University of North Florida UNF Digital Commons
Jacksonville Community Council, Inc. Community and Government Publications
Summer 1985
Visual Pollution Study
Jacksonville Community Council, Inc.
Follow this and additional works at: https://digitalcommons.unf.edu/jcci
Part of the Urban, Community and Regional Planning Commons
Recommended Citation Jacksonville Community Council, Inc., "Visual Pollution Study" (1985). Jacksonville Community Council, Inc.. 4. https://digitalcommons.unf.edu/jcci/4
This Article is brought to you for free and open access by the Community and Government Publications at UNF Digital Commons. It has been accepted for inclusion in Jacksonville Community Council, Inc. by an authorized administrator of UNF Digital Commons. For more information, please contact Digital Projects. © Summer 1985 All Rights Reserved Visual Pollution study A Report to the Citizens of Jacksonville • Summer 1985
SCOPE OF THE STUDY Measures to protect and enhance the visual environment are effectively used throughout the country to maintain and improve the quality of life. Visual pollution controls en hance the economic environment while contributing a positive feeling of the people about their city. The JCCI committee's charge was to determine the responses needed to address visual pol lution in Jacksonville. The study focuses on visual pollution such as sign proliferation and clutter, unscreened junkyards, inadequate landscaping, overhead wires and other eye sores that diminish the quality of life and the natural beauty of the community. The study seeks new ways to improve Jacksonville's image. The scope of this study includes a review and analysis of:
Factors contributing to visual pollution cost and benefits of improving the visual environment COnsequences of visual pollution Individual rights versus community judgment of aesthetics Current laws, policies, and agencies with regulatory powers Enforcement of existing laws Innovative programs in other communities Appropriate regulations and implementation agencies needed to solve the identified problems
HIGHLIGHTS MAJOR PROBLEMS RECOMMENDED SOLUTIONS
Visual pollution is a serious problem in Tb address the sources of visual pollution Jacksonville. The natural beauty of the public officials should: city has been marred by: • Enact new, stronger sign ordinance • Inadequate control of signs • Create a COde Enforcement Board and in • Inadequate enforcement of existing legis crease the number of trained staff lation enforcing code
• •Grandfathering in• nonconforming sources • Remove nonconforming uses after amortiza of visual pollution tion
• Inadequate plans for long term preserva • Implement the 2005 Plan recommendations tion of open space for a stream valley park system
• Lack of commitment to street landscaping • Change policies to promote the greening of city • Unsightly clutter of overhead wires • Plan to convert wires in high visibility areas to underground FINDINGS Findings represent the data base of the committee. They are derived from the published materials listed in the references, facta reported by resource persona or from a consen sus of co.aittee understanding as reported by resource persona.
Aesthetics Citizens in communities Economic Value of throughout the United States Aesthetics CCIUIJNITIBS BAVB A LBGAL have objected to intrusive RIGHT '10 COR"l.'BBL ABS'l'RBTICS. elements that mar the vista ABS'l'RBTIC CONSIDERATIONS and offend the senses of the MAKE GOOD BUSINBSS SENSE. •The concept of the public average person. Many of According to the Joint Eco welfare is broad and in these communities have formu nomic ec-ittee of the cluai ve. The values it lated ordinances designed to United States Congress, a represents are spiritual improve the community's vis city's quality of life is as well as physical, aes ual environment. In the ear more iaportant than purely wa Br thetic as well as .,ne lier days of zoning control, business-related factors 1111 tary. It is vi thin the 110at oour ta would not accept when it coaea to attracting power of the legislature aesthetic considerations as new businesses, particularly Hu Wi to deteraine that a com valid grounds for regula the rapidly growing high munity shall be beautiful Jo tiona. In an attempt to tech and service industries. St as well as healthy, spa address aesthetic problems, Many communities with cious as well as clean J Iv. many communities attempted healthy economies and na Jo well balanced as well as to defend aesthetics under tional images as desirable carefully patrolled.• the guise of implausible Ju places to live, work, and Be1 Berman va. Parker (1954) fictions dealing with safe do business also have repu ty, 110rali ty or decency. As tations as aesthetically The legal decision quoted tinaea and the courts change pleasing communities and above was written by Supreme to respond to the concerns have strong ordinances to Court Justice William o. of citizens, aesthetic con ensure that they remain so. Douglas, and is one of the siderations have become ac Notable among these are Boca 110at far reaching judicial ceptable and have been suc Raton, Florida, Chapel Rill, interpretations of aesthe cessfully defended on num North CarolinaJ Boulder, tic value as a factor in the erous occasions. ColoradoJ Seattle, Washing the public welfare. ton, Portland, Oregon, and It is often argued that Honolulu, Hawaii. s In City Council of Loa Ange beauty is in the eye of the les v. TaxpaYers for Vincent beholder J a building or Sign control is even more *l the u.s. Supreme court also sign that one citizen may important to tourism. Ameri *J found that visual assault ••• find offensive another citi cans spend millions of dol *l is a significant substan zen may consider eyecatch lara each year vacationing *l tive evil within the city's ing, good advertising and in communities that offer *I power to prohibit. This has an economic asset. Never natural, historic and archi 0 been reaffirmed .,at recent theless, in a democratic tectural assets. Such vaca C: ly in Florida by a 1982 society it is possible for tion areas include Palm Yc Supreme Court decision in citizens to agree on many Springs, Lake Tahoe, and C: which the Court noteds of the influences that Carmel, California J Sante P: •cities have the authority blight the visual environ Fe, New MexicoJ Scottsdale, a to take steps to minimize naent. A COIIIIunity'a appear Arizonar Bilton Bead Island, ~ sight pollution ••• • City ance is often important in South carolinaJ Williams 0 of Lake Wales va. Lamar attracting or repelling burg, Virginiar Boca Raton, B: