitalize and recapture the charm of this inner city residential enclave. The team meets with community groups and gets acquainted with local conditions at first hand by means of site visits anad tours. After public hearings are held the team members closet themselves for WHAT IS A R/UDAT? intensive sessions; they call on local resource people as needed, in A RegionaI/Urban Design Assistance order to define problems, establish Team CR/UDAT) is a service of the strategies and develop and Urban Planning and Design Committee synthesize courses of action. of the National American Institute Then, the team's recommendations of Architects. The purpose of the are presented to the community at a program is to assist American public meeting. cities and towns to answer questions about urban planning and design, in order to help civic, social, and business leaders effectively plan short and long term goals for their communities.

The members of the RegionaI/Urban Design Assistance Team are experts in architecture and urban design, economics and finance, political and social sciences, growth management, and public policy. Team members are unpaid volunteers, recruited from all over the nation.

For a decade the AIA has been sending these assistance teams to Ame.rican communities. Cities with a combined population of more than 10 million citizens have been served and professional services valued in excess of $2 million have been donated.

The team chairman visits the community well in advance of the R/UDAT to meet with its citizens, leaders, planning officials, and the AIA chapter. A packet of maps, statistics,and information is. prepared, together with a statement of the problems to be confronted, and is sent to each team member to study.

The team's visit is four days and is coordinated by the local AIA chapter. The team is assisted by professionals and students from the region.

2 inordinate number of congregate and living arrangements, a negative perception of the EXECUTIVE SUMMARY community by other citizen) in Jacksonvilleor a common perception of the neighborhood as the Jacksonville Bowey, a housing stock This report creates a challenging which very seldom meets minimum vision for the future of Springfield standards, insufficient public and a provocative agenda for resources, unavailable private accomplishing the reccommenda t i on s financing, absentee landlords, contained herein. It presents an nonconforming commercial uses in image of a vital and revitalized residential areas, and marginal and Historic Springfield comprised of disruptive commercial uses on major four distinctive, yet inter-related streets were identified. villages that have restored their precious architectural heritage. From this intensive examination of Villages which created an the strengths and liabilities of environment of street life and civic Springfield, the team developed a amenities which proclaim Historic set of critical issues which Springfield as a place for quality corresponded to the problems and in-city living. An Historic needs to be addressed through a Springfield which reinforces the comprehensive general strategy which inextricable physical, cultural and brings together solutions for economical links to the emerging dealing with crime, disorganized renaissance of the Central Business community advocacy, housing, District. An uniquely diverse congregte care facilities, inner-city community which welcomes environmental enhancement, urban and attracts a wide diversity of design, historic preservation; thus, residents. providing a framework for conserted act ion. In developing an agenda to realize this vision, an intensive Particular activi ties crucial to the investigation of contemporary success of the plan were analyzed in Springfield was carried out through greater depth. A housing action interviews, neighborhood program was outlined; and an waIk-throughs and analysis of the Historic Preservation district copious documentation available on designation program proposed. A this area. Strengths such as the Parks and Recreation analysis is unique housing stock, easy access to included, as well as, a streetscape downtown, excellent internal action program and an in-depth circulation, conveniently accessible discussion of urban design local schools were identified. These considerations. Traffic and strengths taken together reinforced transportation considertions were the team's feeling that something examined. Social displacement and significant could be accomplished action program; an analysis of here, feeling that something could congregate facilities and proposals be accomplished here. However, the to deal with the problem they pose; current problems and weaknesses of and an analysis of the crime problem Springfield could not be ignored. and affirmative proposals to deal Liabilities, such as a high crime with that issue are also offered. In rates general impoverishment of a addition, an energy analysis is large proportion of the residents of discussed along with an outline for the area, the presence of an organizing for action through the development of a community council confronted must confound the cynics, and the establishment of an Historic to develop a record of achievement Springfield local redevelopment that surpass even their most corporation to focus private and extravagant expectations. The R/UDAT public energies and resources. team is convinced that the people of Springfield and the leadership of In the summary, the analyses themes, the City of Jacksonville has the recommendations for immediate potential staying power and vision actions proposed herein, are only to realize a bright and vibrant the first in what needs to become a future for Historic Springfield. all consuming passion of a dedicated commun i ty. The commun ity willing to endure and persevere, accepting the realities with which they are

4 The City of Jacksonville, Florida

5 - A community well aware of the historical significance of WHAT WE FOUND Springfield. -An identifiable group of con­ cerned citizens residing in the community who see the After two days of lengthy pub­ need for action. lic discussions with large groups - Acknowledgement by elected pub­ of residents, public officials and lic officials of the need to businesses, complemented by inten­ support community goals and sive one on one interviews with objectives. critical decision makers,and inter­ ested parties; plus extensive site - Willingness of appointed pub­ visits via foot, bus, and helicopter lic officials with critical and intensive review of the copious operating responsibilities, planning data and historical mater­ to assist in the planning ials available, the team set about and implementation of public the task of digesting all the in- policies impacting this formation, suggestions and proposals area. presented to it. This analytical ef - General awareness by public fort gave rise to the following decision-makers that the via­ findings which have guided the bility and promise of the study. For planning purposes, revitalized downtown will the problems and opportunities of be dependent on the future the Springfield area have been out­ viability of Springfield. lined in the form of "assets" and - Recent, noticeable apprecia­ "strengths" on one side of the tion in residential property equation, and. "constraints" and values throughout the Spring­ "liabilities" on the other side: field area but still rela­ tively low enough to be at­ tractive investment and liv­ ing opportunity. Assets and Strengths - Current occupancy and suit­ ability for continued use and renovation of the com­ - Unique historic housing stock. mercial properties along - Large supply of existing and Ma in at Eight streets. potentially available af­ - Continued expansion and in­ fordable housing stock. vestment of the hospital and - High quality street landscape health facilities uses on and urban forestation. the periphery of the neigh­ - Proximity to the downtown. borhood for health care and - Proximity to major job re­ employment opportunities sources. with potential for health - Easy availability of public care employees to also be­ transportation. come neighborhood residents. - Good neighborhood based school - Organization and perseverance facilities (K - 8) and prox­ of local groups such as imity to secondary and Greater Springfield Business post secondary programss Association, Springfield - Numerous small sites available Neighborhood Housing Ser­ for new residential, commer­ vices, Springfield Preserva­ cial or open space develop­ tion and Restoration and others. ment.

6 - Existing layout of service alleys - A larger allocation of low- that provide an opportunity rent subsidized housing ten­ to concentrate utilities, ants than other areas of t-rash pick-up, and access city. to off-street parking. - Inadequate financing available for home mortgages and re­ habilitation loans for both Liabilities and Constraints owner-occupied and muIti- family dwellings (suspect de facto red-lining). - Aging condition , inappropri- - Insufficient public resources ate conversions, and poor directed at maintenance of maintenance of historic hous­ infrastructure, sanitation, ing stock (85% substandard). and other public services. - Age and poor condition of street - Inadequate levels of lighting trees and plantings, (Due in residential neighborhoods. in part to two major recent - Inequitable enforcement of freezes.) city statutes dealing with - Incompatibility of commercial zoning and building code and residential uses. v i oI at ions. - Antiquated and visually dis­ - Large numbers of absentee owners tracting overhead utility who fail to maintain or installations. manage their properties. - Residents with limited economic - Under ut iIizat ion of existing means for self-help. housing stock during a period - Lack of local, indigenous in­ when a critical affordable stitutions with resources housing need exists. available for investment. - Insensitive restoration ef­ - Poor maintenance of sidewalks forts by public bodies, in­ and street right-of-ways. stitutions, and government - Poor general public perception loan r equ i r emen t s. of area, particularly by - Lack of cultural and organized residents outside the commu­ recreational opportunities. nity. - Underdeveloped community or­ — Large population of tow income ganization structures and and single parent female participation. headed households and unem- pIoymen t. - Perceived as a high-crime area. - Lar-ge transient and homeless popu I a t ion. - Unusually high concentration of congregate care facili­ ties dealing with a variety of social and physical path­ ologies. - High concentration of commer­ cial establishments that do not provide adequate goods and services to the local commu n i t y. damaged and, otherwise, de­ clining or inappropriate street VISION trees with younger , hardier spe­ cies. These villages which will conform in location to the four Profound problems are associa­ existing quadrants resulting from ted with the Springfield neighbor­ the north-south and east-west axis hood. The solutions to these prob­ of Main.and Eighth Streets, will be lems involve highly sophisticated physically and visually intercon­ and complex i n fe,r a

8 HISTORIC 5PR»N^,^R2*2S

9 lighting, complement ing and coor­ dinated with the existing overhead street lighting together with special CRITICAL ISSUES sidewalk paving will articulate these corridors. Each village will What follows are a series of reflect a special character, depen­ "issues" that need to be addressed ding on the nature of their inter­ by strategy and methods. nal and adjacent land uses, i.e. the northeast quadrant may reflect the adjacent industrial or educa­ Enhancement of community tional uses in that area; the south­ character . west may reflect its proximity to Conservation of historic mean- Klutho Park and the medical i ng. facilities to the west; the south­ Rehabilitation of housing east may reflect the presence of stock. the senior citizens housing and the Restoring a more equitable recently relocated housing ser­ balance between absentee vices, while the northwest may re­ landlords, resident land­ flect the presence of the religious lords, and home owners. institutions. The existing local Rectifying zoning incompati­ schools will have been renovated bilities and land use incon­ and additional open space recrea­ sistency. tional facilities provided through Strengthening stability, di­ clearance or the relocation of im­ versity, and quality of com­ portant historical houses. No new mercial businesses serving congrega-te care facilities will the neighbor hood. have been established and those Reconciling community groups present will be characterized by and organizations, diverging adequate programming and effective goals and objectives and de­ supervision. Allocation of low- veloping community organiza­ income subsidized residential units tions and other capabili­ will have been stabilized. Social ties. services appropriate to the speci­ Introduction of appropriate fic needs of residents are present. energy conservation mea­ An active positive sense of com­ sures. munity is fostered by a well-orga­ Attracting substantial public nized umbrella community organiza­ and private investment and tion. Through active outreach encouraging joint develop­ and activities at the neighborhood, ment initiatives. village, and block level, a greater Preservation and reconstitu- sense of collective responsibility tion of streetscape-I and- for the community and neighbors scape . has been achieved. More equitable administration and application and enforce­ ment of local public respon­ sibilities un the forms of code, zoning, sanitation and health requirements, etc.... Improving the financial re­ sources available for: - Financing for home mort­ gages . - Financing for rehabilita­ tion loans.

10 Capital for small busi­ ness inves tmen t. Financing for repair and maintenance of infra­ STRATEGIES structure. Financing for the acqui­ sition and elimination I n or de r to understand the or conversion of non­ p r ac t i ca Ii ty of t he future vision conforming uses. for H i s tor i c Sp r ngfieldi , a s t rategy Capital for assemblage of needs to be deveI oped to achieve larger development these des i r ed resuIts . By the si t es . na t u re of the u r ba n p r obI ems More active involvement p r ese n t ed by Sp r ingfie'ld , a.large of institutions in the- numbe r of sophist i ca ted tools will neighborhood (F.J.C., need to b e empIoy ed. Howeve r, YWCA, schools, churches) be f or e ex p I i c i t I ydefinin g the and more active support na t u re of these t ools, an overall of these institutions by s t r a teg y should b e genera My ou t I i ned the neighbor hood. so t ha t t he app I icatio n of specific Preservation of attractive tools at app rop r iat e times in the and abundant parks and deve I opme n t can b e understood within recreation opportunities, a s t ra teg i c f r amework . This section etc. of th e re port out lines three stra- t eg i c pha ses , spa nning a period of years des c r i b i ng an accelerated and expan ding r es tor a tion and redevelop- men t prog ram.

