Celebrating the River: a Plan for Downtown Jacksonville

CELEBRATING THE RIVER: A PLAN FOR DOWNTOWN JACKSONVILLE

In early 1977, citizens and city leaders took up the challenge of restoring downtown Jacksonville to a vibrant district with many options for living, working and playing. Public input has played an important role in meeting that challenge, and substantial citizen involvement in committees, public meetings and community forums culminated in the development of this master plan for revitalizing Jacksonville’s downtown.

Celebrating the River: A Plan for Downtown Jacksonville is a road map that provides the basis for all future downtown development. It directs and recommends where development should take place and what type of development it will be. It includes projects that can be implemented quickly and others that will take much longer to complete. It focuses on the natural asset of the scenic St. Johns River which fl ows through the heart of the city and anchors both banks of the river to the downtown core. It also capitalizes on our climate, creating green space, pedestrian right-of-ways and scenic vistas. It is our vision and blueprint for future development opportunities, and something of which we can all be proud.

Downtown Jacksonville is the heart of the city. It can and should refl ect the beauty, diversity and vitality of our entire region, and this master plan provides the guidance needed to make that vision a reality.

Mayor John Peyton City of Jacksonville C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

VISION STATEMENT

acksonville aspires to be one of the Jworld’s great cities. Downtown is the heart of Jacksonville and its vitality is critical to the city’s future as a world-renowned livable place.

The community and its leaders believe downtown Jacksonville continues to be the regional capital for commerce, government, culture and entertainment. It will feature pedestrian development in new and historic neighborhoods. It will have ample green space accessible to an intensive urban park along the St. Johns River. It will have a strong, progressive transportation system.

DESIGN THEME

e have refined the vision for WDowntown Jacksonville by creating a comprehensive design theme that sustains the principles and policies contained in this master plan.

Jacksonville is the celebration of a great, international river and extensive public green space, where city parks and attractive water features are essential components of busy, sustainable urban neighborhoods.

Prologue 1 DOWNTOWN JACKSONVILLE MASTER PLAN

FOUR IMAGES OF DOWNTOWN JACKSONVILLE

Public participation was an essential component of this Plan. We held public workshops to help us better understand the aspirations that Jacksonville’s citizens have for their downtown. Participants were encouraged to dream a little. Four images of Downtown Jacksonville were created; they represent a long-term vision of Jacksonville’s future.

THE RIVER CITY CIVIC OPEN SPACE

Photo taken by: Robert H. Linger Night at the Jax Landing ‡

Imagine Jacksonville being known throughout the world as one Imagine downtown on a cool spring afternoon. Your lasting of the great ‘river’ cities, a place synonymous with life on the impression is of green, tree-lined avenues and the sound of water. The river has become a natural meeting and gathering water, either from the city’s numerous fountains, or from its place towards which residents and out-of-towners are naturally pocket parks. In the evening, these well-lit open spaces be- drawn. ‘On the River Downtown’ has become the best address come the venues for all sorts of events, drawing crowds from in Jacksonville, whether you and your family have moved to the the suburbs as well as those lucky enough to live downtown. region from some other part of the world or whether your As you enjoy the festivities, you agree wholeheartedly with business has sought out the most prestigious location in north- the sentiment that Jacksonville really is a livable city. east Florida.

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SPORTS AND RECREATION CULTURE CENTER

Times-Union Center for the Performing Arts ‡ You live outside Downtown Jacksonville, but for you it’s the cultural hub where you spend a good deal of your leisure hours. Since Jacksonville has emerged as a city of arts and You’ve heard about Jacksonville but this is your first visit to culture, expensive trips to New York or Washington, D.C. have the City. Your team has made it to the Superbowl and it will fallen by the wayside. You have out-of-town visitors more be the first time that this prestigious game has been hosted frequently and they always insist that part of their trip be by one of the NFL’s newest franchise cities. This is a once-in- spent downtown. They’re even encouraging you to ‘make the a-lifetime trip for you, so you intend to enjoy everything about move’ to one of the smarter streets in downtown. the extended weekend — even if your team loses.

Prologue 3 important component of former Mayor Delaney’s C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

We identified issues that stood in the way · Defining distinct areas or neighborhoods of our vision within downtown The Executive Steering Committee and its · Concentrating activity within the neighbor- Advisory Committees identified a number of hoods to build a critical mass of people issues that stood in the way of fulfilling the vision, including: We carried out a series of workshops, · A lack of diverse activities essential to a reaching hundreds of citizens and com- dynamic downtown munity leaders · Poor pedestrian connections As part of the planning process, a series of · Concern that downtown was not a safe public workshops were held to solicit place for its citizens reactions to the work done by the Advisory · An absence of downtown residents Committees and to refine the proposed · No sense of identity recommendations into a master plan.

We recommended solutions In addition to the workshops, a public website After identifying the issues, the Advisory was launched to solicit feedback from a broader Committees recommended solutions on how audience using modern technology. to turn the dream into reality. The recommen- dations included: In addition to the work being done by the 1999 Jacksonville Public Workshop; One of a series of · Creating a mixture of diverse civic, social, committees, the City retained a professional workshops. ± cultural and entertainment activities consulting team to carry out three tasks. The dispersed throughout downtown consulting team assisted the Executive · Supporting local employers currently Committee by completing a transportation located downtown and recruiting new study and a market study and synthesized all businesses to downtown this activity in the form of this master plan.

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Prologue 5 DOWNTOWN JACKSONVILLE MASTER PLAN

P L A N A R E A

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THE PLAN

THE FRAMEWORK FOR OUR IDEAS Page 9 Principles of the plan

OPEN SPACES AND PEDESTRIAN PLACES Page 11

The River and emerald necklace, of open spaces connected by pedestrian links to form an inte- grated network.

POLICIES AND DESIGN GUIDELINES Page 12

Setting the standard of excellence in Jacksonville

THE DISTRICTS Page 20

Opportunities for downtown districts

OUR LEGACY PROJECTS Page 36

Strategic plans

Page 45 MASTER PLAN AREA TRANSPORTATION NETWORK

Improved transportation plans for downtown he Downtown Master Plan includes all areas contained within the Tofficial boundaries of the Downtown Development Authority. The plan area is generally bounded by State Street on the north, Interstate THE MARKET Page 50 95 on the south and west, and the St. Johns River on the east. Market analysis to support the plan Surrounding neighborhoods are important to this plan. They are centers of economic and social activity that help provide Jacksonville with its unique character and they represent important nodes from which ACTION PLAN AND T IMELINE Page 52 downtown can build strength. In some cases, surrounding neighborhoods Implementation strategies can benefit from enhanced links with downtown, drawing on the eco- nomic activity that this plan aims to generate.

Prologue 7 DOWNTOWN JACKSONVILLE MASTER PLAN

8 A farmers market under the shade of the ASE tracks creates a vibrant downtown street life on weekends. Textured paving and comfortable seating areas form a place for people of all ages to relax and interact. C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

PRINCIPLES OF THE PLAN

his master plan is the culmination of a partnership Tbetween the City of Jacksonville and its citizens. It sets out to fulfill an exciting vision that we realize will take many years to attain. We intend to immediately implement a series of short-term projects that, as a whole, will change the face of our downtown. The following principles are the foundation of our new downtown master plan. The design themes, plan framework and policies of the plan stem from these principles.

1 We will improve access to our river banks, creating a greenway of substantial amenity to our citizens. 2 We will develop clearly defined downtown districts Our plan will build on the strengths of the existing river walk and the Jacksonville Landing. ± with distinct identities and a mix of uses and identify which district would be an appropriate location for major public capital investment projects. 3 We will develop interconnected, attractive and safe pedestrian links among neighborhoods, activities and open space. 4 We will encourage adequate, well-designed and strategically placed parking throughout downtown. 5 We will recognize open space as a valuable development asset. 6 We will provide a sustainable system of connected public open spaces that encourages variety, both in terms of size and function. Water and natural features will be important elements. 7 We will establish downtown as a 24-hour city and as a new location for residential development, a regional destination for tourists, conventioneers, and local residents. 8 We will enhance the perception of downtown as a safe place. An active Hemming Plaza on a sunny afternoon. ‡ 9 We will pursue short-term actions that help us achieve our long-term vision.

The Framework for Our Ideas 9 DOWNTOWN JACKSONVILLE MASTER PLAN

T H E O P E N S P A C E A N D P E D E S T R I A N P L A N

The Emerald Necklace connects neighborhoods to the river through a variety of pocket parks, boardwalks, creek-side trails, and streetscape inviting pedestrians and bicyclists to explore downtown through a series of green spaces.