Advertising Association of business, industry and new FloridaJ and Martha's Vine D. Lakeland, Florida Suprenae residents. Many communities yard, Massachusetts. All Court, 1982. across the United Statea these 001111uni ties have re D"" have established and codi cognized that sign and other fied their priorities for visual pollution controls I l aesthetic considerations. help attract tourist dollars J, and aid the local economy. Q 2 Businesses also find that Jacksonville's Progress sign controls can save mon ey. Property values can be IN RECENT YEARS JACKSONVILLE Jacksonville. Greenscape higher when controls protect HAS MADE SOME PROGRESS TO also worked with other civic the environment. Unregu WARD IMPROVING THE VISUAL groups in the development of lated signs may lead to com ENVIRONMENT. THE DESIRE '1'0 a tree and landscape ordi petition among establish ENHANCE THE COMMUNITY'S VIS nance for the city. It ments for the DDst atten UAL IMAGE IS REFLECTED IN serves in an advisory capac tion-getting devices; this PUBLIC AND PRIVATE PROGRAMS ity to the Downtown Develop may escalate, with DDre AND CITY ORDINANCES. ment Authority in downtown DDney being spent on Jll)re redevelopment plans. numerous and bigger signs. Greenscape The end result is that none One of the earliest commu Greenscape works closely of the signs attract much nity projects designed to with the city's Recreation attention, the overall envi improve the visual environ and Parks Division, which ronment is cluttered and ment was the Greenscape Pro plants and maintains these property values decline. gram founded in 1975 by Anne trees, and with the Depart Fewer signs can increase Baker and Susan Fisher. ment of Public Works, which the visibility of each and Greenscape's goal is to is responsible for locating thus are of more advertising beautify Jacksonville underground utilities and value. through its landscape. It cutting sidewalks. acts as a catalyst in civic Most successful private de groups and within the gov Greenscape has long-range velopers recognize the value ernment to create and main plans for downtown vestpoc of attractive design and the tain green spaces. WOrking ket parks, for expanding the need to control the visual primarily in the downtown Adopt-a-Park Program and for environment. Preservation area, Greenscape initiated the greening of the Gator of existing vegetation and several tree planting pro Bowl Complex. Immediate open space, stringent con grams that became an inte plans call for landscaping trols on signage, under gral part of the develop around the Florida Theatre ground wiring, harmonious ment and redevelopment of Building and on Bay Street. architec•ure and landscaped roadways are characteristics of exclusive developments, Keep Jacksonville Beautiful whether residential, com The Keep Jacksonville Beau ownership or where they mercial or multi-use. Con tiful Program, originally a think someone else will trary to the common practice Chamber of Commerce pro clean up. Keep Jackson in the SO's and 60's of pre gram, was established as a ville Beautiful attempts to paring land for residential commission by the Mayor in change these attitudes so development by clearcutting, 1983. This program educates that all citizens work to 110st home builders now re citizens in control of gether to keep the commu cognize that trees are worth trash and litter and helps nity cleaner. Major sources Jll)ney and develop building citizens develop more posi of litter identified by sites accordingly. Respon tive attitudes and beha by this program are: sible developers and build viors. ers are concerned about the • Improper disposal of overall appearance of their Keep Jacksonville Beautiful household and com projects and preserve trees has created a number of mercial trash. as a marketing tool. Some programs within local builders and some commer schools to teach children • Loading docks cial interests still remove how to deal with waste ma all trees from a lot in the terials and to instill • Construction sites belief that quantity of change in citizen atti usable business space tudes. • Uncovered trucks rather than quality is the better way to promote their People tend to litter in • Motorists and products. areas where litter alread~· Pedestrians is present; areas where they have no sense of
3 Greenscape operates without and controls the size and num opment is occurring with staff. Its projects are fi ber of driveways. many aesthetic improve The JCCI nanced through donations. A ments. sons in a major source of the dona Jacksonville's landscape or ing reeouJ tiona is from individuals dinance is similar to those The Downtown Development tributiODl who pay for the planting of in most other Florida cit Authority, (DDA) a seven a commemorative tree. ies. Improved landscaping member body appointed by the resulting · fr011 this ordi the Mayor, acts as a go Tracey Arpe11 Landscape and nance can already be seen in between with governmental Dick BasforCI Tree Ordinance newly developing areas of bodies and developers to the OOIIIIIlunity. The land assist in removing slum and Blectrlc J Although the Planning Coli scaped areas and greenery blight in downtown Jackson mission and ita predecessor planted in new projects, the ville. In its dealings with BobBaughllall worked in past years for the restrictions in the size of developers, the Downtown adoption of a landscape or driveways and in the amount Development Authority nego Forrest Boo11 dinance, opposition by of parking area without tiates tradeoff& to encour builders and developers made landscaping greatly improve age quality development. In Marvin Bo\lb passage of such an ordinance the visual illpact of these projects where city assis Depart:Mnt illpoasible. In 1983, the developments. However, since tance, such as new infra Planning DepartJDent formed Jacksonville's ordinance is structure from tax increment a coalition of concerned new, most of the community financing is needed or when citizens, representatives businesses are not land a city-owned building is be Matthew carl from the Northeast Florida scaped. Other OOIIIIIlunities ing purchased, the Downtown Builders Association and have required landscaping Development Authority is Willlaa Cook city officials to create for years and have aCCOIIl directly involved via a tree and landscape ordinan plished a great deal more. contract with the developer. Bill Cox, Dj ces. BnactMnt of these This contract includes nego ordinances constituted an Existing businesses are not tiated amenities such as Myrtice CraJ i11portant beginning in ill required to