The first phase of the strategy involves the coalescing of concerned citizens and the generation of city- wid« focus on Springfield.

The second phase concentrates on initiating new programs and modi­ fying existing ones.

The third phase projects a mature development phase where many of the most pervasive physical and social problems have specific programs directed at ameliorating these conditions.

11 PHASE I ORGANIZATION FOR DEVELOPMENT I. Organize for action. Reconstitute or create again an Historic Springfield Council to act as an envelope entity to allow groups like GSBA, SNHS, SPAR church organizations and other neighborhood cultural organizations ' to focus on a broad agenda for the area and to cooperate and work with HUD to incorporate, fund and staff an Historic Springfield Redevelopment Corporation which will act as the technical coordinating arm for all city services, building and rehab programs, capital improvements, code enforcement referrals, permit referrals, implementation of high-risk mortgage pool programs, negotiations with private redevelopers and all other aspects concerning the physical and social environment of Historic Springfield, such that the redvelopment corporation will perform the operation of a one-stop service for all 'parties concerned.

PLANNING I. Through detailed staff from HUD, volunteer staff from the neighborhood and consultants as required, initiate and commence the development of a thorough staged plan to realize the goals of creating an Historic Springfield. Identify specific development projects.

TRAFFIC AND TRANSPORTATION I. Put an immediate moratorium on any traffic or transportation adjustments or plan improvements, being presently considered.

12 PHASE II PHASE III II. Become the principal source of III. Become the responsible agent guidance and information for all for coordinating and maintaining a aspects of phase two of this continuing revita I ization program st rategy. for all aspects of the strategy in stage three.

II. Guide first-stage development III. Continue operations and revise projects and begin process of overall plan as called for. expanding into second and third phase areas.

II. Review all proposed or planned III. Continue implementation of for improvements for compliance with modified street patterns and refine redevelopment plan or area as operations as needed. developed in this document. Implement modification of local residential streets and arterials as called for in the plan for first phase activities.

13 PHASE I HISTORIC DISTRICT I. Draft and pass a local historic district ordinance and provide resources and personnel to organize and staff the review function.

CAPITAL IMPROVEMENTS I. Review current capital improvement program and obtain high priority targeting for Historic Springfield in the next capital imp r ovmen t plan.

STREETSCAPE I. Begin immediately to implement a program of street tree care and the replanting and replacement of damaged plant materials. Plan for the phasing of a streetscape program as called for in the urban design eIemen t.

CODE ENFORCEMENT I. Appoint and make operational a community code enforcement task foce made up of HUO staff, local concerned residents and property owners. The task force will review procedures of the code enforcement division and advise on methods to make enforcement more equitable and more responsive. A subcommittee will be formed to develop plans for a land banking entity to deal with non-conforming uses within the district and to hold land for orderly redevelopment.

14 PHASE II PHASE III II. Implement the ordinance, III. Monitor and refine ordinance appoint a review board and begin and procedures of review board and process of monitoring age and consolidate guidelines into condition of current historic stock statutory language for the and enforce minimum maintenance consolidated historic zoning standards. district.

II. Capture arbitrage of city-wide III. Set up a monitoring system to capital improvement bond issue for assure continued maintenance of targeted use for extraordinary public improvements in the area. capital improvements required in the Begin immediately to plan for the plan for the area including street expansion of the tax increment rep Panting, special pedestrian funding district immediately to the surfacing and new lighting program south of Springfield and work with for the residential districts. the ODA to schedule tax increment Implement the First Village and Main revenue improvements for Street capital improvements program Springfield's First Village and according to Phase DevIopment PI an. subsequent revenue dedications in furtherance of the total plan for Springfield over a period of years.

II. Implement a phased program of III. Develop a long-term new street trees along commercial maintenance program and citizen avenues and an intensified care and involvement review process. maintenance program in residential areas.

III. Draft and implement a new II. Imp Iemen t an d make operational consolidated preservation zoning concentrated code enforcemen t, ordinance for the district and mod ified and revi ewed by community monitor code enforcement and zoning concerns and need s. ImpIemen t the compliance through the code non-profit privat e land bank trust enforcement task force or other to purchase non-c onformi ng appropriate community organizations properties and la nds needed for future developmen t with seed money provided by HUD. Develop a . subcommitte to wo rk with zoning staff and histori c preservation revi ew board to c onsolidate zoning and historic pres ervation standards into a single con sol i da t ed preservation zoni ng district.

15 PHASE I LOW INCOME HOUSING REHAB t. Set up an immediate process whereby citizens and housing staff of HUD review ail new Section 8 and assisted housing program support proposed for the area.

HISTORIC REHAB

I. Arrange for an immediate memorandum of understanding between the State Historic Preservation Office, HUD and SPAR aimed at moderating and expediting rehab reviews on historically significant sites and buildings, particularly as they pertain to low-rental housing.

PUBLIC FINANCING

PRIVATE FINANCING I. Organize a Savings and Loan and Mortgage Lender leveraging program in the Springfield neighborhood. Consolidate local checking and savings and offer institutions willing to make mortgage loans and rehab loans in the area of first option on neighborhood deposit. Develop with the City a publicly guaranteed, private placement, high-risk mortgage pool with local lending institutions.

16 PHASE I CONGREGATE HOUSING I. Obtain immediate agreement through state HRS and local HUD to discontinue the placement and locating of any further congregate housing in the Spr ingf ield area.

POLICE I. Formalize an adhoc neighborhood crime prevention program to deal with prostitution, drug addiction and public inebriation. This would involve neighborhood groups working with the police department on a day-to-day basis with the formation, under police supervision, of a neighborhood watch program on model blocks.

SANITATION I. Establish block clean-up and maintenance committees to do periodic sweep-ups or maintenance of green strips between sidewalk and street. Work with the Department of Sanitation to improve- residents ability for self-help in this arena and provide manpower and materials when necessary to assist in areas unable to assist themselves.

ENERGY I. Implement a weatherization program for low and moderate income and elderly home owners. Make energy conservation and installations of central heating a component of the ongoing home improvement loan program.

IMAGE I. Establish a public relations program to attract greater interest and awareness of the virtues of Springfield.

18 PHASE II PHASE III II. Through HRS and HUD begin III. Continued operations of concentrated inspections and license remaining congregate organizations review of all currently, existing and implement formal attrition congregate operations to bring all policy with HRS, such that up to the highest possible community congregate homes which go out of standards. business, are not replaced in the commun i t y.

II. Duplicate the successful III. View the villages as a place neighborhood watch program from in which cooperation between model blocks to entire village residents and police can be carried areas. Encourage local citizens to out in a coordinated manner, which become involved as community service can serve as a laboratory for the officers with the police department. rest of the city.

II. Apply wastewater management III. Cooperate with potentia I planning principles to the Hogan's cogeneration energy project Creek area to avoid flooding and sponsored by local hospitals amd unchanneIized runoff. incorporate solid waste recovery sys t ems.

It. Investigate the feasibility of III. Implement a cogeneration construction a cogeneration/district system if feasible. heating and cooling system and solid waste resource recovery plant serving Springfield and its adjacent neighboring institutions.

II. Develop and implement a III. Create a program of events and comprehensive marketing campaign to attractions which will bring large attract new residents, commercial numbers of non-residents to operations and businesses to the Historical Springfield on a regular area. basis.

19 PHASE II PHASE III II. Aggressively Approach the U.S. III. Locate and Set Aside Department of Housing and Urban modernization funds for existing Development for a Section 8, low-income rental properties and Moderate Rehab Set Aside for this provide intensive social service and area. In addition, plan for a employment counselling. general bond issue to support low-income rental rehabs throughout the city.

II. Consolidate and unify all rehab III. Monitor on-going expedited review procedures including plan rehab processes. Monitor, amend and review permits, inspections, and refine as new circumstances dictate. final approvals for all types of rehabs within the district.

II. Formally amend by statute the III. Realize first revenues from TIF boundaries and provide for the increments and allocate according to new local development corporations development plan for phased governance over this expanded area. response.

II. Implement high-risk mortgage III. Expand the reach of the pool by pledging million dollar mortgage pool to take into account guaranteed escrow account from City larger multi-family rentals and CDBG or general operating funds. small business commercial properties Target first loans to owner-occupied needing modernization capital. rental or single owner-occupied propert ies.

17 community purpose to those policy makers when they evaluate public issues that COMMUNITY ORGANIZATION affect the neighborhood popuI a t i on.

I. Recognition of need The team proposes that a Community Council of elected to Resolving Community representatives be created Disorganization either through a charter revision by the existing Due to the abundance- of special Springfield Community Council interest organizations and or as a separate action by a resultant duplication of efforts, newly-formed organizing the community has greatly suffered group. Representatives to in realizing results from its the Council would be elected efforts. Confusion has been created by residents, business in the minds of political leaders owners, and employees and as to- what community priorities are property owners of the and who really represents the broad district. They would be interests of Springfield. elected for staggered two-year t e rms. II. Recognizing the need for an "Unbrella Organization" within the community The Board would be representative of the various A Community Council that mandates special interest and the generic representation of the geographic aspects of the major special interest within the area. It is recommended that community is imperative. It will the board consist of provide an avenue for open and twenty-three members as clear dialogue within the community foilows: as well as a means of expediting community-relations issues when 1. Residents: (12 positions] working with public policy makers. Representatives will be III. Creating the coordinating nominated from each of community organization, The the four "village Springfield Community Council quadrants" and 3 representatives will be A. As an initial step in the elected by the eligible formation of the community voters f r om each organization, The quadrant. Each "village" Springfield Community will have two Council, one of the first owner-occupant steps undertaken must be an representatives and one efficient system of tenant occupant. processing information, input from the community released to public policy 2. Business: (2 positions) makers should flow through One position for a the Council. It is extremely business owner, operator important to have this kind or manager and one of coordination available in position for a business order to demonstrate unity of empIoyee.

20 Student: (1 position) 5 Community CounciI Committee Structure: Representative will be either a high school or Like all multifaceted college student residing organizations, there is a in the area. need to have some division of labor for issue analyis and discussion. The At Large: (7 positions) Community Council must There are seven positions divide itself into a in this category, to be series of committees in appointed by the sixteen to oversee commun i ty elected members of the concerns that tend to Council previously generate the greatest mentioned. A two/thirds concern and therfore majority vote would be require the greatest required to elect these amount of work. The at-large members, who officers (Cha i r , would represent areas of Vice-Chair, Treasurer, and interest including, but Secretary) along with the not limited to, health Chairmen of the Operating care, religion, Committees will make up education, financial, and the Executive Committee social services. The necessary for the ongoing philosophy behind this operation of the full at-large category is to Council. The Executive allow the elected Committee will meet at representatives of the least once prior to each community council to board meetings and will complement and supplement set the agenda for those the interests of the mee t i ngs . In addition, community. Resident the Executive Committee members of the Council, will act as the policy and through the appointment planning committee for the process can' draw upon the Council in areas of expertise of individuals conce r n that do not that reflect their necessarily fit in any one contempory concerns or subcomm i 11 ee. issues that relate to specific neighborhood There is a need for efforts. Examples might several housekeeping be the further committees to keep the development of the health Council solvent and care opera ting efficiently. complex to the west; the They would include: a intensification of the personnel committee to deal industrial opportunities with the hiring and disposition for increase employment of staff, a budget/finance and to the northeast, or to fund-raising committee the growing interest in concerned with operating the dowtown and the need budgets, grant writing and to connect the downtown funding aspects relating to the planning' with the f i nanc i a I liability of the neighborhood on the organization. south.