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THE OPEN SPACE AND PEDESTRIAN PLAN To emphasize the connection to the river, Hogan’s Views encourage people to linger downtown CREATES THE PHYSICAL FRAMEWORK OF THE Creek will form the first part of the necklace and Physical connections are not the only way to link the McCoy’s creek the second. river to downtown neighborhoods. One of the most MASTER PLAN. important methods we can employ to bring the river Parks are legacy projects adding value to into surrounding neighborhoods and entice people to he Open Space Plan is the starting point for surrounding land parcels come down to the river’s edge is to establish view Tmaking Jacksonville a more livable city. It organizes Our vision for Downtown Jacksonville includes the corridors. public spaces and pedestrian places so that they link creation of parks in the center of downtown, our neighborhoods, individual buildings and the St. Johns legacy to future residents. The yellow arrows on the plan indicate views of the River. river to either be created, preserved, and enhanced. The parks will provide the links to the river as well as These views of the river do not start at water’s edge, Our Plan Components raise property values in adjacent neighborhoods. Parks but are located at the inland culmination of corridors, · The river will serve as catalysts for the redevelopment of such as streets or parks that terminate at the river. · The emerald necklace adjacent blocks with a mixture of residential and · Parks neighborhood serving uses. The economic impact of Sustainable stormwater management · Pedestrian connections the parks will be felt not only by adjacent properties, encourages dual-use of facilities · Views but by the entire downtown. · A sustainable plan for storm water management The open space plan proposes a network of storm water ponds that complement the landscape and Pedestrian connections link centers of The river is Jacksonville’s unique international function as visual amenities—ponds will be designed downtown activity with shallow slopes and landscaped edges to take on asset The open space and pedestrian plan identifies a series the appearance of small lakes. One of the main goals of the open space and pedes- of pedestrian links. These links are intended to trian plan is to recognize the important role the river maximize the potential of the overall park system by Possible locations for storm water ponds include: plays in attracting people to downtown and to providing connections between small pocket parks, the · Open space network/emerald necklace preserve and enhance public accessibility to the river emerald necklace and the river. and its recreational opportunities. · Under interstate overpasses · A network of ponds along the edge of The importance of the pedestrian system–identified by Interstate 95 Currently the impact of the river is felt mainly by the continuous red line on the open space plan–can adjacent properties. To maximize the influence of the not be over stated. The creation of the emerald river throughout the city, connections to the St. Johns necklace is a long-term project. The pedestrian system River must be forged. These connections will be offers both short and long-term solutions in the created through the implementation of the other parts creation of the overall open space systems. Main of the open space and pedestrian plan. pedestrian links include:

The emerald necklace links the river to other · Riverfront parts of downtown · Hogan’s Creek The second component of the open space and · McCoy’s Creek pedestrian plan is the creation of an ‘emerald neck- · Main/Ocean Street Corridor lace’—a ring of parks and open space connecting the downtown neighborhoods to the river. The emerald necklace will function as the seam binding individual neighborhoods together. 11 Open Spaces and Pedestrian Places DOWNTOWN JACKSONVILLE MASTER PLAN

PLAN POLICIES We will develop an attractive, comfortable and safe pedestrian t the beginning of this plan, we environment that provides A stated nine principles to guide the connections between commercial redevelopment of downtown. The and residential activities and open following policies are intended to space by . implement our principles. · Providing an interesting sidewalk We will improve access to our river environment for pedestrians banks by . · Encouraging a mix of uses in · Extending the river walk wherever buildings, with publicly accessible and whenever possible uses on the ground floor · Creating strong visual and pedes- · Extending commercial activity into trian links from downtown streets the public realm; encouraging · Encouraging the continued imple- sidewalk cafes, street vendors, mentation of strategies to reduce street performing on sidewalks and pollution and restore the aquatic in public open spaces The St. Johns River and the city skyline gives Jacksonville a strong habitat of the St. Johns River We will take a new approach to sense of place. identified in the River Agenda, the downtown parking by . City and State’s commitment to · Encouraging retail use of the ground preserving Jacksonville’s greatest floor of parking structures adjacent natural resource to public right-of-way We will develop clearly defined · Prohibit new surface parking lots in districts that have a distinct the Central Civic Core District identity and include a mix of uses requiring all new parking to be by . provided in structures · Recognizing that major public · Lowering required parking ratios as capital investment projects can the market allows, as well as significantly enhance district encouraging the use of transit development and character · Counting on-street parking towards · Building on the existing district meeting parking requirements character and uses · Locating parking at the rear or side · Concentrating activity, as much as of buildings possible, around catalyst projects · Requiring no additional parking for within districts structures that are being renovated for new uses in any zoning district · Allowing parking to be shared in Future residential development in the Riverfront District - mixed-use projects Berkman Plaza (Source: Andrew King)

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We will recognize open space as a We will enhance downtown as a 24- valuable asset to surrounding hour city, a regional destination for development by providing a sustain- tourists, conventioneers, and local able system of connected public residents by open spaces that vary in size and · Encouraging a diversity of activities function by downtown · Framing open space with buildings · Encouraging a mix of uses within · Orienting building entries, plazas, districts, blocks and buildings courtyards, terraces and balconies wherever possible to open spaces · Promoting downtown as a place to · Providing urban plazas, civic open live space and parks for active recre- · Promoting the rehabilitation of ation, neighborhood community existing buildings to provide parks and shady green places for housing, office, institutional, com- quiet contemplation mercial and visitor destinations Our plan calls for more water front gathering places, like · Using green space to link activities · Encouraging entertainment and this one at the Landing. · Providing each district with a nighttime uses on the streets common green open space and between the Performing Arts pedestrian links to it Center and the Florida Theatre · Creating a master plan for storm We will enhance the perception of water retention systems that can be downtown as a safe place to be at incorporated into open space night by amenities · Clustering cafes and entertainment · Allowing grading and slopes around venues that are open at night, storm water retention areas to locating them on the ground floor facilitate the removal of fences and, of buildings where appropriate, create hard · Improving streetscape and pedes- scape environments trian lighting · Using pavers and special surfaces to · Encouraging the development of connect public open spaces housing downtown · Providing evening activities in public spaces

An attractive, shaded sidewalk always encourages pedestrians to linger. Laura Street, Jacksonville ±

13 Policies and Design Guidelines DOWNTOWN JACKSONVILLE MASTER PLAN

URBAN DESIGN GUIDELINES These guidelines apply to all districts.

he policies of our plan lead naturally Intent: To clearly define gateways Tto a set of guidelines; for those into downtown. responsible for improving downtown · Identify gateways with landscaping and for developers interested in and special features implementing new projects in Jackson- · Support public investment in ville. The following guidelines, therefore, Jacksonville’s gateways by identifying address three important urban ele- and promoting commercial uses ments: nearby · The broad downtown urban Intent: To encourage enticing views environment that is so important to of the river from as many places in Jacksonville’s sense of place downtown as possible. · The streetscape; that part of the · Create views to the river down the public realm that is most important following streets: to the pedestrian; the sidewalks and — In the Central Core and their environs beyond Main, Ocean, Newnan, Creating a clearly defined gateway. Monroe Street, Jacksonville ± · Development sites; where Down- Market, Liberty, Laura, Hogan, town Jacksonville’s future is created and Points along Gator Bowl in the form of new buildings Boulevard — In Brooklyn Jackson, Dora, The following urban design guidelines will Forest, Roselle help us implement our vision for down- — In Southbank Hendricks, town. They promote flexible design of Miami, Montana public and private spaces and encourage · Encourage the creation of views quality development. from buildings to the river, through buildings, and across the river to Guidelines for Public Spaces buildings The following guidelines encompass the development of public spaces, including Guidelines for Connections parks, open spaces and public right-of- Downtown way’s, particularly the gateways to The following guidelines are intended to Jacksonville, views throughout down- create a new network of improved pedes- town, and pedestrian orientation. trian connections between the various dis- tricts and the proposed open spaces. The pedestrian connections identified in the Open Space and Pedestrian Plan will be The Northbank Riverwalk is an important River front connection that implemented through the addition of off is also a gateway. This presence is enhanced by the display of banners street pathways in public sidewalk system and creative landscaping features. ±

14 C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE with the trees, pedestrian scale lighting, · Provide connections to Hogan’s signs and other features that enhance the Creek along Ashley, Church, Liberty, pedestrian environment.. The main focus Main and Ocean Streets is on creating pedestrian and bicycle links Intent: To provide connections between major anchors and activi- that encourage visitors and the residents ties. of Jacksonville to enjoy the different ameni- · To the Performing Arts Center down ties downtown has to offer. Hogan and Water Streets · To the Convention Center along These design guidelines apply to all Water and Bay Streets districts. · To the Landing along Hogan, Laura and Main Streets Intent: To maintain traditional block patterns with a grid of · To the Florida Theatre down Forsyth streets. To eliminate vacant streets and the alleys in between and minimize the creation of super · To Adam’s Mark Hotel along Bay blocks, wherever practically pos- Street and Coastline Drive sible. · To the Stadium along Bay street and · Encourage new large development Gator Bowl Boulevard Streetscape design with landscape signage and pavers improves the proposals to respect the existing · To the Government Center up pedestrian experience Jacksonville downtown street Hogan and Laura and along Bay pattern Street Intent: To provide connections that · Encourage ground floor uses that maximize the asset of the St. Johns link activities and relate to the theme River. of the area · Provide a continuous public Intent: To provide connections walkway along the north bank of within and beyond districts. the St. Johns River from Metro Park · Provide links to open space within to Memorial Park the district and to other districts · Reunite the city with its river by through landscaped connections protecting existing connections to Intent: To provide connections from the river and creating new connec- downtown to the adjacent neighbor- tions wherever possible hoods. · Improve river walk connections to · To San Marco along Hendricks the Southbank at the Main Street Avenue and San Marco Boulevard and Acosta Bridges; make smoother · To Springfield along Main, Pearl, Broad and more pleasant transitions from and Jefferson Streets bridges to sidewalks · To Riverside and Brooklyn along Park Intent: To create a series of down- Street and Riverside Avenue town connections to open space. Our plan proposes more parks, like this one opposite the Florida Theatre. ± · Provide connections to McCoy’s Creek along Stonewall, Jackson, and Dora Streets 15 Policies and Design Guidelines DOWNTOWN JACKSONVILLE MASTER PLAN