comply with the landscaping and public art proving oomaunity appear tree and landscape ordinan to ensure a good quality Laura D'Alie ance. ces, even when they are ex• development. Depart:Mnt panding. Unless a new The tree ordinance requires building parmi t is required, The DDA has worked with city Joyce Dyro, a City permit before any no regulatory official re agencies and Greenscape to trees above a certain size views plans and verifies encourage the planting of carl Pelaa, (18 inches in diameter), if the businesses are land trees and landscaping in the except pine and palms, may scaped. In fact, after Downtown area. It is trying Susan Pisbe be removed from within 20 plan review, no city staff to work with the state to feet of streets in multi are assigned to follow-up encourage landscaping of new Gifford Gr family residential district, on landscape approval plans state road construction or within 10 feet of streets that are submitted to ensure within its downtown juris in commercial, industrial or that the requirements of the diction. governmental districts. tree and landscape ordinan Mary Ann ces are Mt. Mandarin The landscape ordinance re Pete Liane, quires interior and peri Downtown Beautification Project lleter landscaping in COIIIIIer Beautification Another good example of a cial and industrial parking Most beautification activi COIIIIIlunity project designed lots, ranging between five ties occurring in Jackson to enhance the beauty of Henry Mock, and ten percent total cov ville are in the downtown Jacksonville is the Mandarin Public erage depending on the zon area where all overhead Beautification Project begun ing classification. The wires have been placed un by members of the Greater w. Ray ordinance also requires pre derground, all of the Green Mandarin Civic Coalition and servation or planting of scape tree planting activity the Mandarin Business Asso trees and other greenery for to date has occurred, none ciation. The project calls driveways and road front of the bus benches contain for extensive landscaping on ages, stipulates at least advertising, billboards are a strip of San Jose Boule one shade tree in the front less ooamon in proportion vard which is considered the yard of each residential lot to population, and redevel- •Gateway to Mandarin•. Chuck 4 The efforts of interested mittee also was asked to de F. Confer with existing citizens were hampered by velop written reCOIIIIlenda organizations in Jack the State DepartJDent of tions in conjunction with sonville to obtain Transportation (DOT) , which the Keep Jacksonville Beau their thoughts and owned the boulevard and gen tiful Program to help beau concerns in this area erally does not agree to tify the community. The maintain such projects. Aesthetic and Growth Manage The recommendations of the However, as a matter of pol ment Committee was charged Aesthetics and Growth Man icy, the DOT was willing to to do the following: agement committee were sign an agreement to allow adopted by the Task FOrce the city to maintain green A. Consider all areas of in April and presented to ery along the state right growth with respect to the mayor in June of 1985. of-way. The citizens, rea what can be done aes Specific recommendations lizing that they could not thetically to minimize from the Task Force are sum guarantee private mainte the effect of growth mar ized in other sections nance, requested that the on Jacksonville • s nat of this study. city pass a resolution to ural beauty, as well do so. Despite initial con as what can be done to The creation of this group cerns that too many such enhance that beauty. was an indication of the projects could strain the growing concern for the maintenance budget of the B. Consider signs and re preservation of an aesthe Recreation and Parks Divi gulations of signs. tically pleasing environ sion, the proposal was ment. The public and adopted by the City Council c. Consider adequacy of private programs designed and signed by the Mayor. tree ordinances. to improve Jacksonville's The Mandarin citizens are appearance build upon each now raising funds to com D. Consider the effect of another and generate other plete the project, which existing transporta projects. Greenscape's ac the city will maintain. tion and its expansion tivities in the downtown on the beauty of Jack area were a stimulus for The City Council resolution, sonville and what can planting of numerous trees adopting this project, spe be done to minimize by the Jacksonville Ship cifically states that if that effect. Shipyard. This was followed it is successful, the coun closely by the mayor's ini cil desires to participate B. Consider preservation tiating the 0011plete land with the private sector in of aesthetics of exis scaping of City Hall grounds similar projects for land ting buildings and and city plans for land scaping and beautifying neighborhoods in Jack scaping Bay Street and other of Jacksonville's sonville and what can planting additional trees corridors. and should be done to and shrubs in parks. maintain historic Mayor's Task Force areas in the face of growth. In 1984, Mayor Godbold ap pointed a Blue Ribbon Growth Techniques to Improve VIsual Environment Management Task Force. Aes thetic considerations were Open Green Space included in the charge of JACKSONVILLE BAS NOT PLACED designed to improve the vis this group. A committee on A HIGH PRIORITY ON THE RE ual environment. Jackson Aesthetics and Growth Man TENTION OF OPEN GREEN SPACE ville may be so eager for agement was created to re POR THE LONG TERM AESTHETIC growth that it may sacri view standards governing ad BNBANCBMENT OF THE CITY. fice visual and environmen vertising and signs, and to tal concerns. Be suggested develop a set of written re One City Council member bas that Jacksonville's govern commendations to ensure that suggested that Jacksonville ment reacts, but does not such standards minimize un may not yet have reached initiate, and that planning sightly areas while ser the level of. sophistication to preserve open space, save ving reasonable commercial and maturity to support pas scenic vistas and to improve and other needs. This com- sage of strong ordinances our visual image is not be- 5 ing addressed because there purchase linear parks, boatramps. However, in is not yet a crisis. mostly along lakes and addressing the visual needs Other h creeks, rather than the of the COJIIDunity, the avail This lack of foresight may square plots of land they ability of open green space 17. 