21 There is also a need for a decorum for committee input and public relations and action . Each committee will communications committee that be responsible for at least one will be responsible for making meeting per month and the sure that all meetings of both action or results of those the full Couc i I and meetings are to be mechanically subcommittees are publicly recorded and documented. noticed and that appropriate Summaries with specific newsletters, status reports, indication of actions taken, and other documented actions of recommendations and attendence the Council are made aval table will be provided to the full to the general public, elected Council. The committee is officials and the media. authorized to provide public notice to the community prior Finally, there is a need for to hearings and to take ongoing commitee work in testimony from the general approximately four areas of public. Each comm i t t ee is on-going interest. These responsible for encouraging comm ittees parallel public participation in the Jacksonville City Council wo r k , o, f the c omm ittee through committee structure in order to the addition of non-voting align the commitee members with members. Encouraging public the appropriate chain of participation is a way of command. This will insure that insuring future interest from when issues are discussed by individuals who might at some one subcommittee and referred time in the future be up to the full council for interested in running for an recommendation to the elected position on the Jacksonville city council, Counc i I . members will be knowledgeable as to the elected officials and Lastly, the Council will department heads they will have maintain an open policy on to deal with when the council's creating special task forces to proposals are considered by the delve i,nto issues that have a Jacksonville City Council. short term duration or have a specific nature that falls the Standing subcommittees should normal scope of the standing include arts and recreation, committees. Task forces will public safety and service, be created by the full council urban affairs (zoning and land and monitored by the Executive use) and design review and Commi 11 ee. enforcement. Each committee will be assigned no less.than IV. Conclusion three memebers of the full council. The chairs of these It is clear to the team that committees (which will be thiskind of commun i t y selected by the Executive structure (i.e., The Committee) will be responsible Springfield ^Community for calling the meetings and Council) can unify existing maintaining the necessary special interests without jeopardizing the existence of specialists community organizations already in place. It is impor t an t to

22 keep that balance so that the special interest organizations in the district can continue to work toward their original goals and provide that important decentralization of services to maximize effectiveness and achievement without diverting attention from larger policy issues affecting the entire commun i t y .

Until such time as the city designates the Springfield neighborhood as.a redevelopment area, the Commun ity Council will operate as the private, not-for-profit, unified voice of the community and will maintain open and ongoing communications with the city government. When this redevelopment designation occurs (which we expect to see take place within the year), the Community Council should be designated by the city as the Project Area Committee CPAC) for the redevelopment area. This will facilitate the implementation of projects in the short term and will add credibility to the further unification of the community through the utilization of an a Iready-funct ionary organization. This kind of follow-up support by the city is crucial to the long term success of the redevelopment of Springfield and the maintenance of constantly efficient and high quality participation by the residents, business owners and employees and special interest groups making up the Springfield community.

23 SPRINGFIELD COMMUNITY COUNCIL 23 MEMBERS Elected annually* Staggered Terms- 2 Years Each

*Elactad by raaldanta, bualnaaa ewniri, amployaaa. rtaJdant atudanta, and proparty ownara within tha dlatrlct. Raaldant council mambara alactad by, Individual quad.

\\ _ NW QUAP NE QUAD RESIDENTS 2 Owntr 2 Ownar Occupants Occupants 1 Tenant I 1 Tana nt

SW QUAP SE QUAD

2^0wnar Occupanta

o UJ H- O UJ _J UJ

BUSINESS STUDENT

1 Ownar 1 High School or, Collaga Studsiit 1 Oparator/managar 1 Employaa (raaldant of dlatrlct)

* o AT-LARGE UJ H 7 Mambara z To ba appelntad by a/3 majority if alactad board mambara' 5 rapraaantlng araaa of lnt*ra>at Q. inoludlni but not llmltod to: Q. Itoalth eara. rollgloua,adulation, < financing,

24 PUBLIC INPUT PROCEDURE

Issue

XZ Full Council (23 Members)

5Z Committee (Chair, 2-Members & Non-Voting)

Pros Cons

Recommended Action

XZ Full Council (Accepts/Rejects By Majority Vote)

25 SPRINGFIELD COMMUNITY COUNCIL

Full Council (23 Members Including Officers: Chair, Vice-Chair, Sec, Treas.)

Executive Committee Policy & Planning (Officers, Committee Chairs)

Personnel Budget/Finance Membership Fund Raising

Public Relations & Communications

Public Safety Arts & Recreation, & Service

Urban Affairs |_ Design Review (Zoning, Use) & Enforcement

Tasks Forces As Needed

26 Tools and Techniques

HISTORIC PRESERVATION Historic Preservation Historic District Ordinance

As indicated by the Historic - Jacksonville Landmarks Commission Properties Survey of Springfield in conjunction with Community input dated September 1985 and prepared will draft an historic district by Historic Property associates of ordinance that includes: St. Augustine, Springfield has one of the highest concentrations ofhistoric resources within a Physical description of geographic district anywhere in district. the State of Florida. For this reason alone, the Bureau of A. A general statement of Historic Preseveration contracted the significance of the for the preparations of this study district to the City of which will result in the nomination Jacksonvi I Ie. of. this district for placement on the National Register of Historic B. A general statement of pla'ces. Building on this materials, styles, historical documentation, a scale, and other design proposal to designate Springfield eIemen t s wh i ch as a.local historic district contribute to the (Jacksonville's oldest district) overall character should move simultaneously with the of the district. National Register designation thru the review and approval process of C. Boundaries: Provide the city government. The proposal legal description legislation should include of area and establish provisions for the initial boundaries. Prepare description and designation of the map to visually show district. It should also include impac t. language for ongoing administrative, design review, D. Individual buildings or incentives, restrictions, and due structures to be shown process as it relates to on map of district. enforcement. The city Landmarks Commission should bring forth the E. Di fferent iate between draft Ordinance and should consult pivotal and outstanding professionals who have expertice in historic properties and developing Historic district other contributing or Ordinances.ftThe National Trust for secondary properties. Historic Preservation should be contacted for input. F. Significant streetscapes and open spaces.

27 G. Significant vistas and one urban design/planner. v i ewpo i n t s . D . To meet at least on c e ^a .„ H. Outstanding urban design month for the review of features. any and all applications, permits, licenses, etc. I . H i s t or i ca>r ma rkers or places. E. To approve or, deny all applications that wouId J. Identify non-historic mat er i a I I y affect the properties eligible for appearance of the district potent i a I demo I i t i on or would adversely affect and/or new construction. the historic character of the district as described K. Identify intrusionary or in the ordinance. non^-con forming properties that should be phased out F . To place applications, for rep l-acemen-t by referred from appropreate compa t i bIe new- departments within one week cons t rue tion. of filing date, on agenda for review by the board L. Describe- incompatible or within 3 0 days from date of ; non-con f o rm i ng uses. receipt . -^£•

Establishment of an Historic G. Decisions of board may Rev i ew Board be appealed to Landmarks Commission on basis of the A. A board of five to seven record. Further appeals may individual's who have had be taken to City Council, demonstrated experience in courts or a hearing historic preservation and examiner, as deemed have intimate knowledge appropr iate. of the history of the district. H. Promulgate standard operating procedures for the review and B. Appointed by the Historic processing of applications. Landmarks Commission for two-year staggered terms. I. Develop guidelines for review Appointees may be members of applications, including of the Landmarks Commission but not limited to, color or citizens who otherwise palette, materials selection, meet criteria. landscaping, appropriate detailing, etc.

J. All meetings will require a C. Board should include quorum which shall consist of at least two architects, a simple majority. Meetings one landscape architect and will be open to the public, be adequately noticed and

28 comply with the provisions upon appeal to the of Florida's Sunshine law. Landmarks Commissions or beyond K. All meetings will be held within, the boundaries of the IV. Minimum Maintenance Provisions district. A. In order to avoid III. Powers of the Board demolition by neglect, the Review Board, in A. Deny requests for conjunction with demo I i t i on of, or appropriate code enforce­ significant alteration ment departments, will to designated historic notify property owners properties, spaces, etc. whose property indicates evidence of blight and B. Deny requests for require the repair of non-conforming new these conditions within a construction or specified period of time. non-conforming additions Demolition of blighted to present structures. structures is not considered mitigation. C. Approve compatible new CSeveral examples of construction or additions. comparable legislation exist in Seattle, San D. Approve restorations that Diego and New Orleans. comply with guidelines. Penalties - Due Process E. Deny inappropriate or non-conforming uses A. Fines - $ as described by ordinance. B. Incarceration - time F. Review for approval or per i od . denial all signing, painting, texturing, C. Removal of construction. cleaning, and major maintenance of public and D. Salvage rights. private properties and spaces . E. Liquidated damages, etc.

H. All applications for projects public or private I. Incentives must be forwarded by the Historic Review Board A. Liberal Building Code within one week of the date interpretat ions. in which the application is made. Historic Review B. Technical assistance to Board decision supercede appI i can t s . all other revi ews and approvals unless overturned C. A review process that is

29 timely and efficient. IX. First Year Rev i ew Continuations to be granted as necessary. It is acknowledged that this proposed ordinance is restrictive Developing special beyond normal zoning or building programs for low interest code enforcement standards loans, tax relief, presently existing in the city. conditional use permits, However, due to the extremely etc. blighted condition of the neighborhood, the irreplaceable Other incentives that historic resources and the short wouId assist the time period available to reverse applicant who sensitively the deterioration, the team feels restores or develops it is better to err on the side of compatible designs within excess in order to protect the the district. public interest.

VI I .Staf f i ng We recommend that one year from the date of passage of the historic At least one staff person district ordinance a public review shall be provided to assist be conducted by the Public Affairs the Review Board in the Committee of the City Council. The preparation and conduct of review should include progress to application reviews. All date, proposed modification(s) to minutes, agendas and the ordinance, and other official actions will be contributing evidence that would written and mechanica demonstrate the success of this recorded. ef for t .

B. The staff will be hired by the Landmarks Commission and will report to the Chairperson of the Comm ission or the designated Chairperson of the Review Board.

VII. Budget - Mayors Office

A. Staf f - FuI I t ime

B. Operating supplies.

C. Postage.

D. Consultant Services.

E. Compensation for travel for membe r s.

30 North

Proposed Springfield Historic District

This boundry map was provided by the Historic Properties Survey-September 1986.

Funds and Services were provided by: Trie Bureau of Historic Preservation

31 well programmed and well operated and those that are not. Clients are deprived of a valuable source CONGREGATE CARE of support and advocacy as residents are increasingly frustrated by a lack of responsiveness to their concerns. Congregate care facilities CACLF's, group homes, halfway houses, etc.) The social services system in are clearly over-concentrated in Springfield appears to be created the Springfield neighborhood. to meet needs from outside the Including the Job Corps Training community rather than meeting the Center and unlicensed shelter needs of the community itself. programs, thirty-four (34) such facilities have been identified in this one square mile area. While congregate care facilities are an asset to the total social service system, with few exceptions Approximately 50% of the congregate only a limited number of clients care facilities licensed and are originally from the community. utilized by the Department of Outpatient services are not a part Health and Rehabilitative Services of congregate care programs. (HRS) for the five county district are reported to be in the Springfield neighborhood. The community, which accepts and works to accommodate area-wide The failure of any representative services, particularly those that of HRS to participate as invited are not welcome in other and promised in the R/UDAT exercise communities, is entitled to, and has handicapped the team in should receive credit, which is determining the precise extent of officially recognized by state and this problem and the degree of HRS local government and other funders involvement and effort. This for such a contribution. Such failure to participate, credits would create "Social" unfortunately, reinforces the "lOU's" that recognize this community's negative perception of community's contribution to the HRS as an uncaring bureaucracy total system. These "lOU's" should which has "dumped" a problem allow a community to receive population into their community and priority consideration in the then abandoned both the allocation of new or reallocation neighborhood and the clients. of existing resources.