Streetscape Design · Remove all utility poles, lights, Guidelines meters from the pedestrian zone and relocate them in the amenity zone; install underground utilities he beauty and livability of a city whenever possible Tdepends greatly on the design of its · Use consistent, continuous widths streets. The character and quality of the of concrete for sidewalks space between the curb and the face of · Comply with ADA (Americans with a building has a lot to do with the way Disabilities Act) people walking in the city feel about it. · Widen sidewalks along all intra- Creating comfort for the pedestrian is district streets to have a minimum an important way to generate positive of 8’ wide clear walking area, and economic activity on the streets. amenity zones between 5’ and 8’ wide, at minimum treetscape is composed of two · Widen sidewalks along all inter- S elements: the clear walking area - district streets to have a minimum the pedestrian zone - and the area of 10’ wide clear walking area, and between the curb and the sidewalk - the Broad sidewalks encourage pedestrians. ‡ amenity zones a minimum of 8’ amenity zone. These zones are typically wide distinguished by a change in materials, · Build sidewalks in selected places in from hard materials to greenery, though the core and commercial areas that in areas of high pedestrian traffic the are wide enough to accommodate amenity zone may include less planting sidewalk cafes, clear walking zones and more paving. Elements that should and amenity zones, 22’ minimum be located in the amenity zone include: from building face to the curb street trees, ground cover or paving · Build sidewalks in residential areas stones, street furniture, trash cans, that are a minimum of 5’ width; kiosks, lights, utility poles, and parking provide landscaped walking areas meters. under the ASE The following design guidelines apply to · Provide ADA standard curb ramps all districts. in the direction of sidewalk travel at every intersection Intent: To make sidewalks interest- · Use historic interlocking paving, or ing, safe and comfortable places to replicas, in those residential districts walk. To unify the sidewalk and where they originated provide a clear, direct and safe path · Change the paving material at for pedestrians. crosswalks in areas where pedes- · Require developers of new projects trian traffic is high and vehicular traffic needs calming Hemming Plaza offers shade, security, and a nice place to rest or to build sidewalks and install the eat lunch during a busy day. ± streetscape that is designated for the area and to provide ongoing 16 maintenance C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

Intent: To create a unified sense of Intent: To create a sense of security place throughout Downtown and safety for pedestrians. Jacksonville. · Street light fixtures should be no · Plant regularly spaced trees in more than 14’ tall to provide straight rows; the number and adequate lighting at a pedestrian spacing of trees should be based on scale the need to allow adequate room · Continue use of city’s historic for root and branch growth while standard light fixture still providing a continuous canopy; · Fixtures should have sufficient detail trees should be centered in the to create scale for the pedestrian width of the amenity zone · Lights should be spaced 60’- 80’ · Use the same type of tree on each apart to minimize glare and allow side of the street for street trees and traffic lights · Put trees in lawns or ground cover Intent: To encourage pedestrians to wherever possible linger and take pride in the down- · Use paving in the amenity zone town and its districts. Jacksonville’s Treaty Oak Park is a tranquil open space, set where lawns are not practical, and · Provide a unified system of seating, in the busy Southbank District. provide grates and guards to trash receptacles, bicycle racks, protect trees kiosks and bus shelters · Locate trees a sufficient distance · Incorporate elements that are from street intersections to provide unique to Jacksonville’s history and clear viewing distances for cars culture by using historic photo · Provide an irrigation system in references commercial areas · Encourage the use of awnings on · Require that the owner of the the first level of buildings to provide property that abuts the right-of-way shade and protection for pedestri- assume the maintenance of the ans trees and other amenities · Encourage the use of signs that · Provide continuous green and project from buildings and are seasonal color in the amenity zone oriented toward pedestrians along the ground plane wherever · Provide public art at strategic possible locations · Plant the amenity zone with grass, · Require private developers to set perennial ground covers or seasonal aside a percentage of site develop- color as appropriate or provide ment costs for public art pavers in areas of high pedestrian · Encourage the participation of local traffic or amenity zones less than 5’ artists wide · Enhance the Main Street and Acosta Bridges as a recreational loop Landscaping enhances the sidewalk along Riverside Avenue, Jacksonville.

17 Policies and Design Guidelines DOWNTOWN JACKSONVILLE MASTER PLAN

Site Design and Building Intent: To reuse and protect Form Guidelines designated historic structures as well as structures eligible for he following guidelines are intended designation. Tto insure that the design of build- · Rehabilitate the buildings in ways ings supports and enhances the pedes- that are sensitive to their original trian experience. historic character · For new buildings adjacent to The site design and building form historic or eligible buildings, provide guidelines apply to the following massing, windows and a range of districts: Brooklyn, LaVilla, Central Civic materials that are compatible with Core, Church District, Riverfront, the historic building Cathedral, Stadium, and Southbank. · Where rehabilitation of the entire structure is not feasible, encourage Intent: That the design of individual the retention and incorporation of sites will add to the quality of the exterior facade into the new City Hall at St. James ± downtown. building form · Provide clear and separate access · Require the review and approval of for vehicles and pedestrians replacement designs before allowing · Define the street and sidewalk any building to be demolished space Intent: To minimize the impact of · Provide outdoor space that will be parking and service areas in down- used by the public or the occupiers town. of the building · Locate parking lots and garages · Provide visual interest to the away from sidewalks and pedestrian pedestrian, along the sidewalk connections; locate them within fronting the building projects or off of service alleys · Screen and buffer service access · Locate loading and service docks and docks from the public right-of- away from sidewalks and pedestrian way connections · Encourage the service function of · Ensure that the design of parking the alleys lots minimally affect the pedestrian environment · Provide active uses such as shops and restaurants on the ground floor of garages to engage pedestrians Jacksonville has preserved some of its buildings very well. The Florida Theatre, Forsyth Street ± 18 C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

· Require landscape and architectural · Orient buildings perpendicular to treatments to soften the appearance the St. Johns River to allow views of surface lots and structures from interior blocks · Promote development of structured Intent: To encourage development parking, particularly within the that is designed to improve the Central Civic Core, and discourage pedestrian’s experience of surface parking throughout Downtown Jacksonville. downtown · Respect the existing development · Discourage the demolition of patterns existing buildings to create parking · Provide frequent pedestrian entries Intent: To encourage the along the street construction of buildings to provide · Provide balconies from upper floors continuous frontage along of residential units sidewalks. Intent: To encourage developments · Construct buildings to the property with building facades that involve line the pedestrian on the street. · Provide pedestrian-oriented · Avoid undifferentiated building walls Unique architecture adorns the top of the New City buildings with pedestrian-scaled · Create open and inviting facades Hall at St. James. ± elements along their adjacent · Provide human/pedestrian scale sidewalks · Create an active and interesting Intent: To encourage building forms sidewalk presence and massing that respect the · Provide a variety of detail and form context of their surroundings and by addressing variation in wall the pedestrian environment. planes, horizontal and vertical · Step buildings up from the river and articulation, glazing, materials, define height zones finishes and color · Break up the building form to allow views through the architecture, It is recommended that a Downtown particularly down public right-of- Design Review Board be appointed by ways the Mayor and approved by the City · Discourage large undifferentiated Council to administer the design guidelines building masses and encourage and monitor the realization of the intents building breaks of this master plan. The Board will review · Respect the scale of the context in all public work projects, partnerships with which the development occurs the City that require funding and all · Encourage variety in roof forms, projects that require permitting. entry forms, bays, room modules Parking above retail and office space. Forsyth Street, Jacksonville. ± and step-backs 19 Policies and Design Guidelines DOWNTOWN JACKSONVILLE MASTER PLAN

B R O O K L Y N A N D R I V E R S I D E A V E N U E rooklyn and Riverside Avenue are Bcontrasting halves of the same neighborhood. Brooklyn was once an important in-town community with family homes and thriving businesses. Riverside Avenue is a busy traffic corridor and entry to downtown. It is lined with some of Jacksonville’s leading office-based businesses, but has little relationship to the neighborhood to its north. Opportunities Our vision for Brooklyn is to regenerate it as a vibrant mixed use neighborhood and to link it to the river via as many routes as possible. A key redevelop- ment strategy will be to attract creative businesses and individuals, such as graphic artists, architects, sculptors and designers, to this area. The key activity generators are:

McCoy’s Creek · A primary public open space on the emerald necklace · A means of creating valuable amenity for nearby residential development opportunities · A significant pedestrian and bike connection to the St. Johns River and LaVilla