'l'be result in part from the had previously sought. This to mitigate the negative lack abundance of open space tr a creates a more pleasing vis visual impact of develop graa ditionally available in ual effect because the green ment was considered. town Jacksonville. The city has preserves tie the community enjoyed the luxury of vast together. Another example The 2005 Comprehensive Plan, 18. Jack open spaces and large bodies is Raleigh • s •Little Rock a legal document designed of water. In the last sur Greenway Trail• and •shelley to guide the future growth vey (1977) 59 percent of the Greenway Tr ail• that pro of Jacksonville, considered city's 490,048 acres was vide a link to the natural the city's need for open open, agricultural land and beauty of the town. Besides space. In addition to 20 percent was water or wet leaving green space to en other recreational needs, Re001111end2 lands. Most acres previous hance the beauty of the this plan calls for the ings ancS c ly preserved as green space, entire community, these creation of Metropolitan/ through the slow growth in parks provide opportunities Conservation-Stream Valley 1. Reigbl our COIDIIlunity, are privately for active recreation Parks along major stream tiona owned and can be developed through the use of foot valleys and natural drainage the v as growth pressures contin paths and trails used by ways. The plan identifies dinat• ue. OVer the last five cyclists, joggers, and over 8, 500 acres of land a uni: years, more than 4,500 acres hikers. By combining the recommended for inclusion have been rezoned for devel trail system with the water in this Stream Valley Park 2. 'l'o en• opment, more than 1,500 way system, the sensitive System. Parks also have aent c acres have been developed environment surrounding the been planned for Bogan's ordin; by the city (St. Johns River water is protected, in addi Creek and McCoy's Creek. tion, Power Park) and other pre tion to providing access This land not only provides beaut. viously zoned land has been for fishermen and boaters. a pleasing visual environ sign : developed. Last year, the ment but protects the main or otl city approved three times The published goals of Jack elements of the city's more development than was sonville's Recreation and drainage system and flood 3. 'l'be I! previously approved in any Parks Division mention no plains from development. sign one year. Jacksonville is acquisition of large-scale The 2005 plan suggests the Mayor in the midst of rapid growth open space or land banking. acquisition of the sites Task and much of the remaining The division has concen listed on the following open space is available for trated on the creation of table. 4. 'l'be Ill development. community recreation parks lowin for organized activities, Because short range plans recaar Many other communi ties in such as baseball, swimming, and activities of the Rec the United States found tennis, and basketball. reation and Parks Division • Con that increasing development are heavily oriented towards an4 was consuming the very green The Recreation and Parks active park creation, there Par areas that contributed to Division has refused land has been no acquisition to dan their beauty. The natural dedications offered by de implement the foregoing rec rec; features, streams and wooded velopers of land considered ommendations. The State of by areas that people find so unsuitable for active parks. Florida has made two large vic pleasing, are o.ften developed Although some of this land acquisitions in Northeast to acCODIIIIOdate the growth has been low lying areas Florida - Talbot Island and • Pre that they attract. In and stream beds unsuitable Guana Tract - and it is un bol Raleigh; North Carolina, and for ballparks, it is often likely it will soon make anC Austin, Texas, the solution scenic, green areas. other major land purchases fie has been to establish net for green space in Jackson works of ribbon-like parks This J.C.C.I. study did not ville. However, the state .Bee to perpetuate the green address the recreational Conservation and Recrea be1 open space. For example, needs of the community and tional Land (CARL) conmit the Parks and Recreation thus made no attempt to tee lists land on the • Ba1 Department in Austin, Texas analyze the need for ball Julington-Durbin Creek pe no1 began planning years ago to parks, swiiiDiling pools and ninsula among the 20 par- si~ 6 eels in the state for acqui in Mandarin already have wires require continuous sition. made it unlikely that the maintenance and replacement, city will be able to pur as well as requiring un As development increases, chase any major green space sightly tree trimming. Poles land values rise dramati in that area. along streets and highways cally. Rising land values also are hazardous to auto mobiles. Parks In 2005 Comprehensive Plan DESPITE THE CLEAR EVIDENCE THAT UNDBRGBOUND WIRES ARE PREFERABLE '1'0 OVBRBBAD Site Amroximate Size WIRES, IT WOULD BB BXTRBMBLY BXPBNSIVB TO OONVBRT 'l"HBM Tiger Pond Park 3,000 acres 'l'HROUGBOUT TBB BNTIRB CITY. on Tiger Creek In new construction it is .___ possible to lay wires under Julington Creek/Big ground in machine dug Pottsburg Creek 3,000 acres ditches without interference Stream Valley Park from other utilities, pave ment or vegetation. Bow Ortega River~cGirts ever, in retrofitting a Creek Stream Valley Parks 2,000 acres previously developed area, utilities must contend with Cedar River/Six Mile paved driveways and streets, Creek Stream Valley Park 500-600 acres gas lines, water lines, sewer lines, cable televi Pelotes Island Park 8,300+ acres sion lines and other under ground utili ties. This re quires expensive, selective digging and boring under existing streets. In two Underground Utilities by their hardware. JBA sub different types of devel stations are being placed opments, the JBA estimates 'l'HROUGBOUT JACKSONVILLE, THE behind solid walls to blend it costs from $7,151.00 to LANDSCAPE IS CLUTTERED BY with the surroundings or in $9,432.00 per lot to con NUMEROUS POLES, CROSSARMS, secluded areas surrounded by vert from overhead to under CABLES, WIRES, TRANSFORMERS trees and greenery. When ground wiring. In areas INSULATORS, GUY WIRES, SER replacing electrical ser where the JBA is paying al VICE DBOPS AND OTHER UNSIGHT vice, the JBA tries to blend ready to convert from one LY FEATURES THAT PBOVIDE new poles into the tree line type of service to another ELECTRIC POWER, TELEPHONE for a neater appearance. It (4kv to 25kv) the difference AND CABLE TELEVISION SER also at tempts to remove in cost still amounts to VICE. crossarms and secondary $4,604.00 per lot. A 1973 