Since the community holds the Residents have expressed an uncharacteristic degree of Social IOU, it should have a tolerance, compassion and concern significant voice in how the IOU is for the people served in these expended on behalf of needs it programs. Such support is eroded, perceives.as its priorities. however, by their frustration with the unresponsiveness to their The social service system in concerns about licensing, Springfield does not appear we I I- supervision and programming for developed or coordinated on a these facilities. neighborhood basis in spite of the existence of a number of different The community is also suffi­ populations with obvious service ciently knowledgeable to discern needs--youth , elderly, unemployed, between those facilities which are single parent households, etc. The

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33 absence or lack of even so basic a it to leverage a more competitive tool as a neighborhood oriented posture in the possible service inventory suggests that if reallocation of existing funds or such a resource exists, it is not the improvement of neighborhood easily available to the general access to services. public or community groups. The physical and social renewal of A quick and admittedly superficial this neighborhood are so survey by the team in the time inextricably linked that the available to it indicates a number failure to simultaneously pursue of social service assets located in both a social and physical agenda the neighborhood. These include: will seriously impede, if not doom, a senior center, a community the community's renewal efforts to recreation center, Boys Club, and f a i lure. The Bridge, which is a youth health center. Strategies Services on the immediate periphery include: the Urban League, health and mental health services and a 1. Declare a moratorium on facility for handicapped children. establishment of new congregate How these services specifically relate to the Springfield community is beyond the scope of this study but they are obviously critical to community social service needs.

The high proportion of single parent households suggests, for example, a degree of need for child care services which is not apparent in the physical survey of the ne i ghborhood.

To effectively implement the concept of social "lOU's"; service providers and community members should unite in an effort to assess community human services and resources.

A determination of what additional services are needed or where improved access is desireable can be developed for a social renewal agenda. Such a process in the community could be facilitated by JCCI or the United Way. Working through the propsed Springfield Commun ity Council, various allocating bodies such as the United Way, HRS, and the City can then be approached, to trade the "Social IOU" for new funds, or use

34 2. Declare a moratorium on the 0. Develop and maintain establishment of new social communication with service agencies (public, concerned community groups. voluntary or proprietory) in the Springfield neighborhood HRS should establish an ongoing which cannot positively internal district work group at document that their services the program office level to will primarily meet coordinate all program develop­ needs of the existing ment, operating policies and population and not attract placement practices impacting significant additional community based congregate care clientele from outside facilities (Children, Youth, the neighbor hood . and Families Office, Alcohol, Drug Abuse and Mental Health 3. Establish a policy that allows Office, etc.). the current concentration of congregate care facilities The community, HRS, and opera­ to be reduced by attrition tors of congregate care through non-repIacement of facilities should jointly existing facilities which may develop a "Good Neighbor lose their license or other­ Policy" which clearly sets wise cease operation. Such forth agreed upon responsibili­ a policy should not interfere ties and commitments of each with the normal transfer of party for such issues as main­ property. tenance, operation, client supervision, etc. Such a 4. Improve HRS licensing and policy would be enforced supervision of licensed through the maintenance of fac i I i t i es. zoning variances, facility licensing or client p I acernen t . Commitment to such a policy 5. Improve HRS program standards should also be a requirement in for patient care and any situation where new activities. operators assume responsibili- for already existing congregate Tools andTechniques care facilities.

Develop through joint efforts 1. HRS should assign a community of third parties CJCCI. client coordinator with a significant or program advocacy groups) commitment of time and establ ished confI ict prevent- authority, to work with tion and resolution mechanisms community groups and indivuals between operators, neighbors, to: and neighborhood groups. A. Resolve conflicts. 5. EstabI i sh a work i ng relationship with the B. Assist in program develop­ HRS District Adv i sory ment either directly or Committee and the District through the utilization of Human Rights Advoccy Committee. other HRS resources.

C. Report possible operating violations to the HRS Licensing Unit staff.

35 6. HUD must make a commitment at highest policy and management levels to active and vigorous response to resident complaints of new, unsanctioned operations in the neighborhood, whether or not HRS is responsible for licensing the activity. Quest­ ions of possi. ble zoning variances or code compI i an ce should be vigorously investi­ gated in a timely and,if need be, imaginative or non-tradi­ tional fashion.

7. HUD should be the.primary, agency for-maintaining the moratorium on new .programs, and HRS should have primary respon­ sibility for improving the operations of existing facili­ ties- Bllll

8. Community groups orthe pro­ posed Springfield Community Council should establish an ongoing organizational entity or subentity to be responsible for :

A. CompI iance from the commu- nity perspective, with the IPs mo r a t o r i urn.

B. Representation of the neighborhood in cooperative activities with public regulatory and placement agencies and provider groups .

C. Provide a focal point for the expression of indivi­ dual resident questions, concerns and complaints.

D. Conduct regularly sche­ duled meetins with the legislative delegation.

E. Conduct regularly scheduled meetings with locally elected officials. different populations should not be mistaken for an unlimited, benign willingness to submit DISPLACEMENT unquestioningIy to whatever portion of social problems others wish to thrust upon it. The failure to The Springfield neighborhood recognize the limits of provides a unique opportunity to Springfield's tolerance, physical avoid displacement problems which and psychological, can be reasonably often accompany changes such as anticipated to result in conflict, those now occurring and further reduced availability of needed encouraged by this plan. social service capacities and loss of a unique urban laboratory. It is essential to recognize that the The relatively small size of the social and political benefits Jacksonville metropolitan area and derived from a responsible, competing opportunities in other non-exploitative approach to the neghborhoods suggest a steady but social service needs and resources only moderate, in-flow of of the Springfield neighborhood individuals who would create accrue to the entire metropolitan potential displacements through area. their restoration efforts in the Springfield neighborhood. There is a significant inventory of existing, Available alternative housing and vacant housing which can be reasonable levels of demand a rehabilitated and returned to use as potential for relocation of those affordable rentals. Likewise, there displaced by restoration activities is also an inventory of vacant land into adequate, affordable housing which is also available for within the Springfield neighborhood. residential development. Finally, If carefully planned and the transient population will be coordinated, each restored residence impacted by a growing sense of can provide a "double barreled" stability and accountability in the benefit. First, the restored unit neghborhood. This will serve to and second, a rehabilitated living reduce the "hospitality" of the area unit that would otherwise remain as for the transient. Unless dilapidated or be condemned. The artificially stimulated by the benefit of such a transaction in a introduction or reintroduction of metropolitan area with a deficit of services and elements which over 5,000 units of low and moderate e n c o u rage or attract transients, the housing should be self-evident It demand for transient housing will be is clearly feasible for the reduced. displacement and conflict that has characterized gentrification efforts in other cities to be avoided in It must be recognized that a single Springfield. In fact, the nature of neighborhood cannot become the host the supply and demand factors for all the social problems and suggests that.rather than a attendant residential needs of the metropolitan community on one hand "gentrified neighborhood" a very and then be expected to create and real potential exists for the maintain a stable environment which creation of an integrated, is "acceptable" to that same cosmopolitan urban neighborhood in metropolitan area on the other. The Springfield would be is an asset to willingness of the Springfield the Jacksonville metropolitan area. community to assume responsibility for accommodating a wide range of

37 Strategies

Minimize displacement through sequential restoration and renovation activities. Provide rental opportunities in existing or newly rehabilitated units that are currently vacant for residents being moved from homes being restored.

Tools and Techniques

1. Develop an aggressive program of reharehabilitatiob iIi ta t n of existing facilities.

2. Create a clearinghouse which matches potential and actual displacements with relocation oppor tunities in the ne i ghbor hood.

3. Accelerate processing of financing commitments for facilities which will provide r el ocat i on opportunities.

4. Give priority to displaced tenants wherever possible.

5. Organize volunteer moving assistance for displaced families and individuals who are relocating within the ne ighbor hood .

6. Give priority within HUD for building inspections and other processing tasks necessary for speedy completion of renovat ions.

The implementation of this strategy is dependent upon fiscal and investment tools and techniques which are discussed in detail elsewhere in this report. UL^AJ.JJ^^^ B^QQQQSI id

Vacant Lots hatched Abandoned Houses checked

39 been assigned for on e shift at the major commercial int ersection. The beats are smaI I , som e covering as CRIME few as twenty blocks , and response time appears reasons ble to both residents and police Overall it would appear that th e commun i t y Cr ime is a ma j or factor in the competes well for it s share of the Spring field neigh bo r hood wh i ch limited and, unfortu na t eIy nega t ivel y effect s both the quality shrinking resources and personnel of lit e and c i t i ezn and available city wide, The ma j or I aw commun i ty-wi de pe rceptions of the enforcement needs, b a r r ing ne i ghbo r hood. A significant, by additional citywide resources for unquan t i f i ed portio n of c r i me i s which the Springfiel d neighborhood be I i eve d by both citizens and I aw could compete, are c ontinued effort en for c emen t to in volve as victims to increase public r esponsibi I i ty and pe rpetrators, individuals fr om for protection and p revention ou t s i de the commu nity. Residents issues and improveme n t of the of con gregate car e facilities are individual relations hips between cited as v i c t ims. Particular officers and communi ty residents. conce r ns are exp r es sed abou t the It is important that the mob i Ie extent of prostit u t i on , nature of the neighb o rhood be p r os t itutio n r e I ate d c r i me, and recognized and routi ng repetition drug t raf f i c. of citizen cri me con trol activities be scheduled. A review of crime statistics indicates increas ing crimes against per sons and stead y to reduced rates of crimes against property. While Strategies there are many ex pressions of concern about per sonal safety, most Maintain, and increase as anecdotal reports by residents deal appropriate, current level of wi t"h crimes again st property and policing with special the fear of such crimes. Parks are emphasis on establishments of generally perceiv ed as unsafe, suspected high crime activity Crime in the neig hborhood is and locations. focused in the Ma in Street corridor and the southeast quadrant. These 2. Increase within the community areas are the sit es of a number o f a sense of shared notorious bars, a dult entertai nmen t responsibility with law es t abI i shmen t s and street enforcement for public prostitution. safety.

3. Undertake physical and Law enforcement presence was not a environmental measures major topic of citizen concern. designed to minimize criminal Additional presence in the form of activity. foot patrols and other special efforts were often cited as a Tools and Techniques desirable means to improve local policing. The area is served by four twenty-four hour beat patrols, 1. Continue and expand three of which lie totally within participation in the citizen the boundaries of the neighborhood. ride-along program which An additional walking patrol has increases the sensitivity of both residents and officers.