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Park Street Policies & Design Guidelines · Brooklyn’s central spine The following policies and design · An important primary connection guidelines will apply to the Brooklyn to the neighboring district of LaVilla District: · The prime opportunity for creating McCoy’s Creek will become a a pedestrian-oriented mixed use significant public open space and a street anchored at its eastern end neighborhood amenity, as well as a by the activity generated at McCoy’s development catalyst for single and Creek multifamily residences along its edges. St. Johns River Bank · Residential structures will be · A superb setting for new office oriented to creek-side pedestrian space and bicycle paths through the · Provides access to the St. Johns extension of Elm Street along the River from Brooklyn by using the creek edge existing street network and termi- · The McCoy’s Creek path will have nating it with public open spaces at safe attractive links to the adjacent the river residential developments Riverside Avenue Access from the neighborhood to the river will be maximized by · An important gateway to the central extending the street grid toward · Corporate office buildings will be above ground floor commercial civic core of Jacksonville the river, terminating the following encouraged on the riverfront; these uses · A link between Brooklyn and streets as close to the river as buildings will be located between · Sidewalks along Park Street will communities to the south of the possible. the parks that serve as an extension be widened to enhance the new Fuller Warren Bridge · Rosalie Street, Edison Avenue, Forest of the north-south streets noted pedestrian nature of the street above · Streetscape will be enhanced Automated Skyway Express (ASE) Avenue/Price Street, Jackson Street and Dora Street · The Public School (Riverside 4) is a along Park Street to encourage · Could be routed alongside Riverside significant historic building and is a pedestrian activity while Brooklyn will be redeveloped as a Ave. to the Central Civic Core, key adaptive reuse opportunity maintaining the visibility of transit-oriented, mixed-use neigh- LaVilla, Church and Southbank adjacent buildings and shops from borhood with the ASE extension Park Street will be redeveloped to Districts the travel lanes; streetscape will serving as the primary means of encourage pedestrian activity and · Provides a prime opportunity for comply with the guidelines connecting Brooklyn with other will serve as the neighborhood promoting transit-oriented develop- presented elsewhere districts and neighborhoods. center for services that support ment as Brooklyn develops and the residential development. · The site design and building form market grows · Mid-rise and high-rise residential · The development of Park Street’s guidelines will apply to all · Potential for shaded public gathering structures will be encouraged along existing buildings to provide a mix of properties on Park Street spaces and uses under track a landscaped setback next to the ASE alignment between Magnolia uses will be encouraged; this could Street and Oak Street comprise office and residential uses 21 The Districts DOWNTOWN JACKSONVILLE MASTER PLAN

L A V I L L A D I S T R I C T aVilla is one of Jacksonville’s most historic L neighborhoods and it is in transition. It has been a slow process of Revitalization started previously by the River City Renaissance Bond Initiative. It has several landmark buildings, including the restored train station—now the Prime Osborn Convention Center—and the reopened Ritz Theater, and some of Jacksonville’s newest streetscaping.

Opportunities The City of Jacksonville has actively marketed its land holdings in LaVilla, attracting several commercial proposals and locating various public- funded projects, such as the School for Performing Arts, in the neighborhood. This activity has set a strong urban-edged tone for LaVilla. The new Winn Dixie, the Ritz Theater and the Urban League project have reinforced this sense of a developing in-town neighborhood.

We envision LaVilla to be a vibrant, mixed-use urban district where commercial, cultural, enter- tainment, light industrial uses and urban housing such as loft apartments and walk-ups coexist side by side and create the synergy needed to sustain a neighborhood. The key activity generators are:

New Cultural Facilities for LaVilla · The School for the Performing Arts, the Ritz Theater renovation and the Urban League Project have potential to form an important synergistic pocket of activity within the neighborhood · Stronger, secure pedestrian links to the Central Civic Core and Church Districts along Duval Street and Monroe Street will reinforce this synergy 22 C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

New Commercial and Industrial Policies & Design Guidelines Developments Public investment in LaVilla will be · The new Winn Dixie grocery store strengthened and sustained. · Elkins Constructors, Inc. · The Ritz Theatre district and the Urban · Sally Industries League project will form the cultural center · Lee and Cates Glass of LaVilla · Existing commercial structures that can · Pedestrian connections along Duval Street, either be renovated for light industrial use Monroe Street, Lee Street and Jefferson or loft apartments Street will be enhanced, consistent with the · Opportunities for new urban in-fill streetscape standards developments · The LaVilla neighborhood will be buffered from the visual and noise impacts of The Prime Osborne Convention Center Interstate 95 by green open space · Currently the largest activity generator in Quality multi-family housing with ground floor development LaVilla will include a mixture of would help revitalize LaVilla. Addison Community, Dallas, Texas LaVilla commercial, industrial and residential uses, · Serves as an important Landmark Building deliberately designed to be in close for Jacksonville for all outsiders who pass by proximity to each other and to appear to Jacksonville on nearby Interstate 95 maximize lot coverage. · A Historic Building and Vital Rail Hub which · Commercial and Industrial uses will be helped fuel the early development of encouraged throughout LaVilla Jacksonville and the rest of Florida · Neighborhood-serving retail and incubator business opportunities will be encouraged Open Space Network throughout LaVilla · Smaller parks in the emerald necklace · Urban housing types such as warehouse lofts between Duval Street and Monroe Street and walk-up apartments above ground floor · Pedestrian pathways and sidewalks linking commercial will be encouraged between McCoy’s Creek and Hogan’s Creek along Lee Broad Street and Jefferson Street Street and Jefferson Street · The urban street pattern of LaVilla will be · A means of bringing substantial public respected by maximizing lot coverage, by amenity to LaVilla avoiding low density development and by · A way of creating an attractive buffer bringing uses close to the sidewalk between the Interstate and the heart of · Transit-oriented development will be LaVilla encouraged adjacent to the existing skyway · The location for a progressive means of stations addressing surface water drainage through Investment in LaVilla is already underway. The Ritz Theatre and Urban League the creation of wetlands and ponds along the interstate

23 The Districts DOWNTOWN JACKSONVILLE MASTER PLAN

C H U R C H D I S T R I C T he Church District is Tdominated by the presence of the First Baptist Church. The church fills many blocks with its activity, but to the west of the neighborhood, empty or underused blocks present a different character. These blocks are often bordered by poorly maintained sidewalks and streets blighted by fast- moving through-traffic.

Opportunities Educational and religious establish- ments bring life and vitality to urban neighborhoods, offering opportunities for retailers, improving public safety and often enabling the reuse of commercially non-viable buildings. The Church District is a transition between the mixture of urban uses that form the character of the LaVilla neighborhood (supported by the School for Performing Arts), the predominantly residential character of the Cathedral and Hogan’s Creek District, the campus of the Florida Community College to the north and Central Civic Core District to the south. We envision the Church District as a locale where businesses support the local student population and religious uses.

24 C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

The key activity generators are: Policies & Design Guidelines Education, civic and religious Florida Community College of activities will be the focal point of Jacksonville (FCCJ) this district. Wherever possible, · Jacksonville’s premier downtown development will be encouraged to educational institution support and enhance the · Close proximity to Central Civic educational and religious character Core allows for educational and of the district. professional interaction · Development will be encouraged to · Proximity to nearby School for capitalize on the educational theme Performing Arts encourages synergy by enhancing connections to LaVilla · Future growth and development and the School for the Performing could be accommodated on nearby Arts vacant land parcels New development and redevelopment of existing Churches properties should encourage a · Predominant land owners mixture of uses and pedestrian · Owners of large surface parking lots oriented design. that could, in time, bear different · Strong north/south pedestrian more attractive, uses connections will be created across · Potential to provide retail services State Street and Union Street · Potential to be a catalyst by · Large surface parking lots are improving their property and the considered a poor use of land and adjacent pedestrian linkages should be minimized or eliminated · A champion project for promoting where possible the design guidelines leading through · New development or example, prototype projects redevelopment of existing properties will be consistent with the site development guidelines contained in this master plan · Improved streetscapes will be consistent with the guidelines contained in this master plan

A view of the river from above the Church District

25 The Districts DOWNTOWN JACKSONVILLE MASTER PLAN

T H E C E N T R A L C I V I C C O R E D I S T R I C T he Jacksonville Landing and the Performing TArts Center are the only centers of activity open in the downtown after 5 o’clock. There is ample opportunity for extending activities to a wider area of the Civic Core. Opportunities The Civic Core has a workforce that represents an important potential market. It also has a strong visual image, with its skyline reflecting in the surface of the St. Johns River. Several older landmark buildings are vacant and have potential for redevelopment with ground floor retail. The revitalization enhancement of Hemming Plaza shows the potential for bringing more life to downtown. In addition, the creation of a Business Improvement District (BID) will make downtown ‘clean and safe’ by providing up to $1 million dollars per year to upgrade city services and implement security, marketing and beautification programs. The key activity generators are:

The St. Johns River · The natural destination for visitors and a special place for those working downtown · The Performing Arts Center and the Jackson- ville Landing provide places for the pedestrian to linger and enjoy the river · The Riverwalk provides unique pedestrian access · Main Street and Acosta Bridge provide pedestrian and recreation opportunities with views of the River and the skyline

Hemming Plaza · Jacksonville’s best public square · Provides an important anchor, with consider- able potential for further development, on the northern end of the Laura Street/Landing axis 26 C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

The Laura / Main / Ocean Corridor Improved Pedestrian Links through and out of · Vital gateways and connections to the river, the civic core these streets will set a new tone for downtown · From Jacksonville Landing to Hemming Plaza · Main and Ocean are the primary links to the · From the Adam’s Mark Hotel to The Performing Riverwalk and the main street bridge Arts Center · Laura Street, with its terminus at the Landing, is · From the Adam’s Mark Hotel and the Florida an ideal pedestrian link to other major down- Theater to Hemming Plaza town landmarks, such as the City Hall at St. James, Hemming Plaza, the Policies & Design Guidelines proposed Jacksonville Museum of Modern Art, The Civic Core will develop further as the First Baptist Church, the Bank of America Tower premier cultural and entertainment district and the Modis Building within downtown. · Activity along these streets will serve as a · A place for live entertainment and museums and catalyst for the revitalization of the streets that evening activity generators run east to west through the core · Ground floor spaces on interconnecting streets Location of New Public Facilities and alleyways will be promoted as potential restaurants, bars and coffee shops · Construction of a new County Courthouse in the vicinity of the government cluster created by Provide additional parking facilities in the New Federal Courthouse adjacent to Hemming Plaza. the recently relocated City Hall at St. James and Civic Core which promote strong pedestrian (Source: KBJ Architects) the new Federal Courthouse and urban design features for downtown · Construction of a new downtown main library visitors and workers in the vicinity of Hemming Plaza and the Laura/ · Prohibit new surface parking lots in the Central Main/Ocean Corridor complementing the recent Civic Core District requiring all new parking to investment by the Museum of Modern Art, the be provided in structures St. Johns River City Band and the City · Discourage the demolition of historic buildings Restoration and Adaptive Reuse of vacant and/ for the construction of parking facilities, at a or Historic Buildings minimum require the retention and incorpora- tion of the historic facade within the new · Renovation of the May-Cohen’s Department building form Store into the new City Hall at St. James, the · Consider policies which retrofit existing surface center of City Government lots to meet the standards of the landscaping · Restoration of the Seminole Club, the Galleria requirements of the zoning code Building into the proposed Jacksonville Museum · Require newly constructed parking garages to of Modern Art, the Elks Building, and the Snyder have commercial and/or office uses on the Memorial Church into the St. Johns River City ground floor Band facility Laura Street has a strong sense of place, but lacks pedestrian · Encourage the construction of new parking · Several other vacant or underutilized buildings activity. spaces in the civic core for downtown workers are available to complement the development and visitors 27 already underway The Districts DOWNTOWN JACKSONVILLE MASTER PLAN

T H E C A T H E D R A L D I S T R I C T he Cathedral District contains Tmany of Jacksonville’s landmark churches and a large number of at-grade parking lots. Several of Jacksonville’s fastest downtown roads run through this area and, together with the parking lots, they undermine the serenity and architectural appeal of the churches. Hogan’s Creek forms an eastern bound- ary, between the traditional street pattern of the neighborhood and the super blocks of the Stadium District.

Opportunities The Cathedral District has the potential to become a revitalized residential neighborhood adjacent to the main employment center in the Civic Core District. The traditional street pattern with its mixture of churches and residences, bounded by the Civic Core and Hogan’s Creek, create a neighbor- hood with significant potential.

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The key activity generators are: · Development of in-fill housing will be consistent with the site design Hogan’s Creek and building form guidelines con- · On the emerald necklace, it forms tained in this master plan the northern and eastern perimeter Residential development will be of district supported by neighborhood serving · It provides a major amenity for the commercial uses. land parcels that form its border · Liberty Street and the east side of · It is a prime recreation opportunity Ocean Street will be recognized as for residents important links into and through the · It creates a strong connection to the neighborhood; commercial uses will river front be encouraged along these streets · It is close to the planned residential Churches will be recognized as development important to the success of the neighborhood. The Churches · In-fill housing will be sensitive to the architecture and building scale of · A fine collection of historic buildings existing churches that set the tone for the neighbor- · The Cathedral will serve as a focal hood point for the residential neighbor- · They provide important landmarks hood on the west side Immaculate Conception Catholic Church, a national historic between which pleasant pedestrian landmark, is typical of the architectural standard for which the · Development of new churches or environments will be created district is named. ± expansion/redevelopment of existing churches will be no greater than the Policies & Design Guidelines scale of the surrounding residential The Cathedral District will be uses promoted as a residential neighbor- · Large surface parking lots will be hood. discouraged or, where absolutely · Residential development adjacent to essential, landscaped to create a Hogan’s creek will be oriented to pleasant, pedestrian-friendly maximize the amenity of the Creek streetscape improvements · The Hogan’s Creek trail and open space system will be extended into the neighborhood wherever possible Future housing in the Cathedral District - The Parks at Cathedral. (Source: Rink, Reynolds, Diamond, & Fisher Architects) 29 The Districts DOWNTOWN JACKSONVILLE MASTER PLAN

I N S T I T U T I O N A L D I S T R I C T he Institutional District includes a Tmodern correctional facility and courthouse, the police headquarters, and the Maxwell House coffee processing plant. Opportunities Our goal for the Institutional District is not to try to change the existing character of the district by imposing strict design guidelines, but rather to recognize that the uses in this district are a necessity. Therefore, our focus is on the relation- ship between this district and adjacent districts (Cathedral, Stadium and Riverfront). Policies and Design Guidelines Positive pedestrian connections will be promoted between the Institutional District and Stadium/Riverfront Districts through the use of streetscape on Adams Street, Bay Street and Liberty Street. · Streetscape will comply with the guidelines established in this plan Any development/redevelopment in the Institutional District will recognize the importance of protecting the residential character of the Cathedral District to the north. · Pedestrian connections between the Institu- tional District and the Cathedral District will be limited · The physical barrier between the two districts formed by the viaducts will be maintained as a buffer between the more intense institutional uses and the lower-scale residential uses

The view east along Bay Street, an important link through the Institutional District to the Stadium District.

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he Stadium District includes the S T A D I U M D I S T R I C T TAlltel Stadium, the Coliseum, the Wolfson Ballpark and the State Fairgrounds. On specific occasions, these sporting and entertainment venues attract Downtown Jacksonville’s largest crowds. The events require substantial car parking, rapid road access and temporary support- ing facilities and services. The district is currently a ‘bookend’ for Downtown Jacksonville, providing it with a clearly defined character at its eastern edge. Opportunities The Stadium District offers an entertainment opportunity distinct from the remainder of downtown. The special parking needs of sports and entertainment venues in this district provides a foundation for park-and-ride facilities during the normal work week. Existing industrial structures to the west and east of the district offer the opportunity for additional redevelopment projects. The key activity generators are:

Alltel Stadium Wolfson Park · The special parking needs of · Home to the Jacksonville Jaguars NFL team · Home to Jacksonville’s Minor sports and entertainment venues in and venue for other football games, like the League Baseball Team - the Jackson- this district provides a foundation Toyota Gator Bowl ville Suns for park and ride facilities during · A highly visible national icon for Jacksonville · Activity generator during the the normal working week · Potential future location for the Superbowl summer months · Major activity generator for several days a · The ballpark should be enlarged and Policies & Design Guidelines year improved on its current site to The Stadium District will be accomodate Triple A baseball Coliseum promoted as Jacksonville’s premier sometime in the future sports and entertainment district. The Alltel Stadium dominates its · Downtown Jacksonville’s main indoor surroundings. Increased use of · Existing industrial structures in the entertainment venue Automated Skyway Express (ASE) the Stadium District, throughout · Primarily an evening activity generator, district should be retained and the year, should be an objective. · Provides future possibilities for throughout the year redeveloped for entertainment use linking the Stadium District to the · A new coliseum/arena is needed and should · An increase in the number of Central Civic Core and beyond be built in the district west of Memorial events will be encouraged · Provides a prime opportunity for Coliseum near Hogan’s Creek maximizing its · Links to downtown will be developing park and ride, should a opportunity as an open space and pedestrian enhanced simpler bus-based system prove resource · Parking improvements will be successful 31 promoted The Districts DOWNTOWN JACKSONVILLE MASTER PLAN

R I V E R P A R K D I S T R I C T etropolitan Park is the centerpiece of this district. At Mpresent the Park represents the eastern extremity of Downtown Jacksonville, isolated from the river walk and the civic core by other intervening development sites. Although it has wonderful views of the St. Johns River, the park’s sense of isolation is heightened by the sea of stadium at-grade car parking to the north. Improving connections between Metropolitan Park, the Riverwalk, Kids Kampus, and the Stadium District will better integrate the park into downtown