wires from poles. study for the City Council The tree trimming required determined that providing to maintain the overhead Jacksonville requires all underground service for all wires further degrades the new developments (with some the city of Jacksonville visual environment and de exceptions for very SJDall would cost approximately nies the community the beau developments) to install $570 million. With infla ty of a full canopy of utilities underground. un tion, the cost now probably trees. derground installation has would exceed $1 billion. many benefits. In addition In addition, the custOIIler Utility companies try to to the aesthetic considera would be charged for re make overhead insulations tions, underground wiring placing cable television as neat as possible. The virtually eliminates the and telephone wires now in Jacksonville Electric Au need for maintenance and tree stalled on JBA poles. The thority (JEA) has initiated trimming, improves reliabil JBA also would suffer some numerous programs to reduce ity and vehicular safety. financial loss from these the visual pollution caused On the other hand, overhead services, since the use of 7 JEA poles is presently in energy conservation, established standards to paid, leased to the other utili noise control, air purifi ensure that all construc autho . ties. cation and other benefits tion meets community stan agaiftl to the environment. The dards. The standards do tuall: The long term savings in Tallahassee ordinance re not govern architectural prope; maintenance and tree trim quires a permit for removal style, but ensure that all syateJ ming resulting from under of any tree over 36 inches buildings are properly buf ground installation has not in diameter and protects fered for outdoor equipment Code yet been calculated in Jack trees over 24 inches in dia and parking. The city even which sonville. Realizing the ad meter in some zones. has provisions for ensuring varl01 vantages both aesthetically that landscaping is main out P and in service costs, the The Mayor's Blue Ribbon tained. five JEA already has converted Growth Management Task.FOrce auaceJ from overhead to underground has recommended that Jack St. Augustine requires ar plian• service in some areas of the sonville's tree ordinance be chitectural review of the out r4 city, such as in the down strengthened to provide for exterior of buildings in fines town. There may be many similar protection of large its designated historic 97, 0 other areas where such con trees. However , the in district. The historic ar .. cc.e version could be economi creased cost of complying chitectural review board thee cally justified. with such a regulation is a uses a set of guidelines to concern to the builders in ensure that new construc Jacksonville. Many people tion does not detract from Tree Preservation say restrictions on cutting the unique historical ap of trees on private property pearance of the area and its IN JACKSONVILLE, ONLY TREES is an invasion of personal appeal to tourists. IN A PEW FRONT PEET OF A LOT property rights. ARB OFPERBD ANY PRO'l'BCTION. Many communities across the MANY CC»>MtJNITIBS BAVB EN Architectural Review United States have estab ACTED TREE ORDINANCES 'l'BAT lished similar boards. How PROTECT LARGER 'l'REBS J!'R(J( MANY a»JMUNITIBS IN 'l'HE ever, most of these commun INDISCRIMINATE RJMJVAL. UNITED STATES RAVE sc:»m ities are small with unique Concl Many citizens and elected TYPE OF ARCHITECTURAL RE character, usually known for officials in Jacksonville VIEW OF NEW BUILDINGS IN a particular architectural have been outraged by the ORDER TO PROTECT C
On-site and Off-site Signs The Federal government, in most instances, has allowed FUNCTIONALLY, LEGALLY AND installed. Off-site signs states to regulate signs as VISUALLY 'l'BERI!! IS A DIS are a separate and distinct they see fit. Florida, in TINCT DIFFERENCE BETWEEN business since they are not turn, has given the regula ON-SITE AND OFF-SITE SIGNS. accessory to a building or tory responsibility to the On-site signs are those typ a business on the lot on local governments which have ically used by merchants to which they are located. The placed varying controls on call attention to the type generic name for an off-site signage. These range from of business conducted in or off-premise sign is bill strict regulation of on-site their building or to adver board. Because of the func signs and total prohibition tise goods and services. An tional differences between of billboards to a laissez on-site sign is related to on-site and off-site signs, faire attitude with minimum the building and the busi communities may treat bill regulatory control. ness, it is not a separate boards differently from on and distinct land use or site signs. In fact, this Present Sign Controls business. On-site signs, difference has provided often the only way to iden justification for the total JACKSONVILLE PRESENTLY HAS tify a business, are protec prohibition of billboards in NO EFFECTIVE ORDINANCE FOR ted by the merchants' First some communities. CONTROLLING THE PROLIFERA Amendment right to free TION OF SIGNS. Except for speech. On-site signs are Since billboards are con height, no restriction ex also an accessory bo a use sidered a distinct business, ists on the size of signs that has already been per like other businesses, they in commercial and indus mitted by the zoning of the can be regulated through the trial districts in Jackson lot. Thus, on-site signs zoning ordinance. If a com ville. The entire side of cannot be eliminated, but munity considers billboards a building can be a sign as they can be regulated. a nuisance, as with other long as it does not exceed nuisances, they may be to the 50 foot height limit. In contrast, off-site signs tally prohibited. The regu Other requirements of the provide a means of adver lation of billboards varies Jacksonville sign code tising that is not directly widely among communities, include: related to the land use of ranging from botal prohi the site where they are bition to mandatory cluster • Signs in residential ing or spacing. areas are severely re- 11 stricted and limited, Because of the temporary must inspect the sign during Treat• where allowed, to 32 nature of these signs and construction to ensure that Signa square feet and may the requirement for a six the company adheres to the not be lighted. month permit, there is a plans. In addition, inspec Cll-81'1'1! procedure for the removal tors are responsible for m m• • Billboards or off-site and impoundment of illegal checking portable signs. '1'BBY Cl