40 1226 1080 Aggregated Stats For All Beats 1041 l~t 961 999 650 1985 Projected

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41 installations. undertake the mowing of vacant lots and the removal C. Emphasize placement of abandoned or illegally inside buildings. parked vehicles. D. Reexamine the feasibility Maintain the Neighborhood of adjusting pay phones Crime Watch program and to reject incoming calls expand it into those areas in some fashion which can which have sufficiently accomodate the need for stabilized to make such fire and erne r gency efforts ef feet i ve. con f i rma t ion.

Encourage suppI«mentation of 6. Involve incoming calls in the current beats on a some fashion which can periodic and selective basis accommodate the need for fire with a variety of different and emergency confirmation. crime suppression and patrol techniques. Emphasis should 7. Continue and expand activites be placed on those related to physically establishments of suspected securing residences and high crime activity which are business. I oca ted in and are particularly disruptive of 8. Actively pursue and maintain residential areas. the securing of vacant dweI I i ngs. The current unusual distribution of pay phones 9. Undertake a program of alley throughout residential areas closures to limit access to is an invitation to crime -- side and rear areas of particularly drug trafficking residential properties. and prostitution. The threat of crime related incidents to 10. Improve street lighting low income residents is throughout residential area greater than the problems and explore the feasibility which might be confronted due of coordinating improvements to limited access to in residential lighting with telephone service. additonal high intensity lighting in the i mm e d i a t e A. The telephone company area of suspected high crime should be directly and activity. actively involved with the community groups and 11. Cooperation of state law enforcement in the alcoholic beverage agents development of strategies should be secured for to curtail the extent to aggressive enforcement of which illegal activity alcoholic beverage control may be being facilitated Iaws in drinking by pay telephone. establishments throughout the neighborhood, particularly B. Continue replacement of those in which there are closed boths with allegations of service to pedestal type underage youth.

42 assets are multiple: a remarkable housing stock in an old Jackson­ ville area; we I I-pI anted mature HOUSING trees; sidewalks and streets that can be made attractive; good trans­ portation; nearby health care and Springfield is a large neighbor­ attractive schools. It needs more hood with incredibly interesting recreation facilities and open housing stock. There are, approxi­ space within the neighborhood. mately 1800 structures; it is predominantly residential. The two priorities should be However, incompatible commercial attraction of middle and upper- uses negatively impact the income people; and anchoring and neighborhood. improving the housing of low- income residents. To attract Attraction of capital to finance the middle and upper-income owner-occupied, residential, homebuyer and make restoration rental or commercial properties affordable, a concentrated takes a concentrated effort by revolving-fund effort must buy both the private and /public and market houses to moderate sectors. and upper-income people. Special low-rate loans should In order to implement a coherent be made available for this housing strategy, a new non-profit purpose. Short term ad valorem private preservation/redevelopment tax abatements should be offered. organization must be formed. It must be a housing organization with Improving housing for low-income a powerful financial and political residents can be done in conjunc­ base. It must have a single purpose tion with a city-sponsored, low- -- to purchase and resell historic income housing program to include properties, with appropriate interest and rent subsidies. covenants; to individuals who will The city and its housing department sensitively restore these houses. must create a housing capital Such an organization should be able improvement program funded by a to receive private and corporate special excise stamp tax such as contributions as well as public that already implemented in Dade funds. It must have an effective Coun ty . professional staff. One of the impediments to the There must be a concerted effort improvement of Springfield is the to put the entire area on the concentration of Adult Congregate National Register so that tax Living Facilities which are poorly incentives are available to help maintained and appear to be badly with rehabilitation of this valuable managed. Focused code enforcement, place. supported by attractive rehabili­ tation financing, must be targeted Since Springfield is in close to the improvement of these facili­ proximity to the downtown and other ties. Their residents must be major employment areas, the best way encouraged to participate in the to attack the problems that exist life of the community through today is to target revi ta I ization activities such as, the park towards high quality in city beautification project that raise residential neighborhoods. It must self-esteem and diminish the be made a viable, beautiful place perception of their "danger" to the to live for its own assets. These community at large.

43 Alleviation of the negative impact of a viable Jacksonville. of undesirable commercial uses upon Implementation of the action the residential areas require agenda outlined above will improvement of external appearance prevent this resource from being through enforceable facade standards squandered, eroded and lost. supported by public and private financing. A technique the city would find effective is the purchase of facade easements which simultaneously fund and control renovation. Alternatively, recalci­ trant businesses, should be faced with tax liens on their properties.

Attached is the City of Jackson­ ville's Department of Housing and Urban Redevelopment Rehabilitation Loan Program's results for the past five years. This effort should be significantly increased and targeted for Springfield. The Springfield neighborhood would be upgraded and/or would build 150 houses (600 units) to provide safe and sanitary housing for responsible low-income renters. This activity would be funded from the capital program for housing.

83.3% of units, an estimated 1500 buildings are rehabi I i tab I e in Springfield. It is projected that to do this will bring 120 million dollars into the neighbor­ hood. Construction dollars are labor intensive and multiply many times. Therefore, the opportunity to revitalize this beautiful, but worn down, neighborhood presents financial as well as aesthetic opportunities.

Once this is begun in a meaningful way, tours and events can attract segments of the convention and visitors areas for the betterment of the City of Jacksonville. It will also attract shops and restaurants and make the community a lively, lovely place.

It must be strongly emphasized that Springfield is now the most valuable untapped residential resource for the revi ta I izat ion

44 If outside intervention of this policy into Confederate or other parks by the State cannot be PARKS AND RECREATION prevented, then more than merely "adequate" provisions must be made to ensure the unimpeded use of the Parks and recreational facilities in land by park users. Specifically, the Springfield neighborhood are pedestrian access and uninterrupted substantially below national and, circulation must be maintained and even city, standards. National must include not merely physical Parks and Recreation Association accommodation, but also a landscape standards recommend an average of setting and sufficient adjacent land two acres of park and recreation to create a psychological impression land per 1,000 population. The of un i nter-rupted I andscape Springfield neighborhood has far continuity and connection. Klutho less and essentially all of that at Park is an invaluable, irreplaceable the very western and southern edges. resource to Historic Springfield. Furthermore, this parkland, although neatly mowed and generally free of The City is encouraged to develop trash, has practically no facili­ both an asphalt jogging and a ties. It has been reported that separate bicycle path of proper Jacksonville expends only about 47% dimensions and alignments. These of the annual national average per facilities should extend uninter­ capita expenditure for parks and rupted from the hospital complex recreation. It is evident that the southward to the south end of expenditure, which is for both new Confederate Park and eventually, and existing parks, in the Spring­ continuously along Hogan's Creek to field neighborhood is substantially the St. Johns River. These paths below even the city-wide average. should be elaborated with loops and various points of access, drinking It is imperative that all existing fountains, lighting where necessary, parkland be preserved in perpetuity bicycle racks. Sitting areas and and that the integrity and linear exercise stations and should be character of the Klutho Park land be placed so as to maximize security preserved as parkland. Even park surveillance from adjacent streets, related maintenance functions, such to preclude private vehicular access as storage, motor pools and other but allow emergency vehicle access. support services, must be excluded A design, form-expressive landscape from further preempting the full use should be prepared for Klutho Park . of this land by the general public. as a linear park interconnecting to Such existing intrusive usages adjacent neighborhoods and providing should be relocated outside the park a variety of active and passive at the earliest oooortun i ty and recreational opportunities. Where "permanent" non-conforming uses elevation is sufficient to generally should be eliminated, over time, preclude flooding, active recrea­ through facility attrition/obso­ tional facilities, such as court le s c e n c e . The "sacred" status of games, should be developed. these parklands should be perma­ Community gardens, developed in nently established in a comprehen­ cooperation with senior citizen sive city ordinance. centers, the local agricultural extension services, the Jacksonville Garden Club, and other interested residents or organizations, should

45 be located in appropriate places within the established city parks, as well as within selected vacant land scattered through the four residential villages.

Wherever possible, selected, appro­ priate, vacant land should be developed as "pocket parks" provid­ ing locations for "tots lots," playgrounds, gardens, and adult congregation. These parks should be planned and designed with full neighborhood participation and input and should respond to the particular needs, opportunities and constraints of the local circumstances. Suitable land should be acquired, leased or otherwise obtained for this purpose and should be aggregated, as necessary, through the demolition of dilapidated, condemned buildings, building relocations, and the use of otherwise vacant land.

The Parks and Recreation Department should undertake an aggressive program of park design and develop­ ment. It should, for this purpose, substantially expand its adminis­ trative and in-house design and technical capability. This capability should be in the form of a Design Division supervised by an experienced professional landscape architect whose job description includes, amoung other things, state licensure. It should also include professional engineering staff. This division should direct in-house and/or consultant design services through the preparation of contract plans, specifications, and construction.

46 - The need to provide another east-west river crossing has generated a proposal to TRAFFIC AND TRANSPORTATION utilize Eighth Street as an access road to such a new CONSIDERATIONS bridge.

Over a II, t he Springfield community Given the current proposed revitali- i s we I I serve d with the present zation and preservation activity in t r an spor t atio n system. The area is the Springfield neighborhood,seve­ surrounded by 1-95 on the west, the ral considerations exist which JacksonviI le Expressway (20th Street should be a part of future i npIemen tat ion Exp res sway ) on the north, the Haines efforts. Street Exp ressway on the east and State and Union Streets which become S.R.-115 o n the south. Access to These are as follows: the area i s provided from these t houghways by Main Steet and Eighth - Explore urban design treat­ Street wh ic h run north-south and ments and traffic control eas t-wes t respectively, bisecting mechanisms to slow-down the Spring field ne i ghbor hood. throughway traffic along Main Street, which will support The immediate availability of this the expansion of the Main system to the neighborhood does, Street - Eighth Street His­ however, present some current toric Springfield Commercial problems as well as initiate some District. issued for the future, including the foI Iowi ng: - Encourage the future con­ struction of an east-west - Main Street is presently river crossing location at utilized as a major arterial the 20th Street Expressway accessing downtown and the which would relieve east-west Main Street Bridge generating traffic along Eighth Street. considerable car and bus traffic through the area from - The oneway pair proposed the north. utilizing Eighth and Seventh Streets should be discouraged as a result of the extension Eighth Street as a throughway of the 20th Street Expressway arterial across the across the river. This will neighborhood, one of the few allow Eight Street to remain east-west connectors, thereby a two-way arterial providing generating considerable access to the Springfield traffic, particularly as an community, the Medical Center alternative to the 20th and surrounding areas. Like­ Street Expressway. wise, Seventh Street will not experience increased through- traffic and can remain a As the downtown area becomes neighborhood residential more viable the potential for street . considerably more through traffic along Main Street - Continue to maintain the exists. raiIroad network along the north and east boundaries of the neighborhood that sup­ ports current industry and employment activity concen­ trated along theseboundar.es. 47 THE GENERAL PLAN