Opportunities We envision an expansion of Metropolitan Park to connect with the Riverwalk. The key activity generators are: St. Johns River · The southern edge of Metropolitan Park · A slipway and further mooring for small craft will allow more interaction between the river and the park · An exciting way to arrive at the park, whether by water or along the riverwalk · An important link to Kids Kampus, a 2.3 million dollar interactive playground and park including the Catherine Street Fire Station Museum Riverwalk · River Park is the eastern gateway to the Riverwalk · The Riverwalk provides links to Hogan’s Creek allowing visitors to join the emerald necklace at River Park

Policies & Design Guidelines River Park will be known as the eastern gateway to the Riverwalk. To maximize its potential, the following will be included in its redevelopment: · Metropolitan Park could be renamed River Park to emphasize the importance of the St. Johns River and capitalize on the park’s location on the riverbank · The Riverwalk will be expanded to the west to connect to the Riverfront District · Direct access to River Park and visibility of River Park from other districts will be improved through better vehicular, A concert at Metropolitan Park. The extension of the pedestrian and bicycle connections river walk will help increase the use of the park. · A major redevelopment site will be created through the (Source: Judy Jacobson) relocation of the County Courthouse to the Central Civic Core District 32 C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

iverfront District is a collection Policies & Design Guidelines R I V E R F R O N T D I S T R I C T Rof redundant shipyards, Development should seek to government uses and new maximize the unique location of development. The removal of activity the district, incorporating further down the St. Johns River has maritime themes within a left the shipyard site abandoned. The genuine urban setting. site includes the mouth of Hogan’s · The district already is an ideal Creek. location for hotel, specialty retail and up-market residential Opportunities development. Additional The Riverfront District offers development will be encouraged · The district lends itself to a high Downtown Jacksonville a prime density of development, stepping development opportunity and a means back from the river and of creating a prestigious regional maximizing views of the water destination. The district will be Pedestrian and transit links to characterized by commercial other districts and to the open development with a maritime space and pedestrian network influence. Hotels, restaurants, will be emphasized. nightclubs, shops and high-rise · A variety of smaller public spaces residential development will step back will be provided at the from the water which will include a waterfront as part of the marina. The walkway that connects Riverwalk the district to the western terminus of · Pedestrian routes to other the Hart Bridge will be a public open districts and Hogan’s Creek will be emphasized space, with particular emphasis on the · Development will accommodate mouth of Hogan’s Creek. The key the proposed surface tram line activity generators are: running along Bay Street

St. Johns River · The river is the spectacular front door to the district

The Riverwalk · Provides a significant public open space between the river and the The Adam’s Mark hotel will be a catalyst for more develop- commercial and residential ment in the Riverfront District (Source: HBE Corporation) development · Is a visitor draw that brings activity to the district 33 The Districts DOWNTOWN JACKSONVILLE MASTER PLAN

S O U T H B A N K D I S T R I C T

34 C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

outhbank comprises several substan- The Southbank Riverwalk · New road systems arising from Stial modern office buildings occupied · Extends from the Acosta Bridge to further development of the by some of Jacksonville’s leading employ- beyond the Radisson Hotel Southbank will be constructed ers, hotels, museums, restaurants and a · Is a well known public amenity, closer to the river to facilitate public hospital. The district has been developed particularly for those working access with wide fast roads that discourage nearby · Vistas to the river will be created pedestrians. The exception is the · Will form the southern part of a from internal sites and enhanced by riverwalk that links the various museums, loop that crosses the Acosta Bridge stepping back the heights of restaurants and hotels that line the extends along the north bank to the buildings from the river south bank of the St. Johns River. Main Street Bridge and back to the · A new riverfront park will be The closure of the JEA power station Opportunities south bank developed to connect with will create a major development neighborhoods south of I-95 opportunity in Southbank. The Southbank District is predominantly San Marco Boulevard and Southbank will be developed with a an in-town office park that fails to Hendricks Avenue mixture of uses while maintaining capitalize on a river frontage in which an urban form that supports the significant amounts of money have been · Link vibrant San Marco to the civic extension of river views throughout invested. Various river front develop- core of downtown the district and builds on the ment opportunities are expected to · Include an interesting variety of activity along San Marco Boulevard arise over the coming years and each older small industrial buildings and Hendricks Avenue should be used to open up the river · Form the east and west edges of a more effectively. Southbank can also be traditional neighborhood that could · Waterfront entertainment and described as a midtown neighborhood, become a catalyst for further hotels will continue to be providing a vibrant commercial transition residential development encouraged along the river to echo between San Marco, one of the city’s the activity on the north bank of the The JEA Site finest in-town neighborhoods, and the river civic core. The key activity generators · Will be an important catalyst in the · A new mixed-use neighborhood will are: Southbank District be developed on the JEA station site · Should comprise transit oriented · Treaty Oak Park will be framed by St. Johns River mixed-use development differing building masses with a mix of uses · The river forms the northern and Policies & Design Guidelines · Office use will be encouraged south western boundary of the district of Prudential Drive · It offers the chance to provide The unique character of the river Southbank has several large public · Investment is needed to maintain spaces that help enliven its suburban unique visual and physical links that will be maximized and extended the Southbank Riverwalk and character. ‡ would enhance the district throughout the district. Friendship Park · Development will encourage and · Transit-related development permit public access to the river adjacent to ASE station will be wherever possible emphasized 35 The Districts DOWNTOWN JACKSONVILLE MASTER PLAN

Our Legacy Projects

A major component of our master plan is

the creation of a strong and accessible open

space and recreation system. The four most vital links in that system are our legacy to

our children and grandchildren: Hogan’s

Creek, McCoy’s Creek, Riverwalk and Hemming Plaza. The extension of the

Riverwalk and revitalization of the Hemming

Plaza area can be accomplished in the near future, whereas Hogan’s and McCoy’s Creek

will require a long-term effort to see them

through to completion. Along with the principles and policies identified earlier in

this plan, these projects constitute the

foundation on which the downtown vision will be built.

36 Opening our existing creeks through the development of new parks and trails bordered by residences will revitalize our neighborhoods and draw more people downtown. C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

Hogan’s Creek is an essential link in the Emerald Necklace with the development of an informal park along its banks, connecting the Cathedral District 37 Our Legacy Projects neighborhood to the river with meandering trails and pedestrian bridges. New neighborhoods and multi-family residences will frame the creek. Connections to the creek from these neighborhoods will be emphasized with gateway features such as a clock tower. DOWNTOWN JACKSONVILLE MASTER PLAN

H O G A N ’ S C R E E K

38 The Hogan’s Creek legacy project will provide an unobstructed pedestrian and bicycle path along the creek through an informal park, linking Union Street and the riverwalk. The creek will be bounded by new residential development and an entertainment venue that builds on the activity of the Stadium District between Monroe Street and Forsyth Street. C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

HOGAN’S CREEK

key piece of the emerald necklace, Hogan’s Creek can be A one of downtown’s primary recreational amenities and links to the St. Johns River. The redevelopment of Hogan’s Creek celebrates the diversity of the neighborhoods it travels through by linking the new infill residential development in the Cathedral District to a new entertainment venue in the Riverfront District and a new Coliseum located near its eastern bank. It is also compatible with the River Agenda, set by our citizens in 1997.

As the creek makes its way to the river, the character of sur- rounding development will change from natural meadow park bounded by single family homes and townhomes, to a creekside trail leading to Jacksonville’s newest dining and entertainment district with an urban character, and eventually to the river. Accessibility to Hogan’s Creek and surrounding parklands will add value to the adjacent neighborhoods and inland properties.

Key elements of the concept plan for Hogan’s Creek include:

· Development of an open meadow park winding along the creek edge from Beaver Street to Monroe Street · Pedestrian and bicycle trails and bike paths meandering along the creek edge, crossing the creek at intervals, eventually leading to the St. Johns River; access to the park and trails will occur at the terminus of streets adjacent to the creek · Development of new single family and townhouse residential blocks on the west side of the creek between Ashley Street and Duval Street along an extension of Marsh Street that follows the boundary of the creek · Creation of the Hogan’s Creek Promenade between Forsyth Street and Monroe Street on the east side of the Creek beneath the ramp; the Hogan’s Creek Promenade will be the focal point of a new warehouse dining and entertainment complex, the Promenade could be characterized by a maritime history theme and will incorporate a series of interacting pedestrian spaces internal to the new architecture in addition to a festive streetscape that will line its streets; building construction would use brick, timber, wrought iron and other materials that reflect period design.