signs are permitted in DDbile signs. Six month permits for port ABSftB'J all commercial and in able signs cost $20.00. The zena • dustrial districts ex Enforcing Sign signs then must be inspected signs c cept in the low density Ordinances to ensure that they are pro es, an Commercial Neighborhood THE CITY HAS ONLY TWO IN perly anchored to the ground sign ca (CN) DistrictJ Commer SPECTORS TO ENFORCE THE PRE and that the permit is re an awaJ cial, Professional and SENT ORDINANCES CONTROLLING newed or the sign is removed ness n Offices (CPO) DistrictJ SIGNS IN JACKSONVILLE. The after the six month period. that at and Industrial Select Building Inspection Division ture b\ (IS). of the City of Jacksonville One of Jacksonville's two bile ac is reponsible for inspecting inspectors works full time on-pr• • Off-site signs must be and enforcing regulations for in an effort to enforce the tify til spaced at least 1,000 signs on private property. sign ordinance regulating and to feet apart on the same The division is responsible the estimated 4,600 mobile entranc side of the street. for policing all on-site signs and the other inspec in-vinc:J proprietary signs adver tor is required to police In COIIIDercial areas, there tising the business located all other on and off-site Another is no limit on the number on the premises, and off signs. Because of the great sign, of on-site signs with any site outdoor advertising number and the high percen buaines type of flashing, revolving signs for commercial enter tage of signs painted or tifying lights and any colors or prise products. erected without a permit, it of the shapes. As long as certain is not possible to police saaetiD safety and structural con In Jacksonville, a business them effectively. The to loca di tiona are met, the message owner or the sign company Building and ZOning Inspec ness be is not obscene, the sign is required to obtain a per tion Division currently does ber is does not obstruct the right m! t from the Building and not have adequate resources diffic1l of-way, and the lighting and Zoning Inspection Divi to inspect ill-maintained businea does not interfere with ve sion in City Ball for each signs. Only signs brought out of hicular traffic, most perma sign. ~ obtain a permit, to the attention of the nent on-site signs are per a business owner must sub Building and Zoning Inspec 'l'be dU missible. mit an application and pre tion Division by the public has in sent three copies of plans are inspected for mainte is oft4 Mobile signs are specifi with a legal description to nance. •sign l cally designed for tempo the Building and Zoning In to be rary use and to be moveable spection Division. A li Illegal signs abound in that • to a new site. These signs, censed sign company repre Jacksonville. Portable clutter usually yellow or white with sentative must obtain the signs are sometimes placed sized l changeable messages, may not permit for a portable sign. illegally in the street ac:aet exceed 100 square feet in If the sign is an outdoor right-of-way and closer than garish area and may not be more advertising sign, the com 30 feet to other portable out than 12 feet high. Permits pany must show a lease with signs. Many signs are di All are required for DDbile the owner of the property or lapidated and unsafe. Some signs and must be renewed, show ownership of the pro signs do not COIIlply with re or the sign removed, every perty. Engineering plans gulations regarding wiring six months. A code provi are required with the per and resistance to wind. sion places minimal restr ic mit to show that the sign Snipe signs, the small, tem tions to keep the signs away will meet specific wind porary signs fastened to from the street right-of strength requirements in trees, poles or stakes are ways and property lines or the Building Code. illegally placed on the utility poles. Mobile signs street right-of-way, espe also are not allowed closer cially in election years. than 30 feet to another After the permits have been mobile sign. obtained, the city staff 12 must inspect the sign during Treatment of On-Site property values. feet. (In other words, construction to ensure that Signa a 100-foot lot could the company adheres to the When a community passes have a 100-square-foot plans. In addition, inspec ON-SITE SIGNS ARE NECESSARY regulations effectively lim sign.) tors are responsible for '1'0 IDENTIFY BUSINESSES, BUT iting the size and number of checking portable signs. 'MBY CAN BE CONTROLLED FOR signs, shoppers can actually • The sign on the face Six month permits for port ABS'l'HETIC PURPOSES. Citi see more. As a result, the of a building will be able signs cost $20.00. The zens make use of on-premise businesses in the community restricted to an area signs then must be inspected signs daily. For business can do a more effective equal to 10 percent of to ensure that they are pro es, an effective on-premise selling job at a lower cost. the frontage on the perly anchored to the ground sign can build and create Additionally, eliminating street. and that the permit is re an awareness of the busi clutter increases motorist newed or the sign is removed ness name and an image safety and reduces the vis • Signs will be required after the six month period. that attracts or repels fu ual impact of sign clutter. to be set back fr011 the ture business. In our mo corner to allow visibi One of Jacksonville 1 s two bile society shoppers need The value of tight sign con lity for traffic. inspectors works full time on-premises signs to iden trols is exemplified regu in an effort to enforce the tify the product or service larly in large scale private • Changing message signs sign ordinance regulating and to give directions to developments. Almost all will be permitted but the estimated 4, 600 mobile entrances and exits, drive new, large, commercial de flags, banners, ani signs and the other inspec in-windows, etc. velopments have stringent mated, flashing or re tor is required to police sign controls for their ten volving signs and roof all other on and off-site Another type of on-site ants. These businesses, if signs will be prohi signs. Because of the great sign, often neglected by properly located, still bited. • number and the high percen businesses, is one iden thrive despite the lack of tage of signs painted or tifying the street number sign clutter. Many commun • Special signs, such as erected without a permit, it of the business. Shoppers ities have seen the necess a car suspended over the is not possible to police sometimes find it difficult ity for controlling