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W.6T> H 5 ED. ra; 62 The nubbins along Main Street will occur on both sides of each of. the URBAN DESIGN four corners at the intersection Neighborhood 'Necklace' with Fourth and Eighth Streets only, and will occur on one side, This series of selected streets projecting into Main Street, at the will be paved with the historic four corners of all other brick pavement edged with granite intersections between First and curbing. Pedestrian height, period Twen tieth Streets. light fixtures will be placed 60 - feet on center where possible and The extensions of the "pedestrian will be coordinated with existing zone" in this fashion will reduce and proposed street trees which the amount of roadway surface, or should be planted 30 feet on "auto zone", to be transversed by center. Sidewalks and intersection pedestrians when crossing the cross-walks will be paved with streets at these points. The four brick. crosswalks at each of these intersections will be articulated The street trees along these by special paving; preferably brick streets will be both live oak and on a concrete slab, with a flush laurel oak. Tree pits for the granite or concrete edge against planting of all trees will be the adjacent asphalt paving. Red generous in size and depth and will tinted, poured, broom-finish be backfilled with fine quality concrete, however, will suffice for planting soil in order to mo r e the crosswalk surface if state likely assure the success of standards prohibit the use of initial planting. Weed trees, such brick. as cherry laurel and cabbage palms, as well as trees inappropriate for Traffic flow will be somewhat street tree use, such as red bud impeded by the desynchronization of and red cedar, shall be selectively traffic lights along Main Street. removed from the right-of-way along This will tend to reduce the the necklace. relative disadvantage presently experienced by pedestrians and give, together with the pavement Main Street Revitalizations and alignment changes suggested above, an improved priority to The cross section of the Main pedestrians. Street roadway will remain generally, in its present form with One species of tree or palm will be four travel lanes and two parking planted in a formal, architectural lanes. At each of the arrangement as the "theme tree" intersections between Fourth and along Main Street. These will be Tenth Streets, however, parking planted, typically, in a single will be eliminated. row, set perhaps seven to eight feet back from the face of the At each of the four corners at curb, in five to six foot square, these intersections the curbline pavement and cut-outs. One option wi'll be extended outward at a 30 for this tree planting would degree angle and then run parallel consist of sabal palms planted to and adjacent to the edge of each visually "flag" the intersections outside travel lane, forming at Fourth, Eighth and Tenth Streets pedestrian zones called "nubbins". together with live oak trees along the middle of the block. The informal habit of the live oak

53 S B

54 would allow for it to be the neighborhood will be paved with selectively thinned to create a asphalt and the sidewalks will be somewhat more transparent mass of paved with either modular, foliage. All street trees, hexagonal pavers or poured wherever recommended in this study, concrete, pressed with a hexagonal are intended to be at least Florida pattern. The existing modular, No. 1 quality or better, to be hexagonal pavers will be retained nursery stock, to have a clear, and restored to good condition, single trunk to a height of seven wherever possible, even if not feet and to be free of "V" necessarily cost effective. crotches, or "sling-shot" branching. Street Tree program A second option for the Main street planting would consist of planting Canopy trees, including existing the corners at each street street trees that have been damaged intersection with flowering trees, or have otherwise declined inold such as crape myrtle,and planting age, will be cut and removed where along the block with larger trees, necessary, including stumps and such as Bradford pear. roots that may interfere with sidewalk or other construction. The third option would consist of Trees in generally good condition extending the oak plantings of the will be properly pruned and adjacent residential neighborhood otherwise maintained where they into the corner of each Main Street occur in the right-of-way. The intersection, while planting along City will engage in an active the block with sabal palms. The street tree planting program that oaks will visually "announce" the will replace, in a timely manner, points of access into the adjacent the numerous camphor, and other villages, While the palms would damaged or mature and declining allow unobstructed views of the trees. store-front signage along Main The presence of a quality street Street. This opt ion,•however, does tree system is usually associated not afford the benefits of heat with, or regarded as an indicator of generation and glare control a high quality commun ity. Better afforded by the shade trees of the homes are often built adjacent to or other two options. Traditional near parks, and real estate values brick sidewalk paving will be are often higher in communities with extended the full length on both significant street tree systems and sides of Main Street between neighborhood parks. This latter Confederate Park and Twentieth phenomenom occurs even in Street. communities of moderate or lower income and is not restricted to All overhead power lines will be we.althy communities. The potential placed underground and street of this resource to Springfield is. lighting poles and street tree significant and should be conserved and enhanced through the vigorous locations will be coordinated. maintenance of existing tres and an Main Street will not have active tree replacement program. pedestrian height walkway lighting. Other Neighborhood Streets Eighth Street will be detailed similarly to Main Street, but with smaller cross section dimensions. The remaining streets throughout

55 Primary Conditions Gateway Entrances Physical landscape/urban design connections will exist in Symbolic gateways will be located appropriately designed form at the in the vicinity of Confederate Park southwest corner of the and at Hogan's Creek along Eighth "neighborhood necklace" adjacent Street. These may be expressed in to Klutho Park, at the west end of one of several possible ways Eight Street and at the south ends including the planting of masses of of Main, Pearl and Liberty streets. trees, either informally or formally; the construction of The connection at Klutho Park will landscape elements such as small be landscaped pathways and plazas, walls, plantings, scupture; associated elements visually the placement of lighting fixtures announcing that "entrance". This used along the necklace; or other connection will be used by such "gateway" expressive means. It will probably be most effective neighborhood people who enter the if the gateways are duplicated or park for various forms of are nearly similiar, in both form recreation. It should guide the and material, at these park-setting crossing of streets and visually locations. interconnect the park and the neighborhood. Landscape Ordinance Enforcement The connection at the west end of Eighth Street should encourage The current City landscape ordinance pedestrian traffic from the hospital complex and related can be an effective tool in facilities into Historic improving the visual quality of new Springfield. It will also visually commercial development in Historic express to motorists that this Springfield. However, because of connection exists in both a poor enforcement by the City functional and a psychological Building and Zoning Department, form. Brick sidewalks, granite recent commercial development has curbing, and street trees should extend to the "gateway" at this end ignored the ordinance. This problem of Eighth Street. should be immediately corrected.

The development of extended connections southward from Historic Springfield along Main, Liberty and Pearl Street are essential to establish the perception of proximity between this residential neighborhood and the employment center in downtown. These connections may consist initially of dedicated land, perhaps 20-25 feet on both sides of these streets. Eventually it is envisioned that the brick sidewalks and street trees, tree grates and guards would express this connection. NECKLAQEtt STREET

MAIN STREET

57 ARTS AND CULTURE

The vision of the future Historic Springfield neighborhood will not be complete without a vibrant arts and cultural environment. Typically, individuals seeking in-town, urban living desire and support such activities as; live theatre and performing arts, galleries, and other speciality retail and service establishments. The historic structures present in Springfield today offer a perfect setting for these activities, while enhancing the cultural appreciation of the area.

As the neighborhood begins the revita I ization process that is intended, the sponsorship of initiatives to create these facilities and amentities by residents entrepreneur, and community-based groups should be encouraged. The exist a nee of several education facilities and religious institutions, as well as, Klutho Park, offer appropriate settings and additional support to this effort.

While these potential programs and activities provide a much needed outlet for existing residents, they will also serve as benefits to attract new residents to Springfield, and foster a greater cultural exposure for the large youth population in the community.

The approach to organizing and initiating an arts and cultural renaissance in Springfield should begin within the proposed umbrella neighborhood group -the Community Council- with the seeking of funding and donations from the business and charitable communities.

58 local craftsmen and mechanics. Money is recycled within the ENERGY CONSERVATION IS Jacksonville co mm unity rather than STILL IMPORTANT exported outside the region to purchase building materials with The redevelopment of the high embodied ma Springfield neighborhood will have energy contents. If all 1800 an. impact on the houses in Springfield were re­ energy consumption patterns of cycled, a savings would be real­ the residents as well as ized of an astonishing s i x Jacksonville as a whole. Wh i Ie the and a half million gallons of recycling of existing housing is, oil. by its very nature, conservative of both energy Along with embodied energy, and natural resources, there are the decision to rehabilitate a still active policies which can be house in Springfield substantially pursued to reduces the energy expended in increase energy-efficiency and commutation. The abbreviated trip improve environmental comfort. from Springfield to the center of These pol i cies can be c I assified in Jack sonvi I I e- saves 500 gallons of the following categories: gasoline per year per commuter, residential energy conservation! compared to commuting from a house cogeneration and di strict energy 20 miles from the center of town. systems,' and sol id waste It is hard to project future ma nag emen t. employment locations of new residents, but even a modest fraction of downtown commu t e r s will Inherent Conservation result in an energy saving of nearly half a million gallons of gas per year. With over 1800 houses in the neighborhood, Springfield is a Residential Energy valuable bank account of embodied Conservation-Status energy in the form of building materials already assembled in place. The decision to rehabilitate The existing housing stock in a single house in Springfield as Springfield, does not presently opposed to building a comparable provide a level of environmental house 20 miles from the central comfort comparable to new housing. city represents an embodied energy Almost 80% of the houses do n'o t savings of approximately 2 gaI Ions r of oil per square foot of ouilding. have central heating, 7 0% have no Although building materials are air conditioning and very few of readily available locally, they these buildings have any have a surprisingly high energy insulation. content due to their transportation Since they were constructed from remote man u f ac t u r.i ng locations prior to the development of modern and energy to process the raw air conditioning, the houses do. materials. Cement, steel, and have certain common design features aluminum are materials which which make summer tolerable by have an extremely high embodied providing shade and promoting energy content. natural ventilation. Double decker Rehabilitating an existing porches overhang the south facades house is a labor intensive ac­ providing needed shade. Very large tivity, providing employment to double hung windows, high ceilings

59 and open stairwells facilitate the replacement space heaters with ventilation. Pier foundations a new gas-fired.central heating raise the first floor above the sys t em. ground to take advantage of the Various social service breeze. agencies, such as the Urban League The Jacksonville building code and the Northeast Community Action requires new construction to Agency, have emergency home repair conform to energy conservation programs or financial assistance to standards, but rehabilitation, at Iow in come families with high least in practice, is exempt from utility bills, but' there are no these standards. public or private agencies with The local utility companies active weatherization programs in are the Jacksonville Electric Springfield or in Jacksonville. Authority (JEA), a municipally owned electric utility, and Gas, a privately owned state-wide gas utility. Both utility companies have*expressed concern for the redevelopment of Springfield and are apparently cooperative. Neither utility provides loans at either subsidized or market rates to residential rate-payers for energy conservation home i mp r ov e- ments. JEA does provide energy audits when requested. They also currently provide technical assistance on energy conservation to new home builders, but no technical assistance for rehabilitation. They have expressed a willingness to reconsider this policy in the future, based ori the availability of personnel. A representative of JEA . Residential Energy related his frustration with Conservation-Recommendations Jacksonville HUD over HUD's unwillingness to recommend energy Rehabilitated housing should conservation measures as a part of meet state mandated building code their home rehabilitation loan requirements fo r energy program. conservation to the extent Peoples Gas has a financial possible. Lending agencies both incentive program to encourage public and.private should encourage customers currently using oil-fired loan recipients to weatherize as a or electric equipment to convert to part of their rehabilitation gas-fired equipment and appliances. project and include: attic and A customer converting from oil heat floor insulation Cand where to gas heat receives a $300 - •• appropriate, wall insulation); assistance payment; converting from caulking, weather stripping, and electric heat to aas heat, $ 4 4 0 s . repair of windows and doors on, converting from electric water their "work write-up" check lists. heating to gas water heating,$200. "Work write-ups" shou.ld be Currently no payment is made for coordinated with, theutility the installation of new systems or companies and mandatory energy