The new park and creek-side pathways will attract visitors and 39 Our Legacy Projects encourage social interaction among residents of infill housing located in adjacent neighborhoods. DOWNTOWN JACKSONVILLE MASTER PLAN

M C C O Y ’ S C R E E K

The McCoy’s Creek legacy project focuses on connecting the Brooklyn and Riverside Avenue and La Villa districts to the St. Johns River by realigning and widening 40 McCoy’s Creek. Park Street is the major connection to La Villa and the rest of the Emerald Necklace with tree-lined and lighted sidewalks. McCoy’s Creek will be framed with new parks, a youth sports complex, residential development and neighborhood serving retail development along Park Street. C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

MCCOY’S CREEK promenade at the intersection of Park Street and Stonewall Street would be cCoy’s Creek is another key piece of framed by small commercial buildings Mthe emerald necklace, and its to create vistas of the creek and the redevelopment will create one of the adjacent park space. Buildings would jewels of Downtown Jacksonville. It will be stepped-back from the park side. support the River Agenda, set by our · Development of Park Street as a citizens in 1997. The concept for McCoy’s boulevard with a landscaped median Creek is to establish the creek as an and neighborhood serving commercial amenity that can stimulate the creation of infill development. Parking lots and a new residential neighborhood along its decks would be located on the banks and increase the draw of interior of blocks and screened by commercial development along Park liner buildings. Street. Park Street will become the · Establishing new street alignments and neighborhood center of the Brooklyn/ connections for Elm Street, Dora Riverside Avenue District, a place that Street and Jackson Street to create attracts both residents and visitors alike opportunities for new residential with its unique blend of shopping and development. entertainment. · Creation of a new single family neighborhood bounded by Dora Pedestrian scale commercial buildings, Street, Chelsea Street and the Creek. some with residential units above, will line The new alignment of Elm Street a landscaped Park Street connecting meanders along the bank of the creek Brooklyn to LaVilla over McCoy’s Creek. to provide views for all residents. New single-family and multifamily · Development of a new multifamily residential development along the creek residential block, youth sports banks will support the neighborhood complex and park to buffer the creek center on Park Street as well as the new and adjacent neighborhoods from parks and recreation centers created to Interstate 95. Addition of a landscape buffer the neighborhood from Interstate buffer with naturalistic evergreen 95. plantings to screen the creek and the western neighborhood from the Key elements of the concept plan for railway. McCoy’s Creek include: · Development of high-density multi- family residential community between · Creation of a gateway into the Park and May streets. Brooklyn/Riverside and LaVilla Districts at the Park Street Bridge. Formal pocket parks and a waterfront The improvements to the creek basin will serve as a 41 catalyst for new residential development on adjacent Our Legacy Projects properties that are currently undesirable. DOWNTOWN JACKSONVILLE MASTER PLAN

RIVERWALK LEGACY PROJECT

s Jacksonville’s most prized natural resource and amenity, Athe St. Johns River offers numerous opportunities for residents to experience the beauty and serenity missing from other downtowns. To further enable residents and visitors alike to enjoy all the amenities the river has to offer, an extension of the Northbank Riverwalk has been identified as a legacy project. Public access to the river has been emphasized throughout this plan, from the creation of corridors that will allow views from several blocks away to the identification of key pedestrian links along such streets as Main Street, Laura Street and Ocean Street. The proposed extension of the Northbank Riverwalk between Pearl Street and the Fuller Warren Bridge will give complete access to the river between the Brooklyn and Riverside Avenue District and the River Park District. The extension of the riverwalk on the north bank of the St. Johns River is underway. (Source for the three photos on this page: Akel, Logan, & Scaffer Architects) Key elements of the Riverwalk extension project include: · Development of public restrooms · Addition of covered pavilions · Pedestrian lighting · Enhanced landscaping along the waterfront · Creation of a Saturday farmers and arts market under- neath the Fuller Warren Bridge

Proposals for a landscaped pedestrian link that extends the riverwalk under the bridges. 42 C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

HEMMING PLAZA LEGACY PROJECT

oday public parks and squares can serve as Tmajor catalysts for development along their edges. The same was true in the early days of Jacksonville. The center of downtown, Hemming Plaza is one of Jacksonville’s oldest parks. Envisioned by town founder Isaiah Hart as a traditional town square, Hemming Plaza was deeded to the city in 1866 and named ‘City Park.’ The subsequent development of the St. James Hotel just north of the park resulted in a name change to St. James Park. The park’s final and lasting name change occurred in 1898 with the donation of the plaza’s monument by Charles Hemming, a Civil War veteran. Today, Hemming Plaza serves as a respite from the air-conditioned office environment for downtown employees. The renovation of the old vacant May-Cohen’s Department Store into the new City Hall at St. James, the construction of a new federal courthouse at the intersection of Hogan Street and Monroe Street, the conversion of the Elks Building into office lofts with ground-floor Old Hemming restauratns and the renovation of the Galleria · Site furnishing improve- Building into the new home for the proposed ments—benches, urns, trash Jacksonville Museum of Modern Art are just a few receptacles, etc. of the landmark projects being undertaken along · Additional historic pedestrian the edges of Hemming Plaza. To continue the scale lighting and up-lighting revitalization spurred by these projects, we will for trees enhance Hemming Plaza and strengthen its role as · Wall improvements, through a central gathering place. new stucco or other appropriate finish Key elements of the Hemming Plaza Legacy · Historic interpretive plaques Project include: · Additional landscaping · Fountain enhancements · Outdoor seating and booths · The addition of specialty paving such as Proposed Jacksonville Museum of Modern Art (Source: KBJ Architects) with an international theme medallions or ‘picture framing’ pavement areas which provide food and retail · Accessibility improvements to comply with the opportunities for downtown Americans with Disabilities Act 43 workers and visitors Our Legacy Projects DOWNTOWN JACKSONVILLE MASTER PLAN

S T R E E T H I E R A R C H Y

Gateway Business

Intra-District Inter-District

44 C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

The Transportation Network surrounding regional highway system, signs are not consistent in identifying his master plan includes a summary the appropriate entranceways to access Tof the extensive work carried out downtown. by the City of Jacksonville’s consultants on the downtown road network, public Street Improvement Program transport and parking. Their full report Downtown streets will be designated includes data and detailed by a hierarchy of roadway classifications recommendations. The following based on traffic circulation and sections outline the consultants’ main pedestrian activity levels as determined findings. by the downtown districts. Streets will be classified as business, gateway, inter- The master plan must reconcile the district, and intra-district. needs of autos and pedestrians Downtown streets carry widely varying Business streets would center around amounts of traffic and serve different the areas of commercial and retail types of activity and land use. activity. Two-way traffic is encouraged Therefore they function differently from to improve visitor access and promote street to street. Most streets in on-street activity. Many of Jacksonville’s streets are designed solely for the automobile. downtown handle low traffic volumes access to I-95 from Church Street and handicap ramps will be developed and with highly localized destinations and Gateway streets generally connect Ashley Street. The city has requested adopted. often include several travel lanes that with the major downtown interstate to FDOT that these two ramps be are managed by the same traffic control highway and handle comparatively high dropped from plans to reconstruct I-95 Street gateways to downtown will be strategy as the major arterial roadways. volumes of traffic. (I-95 Master Plan). Additional restricted to the several key locations consideration will be given to a new including Forsyth Street and Bay While the downtown roadway system Inter-district streets are links and ramp for Duval that would provide a Street, and the Main Street and the does move traffic efficiently, it is not boundaries between the newly better aesthetic gateway to the Acosta Bridges. Expressway sign will pedestrian oriented and few sidewalks designated downtown districts, parks downtown. Water Street and advertise ‘downtown’ in addition to in downtown meet minimum standards and large open spaces. Independent Drive ramps to the Main providing direction to the peripheral for width and walking clearance. Street bridge may also be considered transit park and ride facilities. Within Sidewalks often are too narrow. The Intra-district streets. These streets for elimination. Closing these ramps the downtown, guidance signs should numerous roadway ramps that connect should have comparatively narrow could allow both streets to be be located primarily on the arterial downtown to the regional highway travel and parking lanes to slow traffic redesigned as commercial roadways roadways directing motorists to the system often encourage high speed with wider sidewalks to support such which would enhance the cultural major visitor parking garages, travel onto local streets. amenities as tree plantings. district. commuter park and ride transfer facilities, and the districts. The The current sign system is not oriented Several ramps leading to the major Uniform principles and standards for wayfarer signs should be redesigned for visitors to Downtown Jacksonville. gateways to downtown will be sidewalk layout and design, furniture to improve their legibility. Outside the downtown on the eliminated. These include ramps with placement, clearance zones and Transportation Network 45 DOWNTOWN JACKSONVILLE MASTER PLAN

P A R K I N G P L A N

2

Use peripheral parking at skyway 1 to divert demand for surface lots Manage type and supply in ASE financial/retailcivic core Peripheral district district Parking