signs right-of-way or a bot them effectively. Tbe to locate a particular busi through local ordinances. air balloon, will be pro Building and ZOning Inspec ness because no street num In recognition of increased hibited. tion Division currently does ber is displayed and it is community concern for aes not have adequate resources difficult to pick a specific thetics, the Planning De • Lots with over 500 feet to inspect ill-maintained business identification sign partment, working with the street frontage will be signs. Only signs brought out of the clutter. Mayor 1 s Blue Ribbon Growth perai tted to have 2 to the attention of the ManageMnt Task Force and signs. Smaller lots will Building and Zoning Inspec The difficulty the consumer with representatives from be allowed only one free tion Division by the public has in locating businesses local sign companies and standing sign. are inspected for mainte is often the reason for a concerned citizens, has nance. •sign problem•. In order been developing a new sign • Portable signs will not to be noticed, businesses ordinance to permit mer be banned J however, they Illegal signs abound in that must compete with a chants to advertise their may not be added as a Jacksonville. Portable clutter of misplaced, over establishments or products second sign on a lot signs are sometimes placed sized and/or garish signs, and also to protect citi which already has a per illegally in the street sometimes build oversized, zen 1 s rights to a visually manent free standing right-of-way and closer than garish signs that thrust far unpolluted community. sign. 30 feet to other portable out and high in the sky. signs. Many signs are di All businesses lose in such The basic on-site sign pro The Mayor 1 s Blue Ribbon lapidated and unsafe. Some a competition. As shoppers visions of the proposed or Growth Management Task Force signs do not comply with re search for information among dinance include: is also encouraging the use gulations regarding wiring a multitude of competing of a tagging system for all and resistance to wind. signs, the message of each • 25 definitions to des signs. Signs for which a Snipe signs, the small, tem one is lost. The business cribe adequately all tag has not been obtained porary signs fastened to man therefore pays more for types of signs. and a permit fee paid could trees, poles or stakes are additional larger, flashier be removed within one year. illegally placed on the signs and receives less from • One square foot of The yearly fee for the tag street right-of-way, espe his investment. In addi sign will be permitted would be used to finance cially in election years. tion, the overabundance of for each linear foot of additional inspectors to signs almost invariably street frontage up to a enforce the program. Signs leads to a deterioration of maximum of 300 square that do not meet the cri- 13 teria established in the Most people find billboards another base. Rent for new ordinance could have identifying the services outdoor billboards ranges their economic value amor available at an upcoming from $1200 to $1500 per tized over a period of time intersection on a limited month in high volume areas and eventually be removed. access road to be valuable and from $400 to $500 per and time saving for deter month in low volume areas. mining whether to exit for The advertiser also pays Illegal Signa gas, food, etc. However , for production of the gra some communities provide phic. The Planning Department and adequate information through Task Force have determined through the use of logo Billboards are used pri that the required permits identification signs along marily for mass market pro for a high percentage (esti expressways. These signs ducts including cars, tobac mated as high as 85 percent) use the distinctive symbols co, liquor and restaurants. of the present signs in or logos, for each business The message must be brief Jacksonville were never ac situated at an interchange. and clear as the automobile quired. An owner must ac Instead of allowing bill occupant usually has only quire a permit for almost boards, the governmental five seconds to read the all signs, excluding real entity responsible for the sign. Thus, billboard estate signs and residen road erects signs carrying messages are usually kept tial identification name the logos, clustering them to six words or less. plates, before the sign may according to type: service be painted or erected in stations, food establish It is almost impossible to Jacksonville. Because very ments, lodging, etc. The make an accurate comparison few painters obtain a permit state of Virginia has used of the cost effectiveness before painting the signs, these signs extensively to of various forms of adver the majority of signs in the provide directional infor tising. This is partially COIIIIIlunity are not properly mation for travelers while because of the difficulty permitted. reducing the proliferation in determining the amount of billboards and highr ise of exposure received by any City officials have esti gasoline signs. particular medium. However, mated that Jacksonville has it is clear that other ad approximately 90, 000 on Billboard Advertlalng vertising media are available site signs. This estimate for the small businessman if is not based on a visual Economlca restrictions were placed on survey but assumes two signs The total expenditures for signs. There are no current on each of the approximately advertising in the United studies which show what im 46,000 commercial parcels States are approximately 2t pact sign restrictions have of land in Jacksonville. The of the gross national pro on local businesses. city agency charged with duct and are estimated to inspecting and permitting reach 130 billion dollars Controla on Billboards signs, the Building and by 1988. The bulk of these ·ZOning Inspection Division, advertising dollars goes to COURT CASES BAVB ESTABLISHED does not have a verifiable newspapers and television THAT A COMMUNITY CAN ELIMI count of signs. with radio a distant third. NATE BOTH EXISTING AND PO Magazine advertising is the TORE BILLBOARDS. Billboards Treatment of Off-Site fourth greatest expenditure have been excluded from some in the United States and some states (Hawaii) and Signa outdoor advertising is many cities for aesthetic !OlE BILLBOARDS ARB CONSI fifth. reasons. Prohibitions on DBRBD USBI'UL AS DIRECTIONAL billboards also have been SIGNS ~ ASSIST IN PINDING According to industry justified for traffic safety BUSINESSES. IDfBVER, !OlE sources, erection of the and the