60 audits should provide a basis for electrical generating plants in the weather izat ion component of a small increments in Urban areas, rehabilitation-project. JEA should the waste heat that is no rmaI Iy provide technical assistance to and lost to the environment can be used should modify theri Energy to provide space heating and Efficient Home Design Criteria to cooling to off ice buildings and suit prototypical Springfield residences and also process heat houses. for industrial or,institutional Springfield is fortunate to be purposes, at lower rates than one of the few Jacksonville conventional independent neighborhoods to have gas service production. This technology, available. The Peoples Gas commonplace in the.early part of incentive program should be this century and prevalent in extended to cover the conversion to Europe today, squeezes much more gas heating of homes which useful energy.out of our limited currently have no central heating. resources and is making a comeback Residents of housing without owing to higher energy costs, central air conditioning should be escalating construction costs for encouraged to convert to natural nuclear and coal fired generating gas since it will lower heating plants, and the hew federal Public costs. &^ Utility Regulation Policy Act which New infill housing should requires utilities to purchase mimic the indigenous architecture cogenerated power at fair value. styles to conserve energy. The JEA is currently purchasing raised first floor, generous electrical energy from 3 private porches, high ceilings and large cogenerators in Jacksonville and double hung windows will not only are actively interested in adding reduce summer energy demands but new generating capacity to their also help harmonize the new housing system which currently purchases construction with the existing 70% of its powe r. stock. Cogeneration can be coupled Existing governmental agencies with an underground distribution or private social service agencies for hot water or steam to create a should allocate funds for a district heating network. This is weather i zat ion program for low attractive for three reasons. income and elderly homeowners who First, like highway construction, can neither make energy saving home the routing of a district energy improvements, nor meet their system can control the path and current energy bills. intensity of development. Second, a district energy system based on cogeneration can achieve fuel Cogeneration efficiencies of over 70 percent, compared to at most 40 percent for conventional systems. Third, by Since the energy crisis of the providing more efficient and 70's and the subsequent search for thereby lower-cost thermal energy more efficient sources.of energy, without the cost of providing a there have emerged several heating plant in new buildings,' technologies to increase energy development becomes more attractive efficiency on the supply side. One within that energy district. of these technologies is University and Methodist cogeneration--the simultaneous Hospitals at the eastern edge of production of both electricity and Springfield are one anchor of a thermal energy in the form of hot potential cogeneration opportunity. water or steam. By constructing Hospitals are very large, energy.

-61 users and with their laundry and food preparation functions, they have very large constant, base load Solid Waste Management thermal energy demands which provide a steady customer for Solid waste is currently thermal energy even on warm summer hauled to one of three landfills days. This base load demand makes within Jacksonville.If The city is co-generation potentially feasible. currently conducting a feasibility On the southern edge of study for a mass burn resource Springfield the 19,000 student recovery plant. The feasibility campus of Florida Junior College is study is expected to identify another large energy consumer, and several potential sites. In all one with a special interest in the likelihood the sites identified development of new technologies. will be in outlying areas. The JEA The path between the hospitals an.d The City of Jacksonville and the junior college parallels a Department of Public Works have swath of undeveloped parcels of discussed using the resource land to the southwest which are recovery plant as a cogenerator. potential future customers for a Like any fuel fired electric district heating system. Finally generating plant, there will be the Springfield housing stock with relatively low grade thermal energy 8 0% lack of central heating produced which must be discarded if represents a large potential heat the plant is located remote from customer to the east. potential thermal energy users. The Jacksonville Electric Technically however, a resource Authority has expressed interest in recovery plant can be integrated purchasing the electrical energy into a district energy system. product from a cogenerating There are obviously negative district heating system and have environmental factors, such as high discussed possible future volumes of truck traffic and solid developmental projects such as fuel waste staging areas, in siting a cells which could be integrated resource recovery plant within an into a cogeneration district urban neighborhood! however, if the heating system. host community were to be offered Identifiable customers for substantial financial incentives cogenerated energy have been such as tipping fees contributed to identified, but w_b_o w i I I construct , a dedicated land bank, housing Own and operate such a. facility? rehabilitation and an infill It is essential to identify an housing loan trust fund; and if the experienced developer/operator for host community were offered the this type of specialized facility, opportunity to network into a but a Springfield Community district energy system,, a Development Corporation can take a synergistic relationship between position in such an enterprise by the community and the plant might providing a site and assisting the be established. If a district developers in acquiring financing, energy system were established in governmental cooperation and Springfield all the elements for various State, local and federal this potential scenario would exist permits. The financial and the community and the city participation of a Springfield should consider such a development. Community Development Corporation can provide both a financial asset and revenue stream which can be utilized to finance housing rehabilitation.

62 Conclusion The redevelopment of the Springfield community will have energy conservation implications on several levels. There are inherent factors which will cause energy to be conserved by the very fact of the redevelopment by conserving b u i Id i n g ma terials and transportation. There are also common sense energy conservation policies which have been promulgated in many other communities for the past ten years such as weather i zat ion programs. Finally, there are relatively exotic programs such as cogeneration/district energy systems and solid waste resource recovery. While not yet commonplace, these technologies have precedents and perhaps most importantly can be profit-making private sector ventures and provide financial resources to the Springfield neighborhood. A feasibility study will be necessary to gauge the potential of these technologies in Springfield, but clearly the critical elements for success seem to be present. DISCLAIMER

Due to the limited amount of time, the complexity of the subject neighborhood, and the lack of readily available data, several areas of concern that should be evaluated had to go unattended in this study report. Such areas would include economics, employment, education, and cultural issues to name a few. We recommend that follow-up efforts to this R/UDAT continue the data gathering and problem solving of these and other areas of need.

64 Charles Zucker is Deputy Director of Design Arts Program of National Endowment for the Arts, Washington, D.C. He is a graduate of Princeton University, Master in Architecture and the University of Illinois, Bachelor of Architecture. He has taught at the Graduate School of Urban Planning and Policy Development, Rutgers University, New Brunswick, New Jersey; he taught architectural design and planning at the City College of New York School of Architecture and at Princeton University. Mr. Zucker has co-authored the "Planning and Design Workbook for Community Participation. He has worked with community planning groups in Long Island, New York City and New Jersey. He was a principal of an architectural firm in Baltimore, Maryland and has particular expertise in residential planning, design research and participatory planning.

M. Dale Henson heads the Atlanta based economic development consulting firm of Dale Henson Associates, Inc. He holds degrees in economics from the Georgia Institute of Technology. He was a lecturer in regional economic development at the institution and held the post of Regional Development Economist at the Economic Development Laboratory. He was Vice President-Southeast of the Chicago based economic consulting firm of Real Estate Research Corporation; and Director of Economic Development, Atlanta Chamber of Commerce, including responsibility of directing the Forward Atlanta Program, a muIti-mi I I ion dollar 3-year promotional effort to attract industry. His independent firm specializes in public urban development and redevelopment analyses and programming, and market feasibility studies for office, industrial, housing, and multi-use developments.

65 Mr. Michael John Pittas served as New York City as Director of Director of the National Endowment Comprehensive Planning and Director for the Arts, Design Arts Program of Planning and Development for for six years. the city of Trenton, New Jersey. He taught for 11 years at the Harvard During his first 1 1/2 years in Graduate School of Design, where he Los Angeles, he held the position also served as the acting Director of Dean of the Otis Art Institute/ of the Urban Design Program. He has Parsons School of Design, departing worked extensively on public and this July to accept the prestigious private redevelopment organizations Urban Scholars Fellowship Award in the United States and abroad and from the New School for Social has received numerous awards for Research in New York. Currently his professional acheivements. he serves as Chairman of the Watts 9 Towers Community Trust and Trustee Mr. Arthur Skolnik, Architect, is for the American Cinematique in currently the Executive Director Los Angeles. for the San Diego Gaslamp Quarter Council, as well as, President of His initiation of the Viet Nam the Conservation Company. He Veterans Memorial design competi­ received his M.A. from Pratt tion in Washington D.C. and author­ Institute and B.A. from the ship of the Presidential Design University of Illinois. Mr. Awards program recently inaugurated Skolnik has served as Executive at The White House have been widely Director of the State Advisory applauded. Council on Historic Preservation and State Conservator for the State of Washington. Other experience Trained as an architect and planner, includes: City Conservator, Mr. Pittas has held positions in Director of the Office of Urban

66 Conservation, Manager of the James Mills is Executive Director Pioneer Square Historic District, of The Juvenile Welfare Board of Call for the City of Seattle), and Pinellas County, Flor ida'S He is a as a fulltime Visiting Lecturer on graduate of Valparaiso University, Urban Design for the University of Master of Social Work, University Wash i ng t on . of Connecticut - School of Social Work and Bachelor of Science, Drake Universi ty.

He has served as Executive Director of the Community Services Planning Council of Sacramento, California, Dep. Director of the Wisconsin Council of Criminal Justice, Director of Family and Children's Services, United Community Services of Greater Milwaukee, and Chief, Direct Services, The Wisconsin Dept. of Health and Social Services.

He has written numerous articles and presented papers across the nation concerning Human Services and Planning. He has served as Incorporator, First President, Board of Directors, Paratransit, Ino., a non-profit transportation agency for the elderly and handicapped; Chairman of HRS V District Advisory Committee, and Incorporator and Board Member of the Sherman Park Community Association of Milwaukee, Wisconsin.

Mr. Charles A. Alden, an accom­ plished landscape architect now practicing in Miami, Florida, has extensive experience planning and designing projects which encompass the full scope of landscape architecture. Various awards have been received for projects in which he participated, including the Boston Southwest Corridor transit- related parkland, as well as several in Florida. A native of New Jersey, Alden received his BS in Landscape Architecture from Syracuse University and is registered in Florida and Massachu­ setts Institute of Technology, and Miami-Dade -Community College. Mr. Michael E. Johnson is a partner in the private real estate development and consult­ ing firm of Wilson, Dagenhart, Johnson based in Atlanta, Georgia, Trained as an archi­ tect and urban planner, with a Masters degree from Georgia Tech and a BS from the Univer­ sity of Maryland, he is also' a partner in the architecture firm of Devrouax and Purnell which has offices in Washington, D.C. and At I an ta.

He has consulted on a variety of economic development planning projects and real estate develop­ ment feasibility studies from California to Florida over the last eight years.

Recently completed projects he has managed include a Redevelop­ ment Plan for seven enterprise zones in Broward County, Florida, an infill housing development project in Atlanta, and four successful UOAG applications for industrial development expansion projects in the State of Georgia. He is currently managing partner for an $8.0 million mixed-use development project, and the preparation of a proposed $115.0 million development plan for the Martin Luther King, Jr. National Historic Site in Atlanta.

Mr. John son a I so serves as a member of the Fulton County Zoning Appeals Board and the Atlanta- Fulton Library Board of Trustees. Student Support Staff

Mr. Leopold Adler, II, Trustee Emeritus of the National Trust for Historic Preservation, is a native of Savannah, Georgia. He is President of Preservation Associates of Savannah, a for profit partnership. He is a .former Vice-President of the Robinson- Humphrey Co., Inc., Investment Bankers. He is a trustee of Boston University , a trustee of Ossabaw Island Foundation and a trustee of the Cathedral Church of St. John the Dev.ine in New York City. He is a Director of the JSouthern Bank & Trust Company of Savannah and is a member of The Statue of Liberty- EllijS Island Restoration Committee.

Currently he is chairman of the Chatham-Savannah Historic Sites 1 j Commission and, is President and founder of Savannah Landmark Rehabilitation Project, Inc., an urban preservation non-profit corporation and is chairman of Americans for Historic Preserva­ tion, a political action committee.