3

Use transit centers with parking to reduce downtown parking demand

46 C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

THE PARKING STRATEGY guidelines require the construction of multiple- use type garage parking that incorporates owntown Jacksonville has fol- street level retail, especially in the Central Civic Dlowed a suburban model for parking, Core District. providing abundant and inexpensive parking with both garage and surface lot facilities that Privatization of municipal facilities will be are publicly and privately owned. reconsidered, particularly if it results in additional visitor parking. The cost of As downtown grows there will be a demand downtown parking should be determined by for additional parking. Most jobs and new the market place. commercial development will continue to concentrate in the Central Civic Core where On-street parking will be encouraged in the new parking guidelines, principles and policies downtown on the local, commercial and are most critical. connector streets as identified in the street hierarchy. The parking plan is based on better management of the type and supply of off- High-capacity parking facilities will be located at street parking in downtown, particularly in the several sites at the periphery of downtown. Central Civic Core. This will help to reduce the need to meet all parking ‘on-site’ and to reduce the large supply The Central Civic Core will encourage garage surface lots which exists in downtown. Parking parking with multiple users including visitors should be provided in garage structures and and other non-commuters throughout the day integrated with the ASE. The potential sites for and evening. Surface parking lots will be consideration include: eliminated in the Civic Core District over the · The Transportation Center site at the timeline of this plan. Convention Center · The ASE DuPont Station in Southbank Additional short-term parking will be provided · A proposed ASE station in the vicinity of in the Central Civic Core for visitors and other Interstate 95 and Union Street Public parking should be easy to find. non-commuter purposes. · A proposed ASE station in the Stadium Orlando, Florida District east of downtown Parking principles will be adopted that combine recommendations for on-site parking, at The parking plan will provide parking at locations peripheral to the downtown and regional transit centers. High-speed, high- throughout the metropolitan areas. frequency transit service emanating from the suburbs can attract travelers and further Urban design guidelines for both surface lot reduce the demand for parking in downtown. and garage parking include plantings, lighting, signage, and other pedestrian amenities. The

Transportation Network 47 DOWNTOWN JACKSONVILLE MASTER PLAN

T R A N S I T P L A N

Trips from Moncrief and Airport

Trips from Orange Park

Trips from Arlington

Trips from Beaches and To San Marco Mandarin

Existing/Programmed Skyway Proposed Skyway Extension

Express Bus from Transit Centers

Peripheral Parking 48 C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

PUBLIC TRANSIT Improving Public Transit: A transit plan based on a series of land use he Jacksonville Transit Authority strategies and linked closely with the T(JTA) is the transit provider in proposed parking plan is described below. Jacksonville. While the JTA has performed well, like many cities, transit ridership is The ASE should be expanded only as effected by the availability of inexpensive development occurs within each of the parking located in Downtown Jacksonville. downtown planning districts as defined in the Other issues impact the delivery of transit master plan. service as well. Further planning should be undertaken to Most major travel corridors to Downtown investigate other potential extensions of ASE Jacksonville experience little congestion or to serve the adjacent urban neighborhoods. significant travel time delay, except during ASE would serve two important functions. It the morning and evening peak periods. The would promote transit oriented development by linking all of the downtown lack of congestion is a good attribute of a The existing ASE system provides an alternative to automobile travel. community, however, it reduces the number districts and surrounding urban residential Jacksonville, Florida ‡ of strategies available to make transit an neighborhoods. ASE also would serve as the attractive alternative to the automobile. main distributor of commuter trips to Typical transit strategies such as separate downtown by linking the major parking rights-of-way or signal preemption attract facilities located at peripheral ASE stations. auto users to transit when congestion allows such strategies to offer travel time ASE should be included in all downtown savings for those using the transit service. commercial and residential development planning and be used to encourage transit The ASE can serve as a important tool to oriented development in each downtown integrating the downtown by encouraging district. higher density development and by helping to restructure parking in facilities away from the downtown.

ASE Central Station in Downtown Jacksonville. ‡

Transportation Network 49 DOWNTOWN JACKSONVILLE MASTER PLAN

The Market If this level of positive response to downtown living were typical of all downtown employees, we would owntown Jacksonville is the business, govern- expect over 7,900 people to be have a definite interest Dment, cultural, and entertainment core of a in downtown living and a further 20,000 people to metropolitan area with over one million residents. consider such an option. This region continues to grow at an impressive rate. Indeed, the metro area enjoys nearly full employment Downtown Jacksonville will offer unique opportunities and a job growth rate twice the national average. for urban living that will differentiate it from its Residential and commercial real estate development is suburban residential edge. The challenge to develop- in high gear, with expectations for continued growth ers will be to offer exciting in-town residential far into the future. products at realistic prices.

There are 65,000 downtown workers and 90,000 Office Market visitors to downtown every working day. This is the Downtown Jacksonville has about 10.3 million square equivalent of 15% of the population of Jacksonville. feet of office space, or 45% of the total Metropolitan Landmark public projects on the north bank funded by Area office total of 22.7 million square feet. Just over the $250 million River City Renaissance program, 20% of the total downtown office space is located on including Alltel Stadium, Times Union Center for the the Southbank. Almost half of the current private office Performing Arts, the new City Hall, and expansion of inventory was completed or started in the 1980s. Down- the Baptist-Wolfson medical complex on the town Jacksonville contains the largest concentration of Southbank serve as catalysts for future private office space in the Jacksonville metropolitan area. investment. In comparison, suburban competition representing 55% When coupled with a national reawakening of interest of the existing market (12.4 million square feet) is scat- in downtowns as places to work, live, shop, and play, tered throughout the Jacksonville metropolitan area. the first decades of the new millennium hold promise Nearly 5.7 million square feet of the this suburban total for the reemergence of Downtown Jacksonville as an is located in 5 southeastern office parks: Deerwood Park, attractive market for residential and commercial real Deerwood Park North, Freedom Commerce, Interstate estate development. Business Center, and Southpointe. As the table on the following page shows, even at full build out, the largest of Residential Market these clusters, Deerwood Park North with 3.9 million In December 1998, a survey of the 7,500 employees of square feet of office space would only represent 38% of six large downtown organizations indicated a strong the current office space downtown. interest in the concept of downtown living. Of the 1,600 employees who responded to the survey, 13.2 Downtown Jacksonville is the Florida headquarters for percent indicated a definite interest and a further 34.4 Bank of America and First Union Bank, and in recent percent would consider living downtown. These “yes” years, has attracted firms in the health insurance and and “maybe” responses are comparable to, if not health care services industries. higher than, responses to similar recent surveys in other U.S. cities. Absorption of existing leased office space has averaged 200,000 square feet per year for the past three years 50 and the vacancy rate has fallen to below 10 percent. C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

Business consolidation continues, but the most active Hotel Market phase appears to be over. Current downtown rent Downtown Jacksonville will be a special destination levels, however, are similar to those found in the that draws and retains its visitors from many Office Development suburban office market without the range of amenities sources and the current range of downtown hotels that can often be offered in these outer locations, will benefit greatly from Jacksonville’s revitalization. Remaining Total AREA Acres Existing Permitted Potential making new private office investments difficult without (MIL./ (MIL./ (MIL./ the support of public funds. There are currently five hotels in Downtown SF) SF) SF) Jacksonville with approximately 1,200 rooms. The 'RZQWRZQ 1675 10.3 9.5 19.8 Though projected new construction activity is modest new Adam’s Mark Hotel will add a further 950 'HHUZRRGÃ3DUN 358 1.6 .8 2.4 compared to the heady 1980s, another 1.5-2.0 million rooms, bringing the total to some 2,150 rooms. 'HHUZRRGÃ3DUNÃ1RUWK 689 1.7 2.2 3.9 square feet of office development is forecast for the )UHHGRPÃ&RPPHUFH 655 .4 1.7 2.1 decade 1999-2010, increasing to 2.0-2.5 million square The most viable locations for new facilities continue ,QWHUVWDWHÃ%XVLQHVV 136 .5 .6 1.1 &HQWHU between 2010 and 2020. to be in and adjacent to the north bank downtown 6RXWKSRLQW 220 1.5 1.1 2.6 core, near major office concentrations, entertain- Retail Market ment facilities, and places of public assembly, as well Retailing in downtown is intimately related to the as in the Southbank District. future of other downtown activities, including office occupancy, downtown living, hotels and conventions, Attractions and Public Assembly Facilities and sports and entertainment. As these other Downtown Jacksonville contains a number of sports, activities grow and bring more workers, residents, and cultural, and entertainment venues and other special visitors into downtown, retail development will service event facilities. The list includes Alltel Stadium, their growing needs. Wolfson Park, Coliseum, Jacksonville Fairgrounds, Times Union Center for the Performing Arts, Our strategy for attracting retailers to downtown will Florida and Ritz Theaters, all on the north bank, and be based on promoting and facilitating growth of these the Museum of Science and History, on the south other activities in locations and clusters Our objective bank. will be to create a critical mass of the type of demand essential to a series of sustainable retail centers. The These public and institutional facilities act as street level frontage of future office and parking important catalysts for commercial development. structures will, once again, be the preferred location Their character, location, linkages, and utilization are for retailers, enlivening the pedestrian realm and key issues. making the sidewalks more secure. As this master plan falls into place, more cultural Future downtown retailing will also include commu- and entertainment projects will be proposed and nity-oriented shopping facilities on the downtown existing ones will be upgraded and improved. It will fringe to serve adjacent neighborhoods. Durkeeville, be important not only to respond to the market’s Springfield, East Jacksonville, and Riverside all lack land needs but also to reinforce the clusters of activity for contemporary retail development and are some- making cultural and entertainment facilities an what distant from suburban shopping center locations. essential component of the neighborhood mix of Downtown and its surrounding neighborhoods have uses. an estimated 67,000 residents in 29,000 households 51 with a potential purchasing power of $240 million. The Market 0EYTONS0RESERVATION0ROJECT C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

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54 C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE

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55 Action Plan and Timeline DOWNTOWN JACKSONVILLE MASTER PLAN

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