For the past twenty-seven years he has been dee ply involved in preservation in Savannah and throughout the nation where he has spoken and been a consultant in 40 states, The District of Columbia, England and Ireland. He has co-authored a book called Revolving Funds For Historic Preservation; A Manuai Q± Practice. He has also co-authored a handbook; Preservat ion For PeopIe UL Savannah. He has participated in many conferences and meetings and received numerous awar ds. Mr. Alden has also participated in several I an dp I ann i rig and develop­ ment projects including a Master Development Plan for the Poinciana Industrial Park and the Overtown/ Park West Redevelopment Project in Miami; second-home/retirement communities in Vermont, Maine, Massachusetts, Illinois, New York and Florida; and Campus Development Master Plans for various institu­ tions and corporations.

His many professional associations include the American Society of Landscape Architects and the Florida Native Plant Society.

Mr. James Greenberg is currently project manager for a 500,000 square foot addition to the Harrah's Marina Hotel and Casino in Atlantic City, NJ. In addition to his responsibilities as project manager, he is the Director (CADD) for The Hillier Group, Princeton, NJ. He is a graduate of the University of Pennsylvania, Master of Architecture and Cornell, Bachelor of Science in Archi tecture.

Prior to joining The Hillier Group in 1981, Mr. Greenberg was employed as Director of Design and Construction in the city of Trenton, NJ. Department of Planning Development where he was instrumental in the development of The Trenton Integrated Community Energy System. He has received several awards for excellence in design and architecture, and has written one book, Energy Efficiency and Design. Bill Johnson, AIA ft t f>ft r i n Q Pfimm i t t n ft Archi tect/Rosident

David B. Boyer, AIA, Co-Chairman Connie M. Jones, Neighborhood Boyer and Boyer Architects Housing Services of America/Resident Cindy Grable Miles, Co-Chairman David Jones, Springfield Resident Preservation and Restoration Do I I i e H . Si mrnon s, Jacksonville Jerimiah Lahey, President Department of Housing and Urban Jacksonville Chapter, American Development/Resident Institute of Architects Sara R. Allen, Resident George Maida, Springfield Neighborhood Housing Services Russ Anderson, Resident Richard Martin, Jacksonville Carlos E. Aybar, AIA Design and Department of Housing and Urban Development Associates/Resident DeveIopmen t Chyrlene M. Boyd, Springfield Joel McEdchin, Jacksonville Historic Neighborhood Housing Services Landmarks Commission Brenda L. Burck, University Hospita Carol Miller, Legal Aid Association/ of Jacksonville Resident Winston Caldwell, Arrow Specialty Dr. Davalu Mudd, Family Health Advertising Inc. Services Lillian Cannon, Jacksonville Madie Rider, AIA Department of Housing and Urban De v eIopme n t Judy Slade, Jacksonville Department of Housing and Urban Dora Carver, Resident DeveI opmen t/Res i den t Beth Connolly, Hacienda Motor Hotel Naomi Summers, Resident Laura D'Aliseria, Jacksonville Bob Towers, Greater Springfield Department of Parks and Recreation Business Association David Galbreath, Resident Sidne M. Valdivieso, Springfield Neighborhood Housing Services Gerry Galbreath, Resident

Randall W. Gray, Methodist Hospital Foundat ion

Joyce Dykes Holbrook, Greater Springfield Business Association

71 Volunteers

Cathy Acree Clerical Support ^^LL M t!^rtSK? Heather K. Bound, SAA Pat Allbrighton I-„«.II n u ^ OA» „ . JanelI Brumbaugh, SAA Ginger Anderson ««Rob. ie „rt w.„a c Goralczyi JI k ^A* ,,. m . . Melady Flordeliza, SAA Vivian Charles Armstrong Pa t r i c i a Jones, SAA Fred Atw i I I Delores Mackoul Eva Aye r s Patricia Mills, SAA Dr. Sonya Bethel-Aybar Karen E. Rood, SAA Ronald Baker Irene F. Spencer, SAA Joyce Bizot Ruby BIackweI I Ma r y Louise Bot e r Ma r y Brooks Delores Capers Louie J. Carver Bill Oav i s Mary Jane Oavis Paulette Debs Debbie Dotle Joel Eizenstat Estelle Galbreath Roosevelt Hayes & Staff Lacy Jones Ruby Keyes Harriet Kisilinsky Lilian Knox Sharon R. Laird, Press Secretary Duval Delegation Sandra Lee Nellie Lightner Bob Logan Delores Mackoul Jim Ma r t i n Kathrine Medlock Ca roI Miller Hugh Mo r r i s S i mon MosIey Davy Mudd Dave Parnell Rus P i t tman V i deo La ping Fred Pope Retired Senior Volunteer Program Donald Agnew, WJCT-TV 7 Rus Pit tman.Director Backstreet Productions Gordon Robbie Kris & Allan McCaI I Kozmik Helen McLendon Robinson McCinema Productions Delores Sapp Wayne Sapp Springfield Neighborhood Housing Services Debbie T homp son Dan Urbanus Sidne Valdivie'so James Willi ams Lorenzo Willi ams Gwe ndolyn Yates

72 City Coiifici i Persons Interviewed Jim Atkins Ed Holtsinger Civic Representat ives Eric Smi t h G i f ford Grange

Jacksonv i I I ft Dftpar tmen t SLL HOUS i n find Urban DeveIopmen t . Jacksonvi Ile Sher i ff 's office Richard Bowe r s Joyce Bizot Sg t. R.L. Townsend John Hicks Jim Revels J i m McDonaId J.G. SteI ma Andre' Martin J.P. Branch Mary Jane Davis Tom Doyle BettyP. Ingram Fred G. Jones Other John U r e I I Doug Faust Laura D'Aliseria, Recreation & Judy Slade Public Affairs Philip Wemhoff, JEA Energy Conservat ion John H. Crofts, Jacksonville Legislators Planning Department Henry Mock, City Traffic Engineer Charles E. Bennett, U.S. Roslyn M. Phillips, Downtown Cong r e s sman Development Authority Dr. Arnette E. Girardeau, Florida Robert W. Banghman, City State Senator Horticulturist John Thomas, Florida State Earl Wilson, Public Representat ive Works/Sanitation Tommy Hazouri, Florida State Martha Barrett Representative

jarksonvi i le Hi.itor i c Landmarks Commi ss i on Carol T r uma n Myrtice Craig Susan Caven Ted Pappas J i m R i n k Connie M. Jones Cindy Grable Miles

73 Tod W. P i t s t i ch Persons In t e r v i ewed Wally Anderson Ed Qu i nn J.E. Hanks Geor ge Wa t k i ns Irene F. Spencer Doris Endres Oes i Wa t k i n s Ca r i n Br own David Todd Naom i Brill Winston Cat dweI I Suzanne Todd Virginia Fraser Dave A. Balanky Ben Cook Vivian Br own i ng Berend L. Bri ckman John Allen Tom Me t z Henry Howr y Wi I I j am D. B i schof f Kathleen Haack Chy rIene M. Boyd Jeff WaItz Elaine Burnett Davy mudd Rosa L. Peterson Janice Ouinn David Jones Elizabeth Becil Stephanie K. Thomas Jim Brunson Dennis Thrush C.A. Beebe Dea Kerstetter Grant G. Godf rey Clinton L. E i swor t h Lawr ence M. Madre Paul Weaver Chuck Spence Joe Steineck J a n i e Jones Eva Ay r es Gary A. CIemons Stephen Buettner Kevin Winston Diana Buettner Karen Rood She I Iy Yeag I e Jan Br umbaugh Debbie Doyle Patricia Jones Emil Brundnette Richard Bizot R.A. Ferguson Bet ty L. 01 i n Jim Gentile Wad e R i gg i ns Ming Chan Paula Wustenburg Dave Galbreath Harry Le r ne r Harriett Kisilinsky Jo Khan Jean Secord Robert Keener David Andress H. Earl Futch Robert Logan Robert J. Mac i ndoe Delores Mackoul Michael T. Parks Louise Livingston D.M. Urbanus Patricia Thalacker So I I i e Mi tche I I A I Comb s M.B. Mi tcheI I Anne Be rman Rev. George Staten Hyacinth A. Jackson Sidne M. Valdivieso Rev. B. J. Lane Faz i I Dean Laura Frances Geisel George Ma i da Paul Rob i n s o n Olivia M. Firist Patti Christensen Helen Robinson Mi c hae I Houg h t on Haze I Phillips Sara Hurdle Rev. William Morgan Les Potter Flossie M. Burnson Edward Ho I t Rose Wa t son Hugh Re smon d r o Bertice Faust CM. Ho Imes Pat Mills Anne Farren Kevin Brown C.J. Brandstrup Sue Carmichael Ma r k Davis Arthur V. Jennette Edith Anderson Leslie Allen Frances T. Hayes Me lady Flordeliza Dora Carver Heather K. Bound Frances Arpceve SamueI 0. Lloyd Rev. Thomas Knight Ron L ump k i n Frank M. Parrish Nell Mar obaI I Clay Singletary Lynne Gabbe-Harkcom Deborah Floyd Ginger Anderson Nancy Swearingen Russell Anderson Bill Johnson Larry hewitt W.B. Sweetser, Jr. The I ma D. Taylor 74 Con tributions

A&E Reprographics Melton Jenkins, Jenkins Bar-B-Que Alford Associates; Architects Joseph's Imported Foods Ame rican Bank H.W. Keister-Engineers A. Franklin Berkey Lebco Business Equipment Boy's Club of Jacksonville Little Dragon Restaurant Bob Jackson Emme tt J. Lovett Councilman Jim Atkins Main St. Restaurant Atlantic National Bank - Springfield Marshal's Old Fashioned Bakery Branch Jim Martin/SaxeI bye, Powell, Roberts Bhide & Ha II Architects and Ponder Inc., Architects Bill Barsh Ma r t i n Coffee Co. A. Franklin Berkey, Methodist Hospital First National Bank of Jack son v i I I e Oak Park Villas Condominiums Richard Bowers, Jacksonv i I Ie Pic and Save, Sam Prichano Department of Housing and U r ban Popeyes Famous Fried Chicken DeveIopmen t Les Potter, Principal, Andrew Boyer & Boyer Architects Jackson Senior High School State Representative Corrin e Brown PYA Monarch Wayne Brunson, Atlantic Ban Renaissance Center Springfield Branch Reynolds, Smith & Hills , Architects City of Jacksonville Planning & Planners Depa rtmen t Shephard Associates, Architects City of Jacksonville Property Springfield Atlantic Bank Appraiser's Office Springfield Realty, Inc. Clements, Rumpel, Goodwin, Sue's Swee t Shop Archi tects Linda Sullivan A . R. CogsweI I Susie Wiles, John Croft Dale Eldridge, City Information Ray Courson & Associates Services Cowford Blueprinting Lynwood Willis, Willis Association Design & Development Associates, Saxelbye, Powell,- Roberts and Inc., Bill Mauzy Ponder, Inc., Architects Fairfield Correctional Institute WJKS-TV-17 Florida Blueprint Service Florida Jr. College at Jacksonville, Dr. Charles C. Spence, President Florida National Bank, Jim Doss Flowers Bakery C Main Street ) David Fort Mayor Jake Godbold Marvin Ganson Senator Arnettee Girardeau Andy Granger Appliance Co. The Graphics Arts Center The Haskell Company Wayne Hightower, Wayne's Pa wn s hop John Hicks, Jacksonville De par tme n t of Housing Urban Developmen t Allen Hughes, Ralph's Pawn Shop Huggins and Othen Tire Serv ice, Way ne Johnson Jacksonville Department of Housing and Urban Development Jacksonville Electric Authority Jacksonville Historic Landmarks Comm i s s i on Jacksonville Hotel Supply 75 0 IOLIOGRAPHY

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