preservation of pro aJMMONITIBS BAVB J!'OOND AL metal structures to bold perty values. TERNATIVES ~ BILLBOARDS IN billboards costs about PBOVIDING 'l'HBSE DIRECTIONAL $25,000. The base alone The billboard industry has SIGNS. K>ST O'l'BER BILL costs about $5,000.00. If countered these arguments BOARDS ARB USED POR ADVER necessary, the metal struc with court cases maintaining TISING ALONE. ture can be relocated to that total prohibition vio- 14 lates the Firat Amendllent tween signa on either aide General Districts by zoning right of freeaa. of speech of the street. A 500 foot exception after a public light warehousing districts and by contending that the separation was required be hearing. ec-ercial General and by right in industrial distinction between on-site fore the regulation was (CG) is the area that causes heavy districts. and off-site signs beccats changed in 1979 to 1,000 .oat citizen co.plaints invalid once the regulation feet 1 however, in aany areas since any of these are lo- All junkyarda and scrap pro or prohibition of billboards signa are clustered auch cated near residential ceasing yards adjoining any is baaed solely on aesthe closer together. areas. Billboards still public right-of-way .uat be tics. Florida Courts, how would be peraitted in 1108t screened froa the street to ever, have upheld the right Second, billboad size would industrial and in ~r lessen the visual illpact. of ocaauni ties to distin be lilli ted to 300 square cial intensive areas. '1'be screening .uat be a guish between on-site and feet, (e.g. 10x30). fence, wall or evergreen off-site advertising and Billboards in Jacksonville hedge, not leas than six the right to control signa 'l'hird, billboards would be already are restricted to a feet in height, which for aesthetic purposes. In allowed only in ec-ercial 50 foot height ltait. creates a visual barrier. the case of Lallar Advertia in9 Associates of Bast Flor ida, Lilli ted v. the City of Other Ott-Site Signa on bus benches, taxi cabs Daytona Beach the court af D1 ADDITION '10 BILLBOUDS, and city buses in Jack80ft fir.atively held that in '1'BBRB ARB IUIBIOUS O'l'BBR ville. Southern Ball has outdoor advertising not ad ftPBS 01' 01'1'-SIB SIGHS "l''IAT requested peraission to sell jacent to any Interstate or CAN CONftiBU'IB m VISUAL advertising on telepbone Federal-Aid Priury Roads, CLO'.r"r.BR. Signs can be found booths. an ..,rtization of ten years was reasonably long enough to be a valid alternative to 0011penaation to the sign BUS BENCH SIGNS owner. The Highway Beauti Advvtiaing oa ba beftcbH bu 1oat About ba1f of tbe 750 ba bencbea in fication Act of 1965 re been coatrov.nial in J~ille. tbla pcogr• carry aclftrtlaing. lUt quires 0011penaation to own '1'be dgbt to .SV.rtlH oa ba bencbu ing at na.oo to $22.00 per _tb, ers of billboards located on 1n tbe city wu IIOUgbt by two .av.r tbe banc:bu geaerat. approxbataly tialng flru ln 1951. '1'be City ca. $90,000 per year. tba city benafita Interstate or federal-aid lduloa of tbe olcl City of JeaUon only tbroagb tba 11M of bencbea by primary roads rather than riU. ent.red into coatraot wltb ita citl..,... tba JaJGM• racaive not be expanded but baa the allowing the signa to be tbeH .SV.rtlaing flme aft.r tbey appcoabat.l7 $1,200 per JUl' in aeauced a ci9lc 8(IQMOr, tbe JeaUon cUraot flnancial ~t and acl4i right to reuin regudleaa ..,rtized. YUle J.,_... '1'be JQOMa bu alwp tloaal fr• eclftrtlaing on ualaaHcl of ita blighting influence. coaaiclered tbe JayaM Jubllc leniae bancbea fr• tbe eclftrtlaing OOIIPUY• The presence of junk vehic Most ~unities that do not Iandi Project a ~lty ...tlng •r• lletropollta lyaU., IDe. ... atte.pt outright bans on Yiae ratber tban a aign pcovr•· '!'bey banabaa are cleatroy.cl aacb yau and les outside tbe screened pco9lcle appcodut:aly 750 bancbu at -t ba rep~ at a ooat of about areas is against regula billboards have illposed par ba atopa and •ot~~er pointa of peclu $300.00 .... tiona and is primarily an tial prohibitions and regu tria GOIIftlliance• in DaYal COUnty. In tbe 26 yau blatory of tbe ba '1'be pcuiclent of tbe .Jqcau baa enforcement problem. lations on the location of banda pcojaot, tbe city CJOftr-nt lalioatecl tbat, u tba focaa of tbe signa, setback distance froa baa twice called for tbe r.-wal of pcojaot la ..._..ity ...tlng, if a the roadway, spacing, all or ~ of tbe bencbea becauaa of aultabla ~lty ...tlng arrange- height, size, clearance from Yiolatlona of tbe t.me of tbe coa -t aoalcl ba claft1opacl iaillrrnt'Wtt tract. Bllcb tt., tba order for of ~clal ...... , tbe JIICIUoa :1 Stripe ground, illuaination and r..wal wu ignored and tbe politi .Ule JQOMa .oald aot ba oar• to maintenance. cally active JaJGM• lobbied aaccua r...,lng tba alpa fcc. tbalr baaabea. fllll7 to bave tbe orcllnance reYlHcl '!'bey a1eD WDUlcl bopa tbat tbey aaal4 cause it lacks funds to to allolr tbe baa bancbu to r-in. raplaae tbe laat r..._. wblcb pco Mintain shrubbery in - The Mayor's Blue Ribbon Yicle t-. wltb fiiDIIing foe otber aa. diana. Trees represent ob Growth Manag... nt Task Force '1'be ba banda algoa in different Hc -lty pcojaota. II!Naftr, tbe origi the tloaa of the county ue controlled by nal l.aglalatloa coatrolling baa baDab stacles which can be hazards has proposed following two Mpuata orcllnanon. 8ua bancbaa aitu in tba pcaGCIIII'ollclatecl city to traffic. controls on billboards in lD tba pce-coaaollclatlon City of Jack llal.ta pcori.clea tbat • ., long .. tba Jacksonville. Firat, place eonville are allowed ln perpetuity by OOIIPUY pedoma u •t fortb lD tbe ment of off-site signa will tbe original lt5t leglalatlon. 11ua ...... ooaclitloaa, tbeD Reb dgbta The Division Chief of the banda .SV.rtlalng la perllittecl in tbe &Del pchllegu aba1l ba autautlcaUy Traffic Bngineering Divison be restricted. Presently, previously unlnoorporatecl areu of ranewcl for alal.lar pedocla. • 'lbtla, does not think that medians these signs are required to Duval County tbrougb a aaparata orcli tbe oaapany and not tbe Ja7QH• bu be 1,000 feet apart on one nace that -t be renewed every flft tba pciYUega of perpetually Min offer added safety to vehi yeara. 'lbia ordinance waa laat ra tainlng &Del racaiving r.,...... fr• cular traffic by dividing side of the street. The new newecl in ltlt. tbeH aigna. the opposing lanes. Never proposal requires a distance Continued theless, the separation of of at least 2,500 feet be- 15 (Bus Benches continued) were concerned enough about Tbe Jaycees Public Service Bench cca inches fro. the curb and by place.nt aittee annually checks the benches to in public parks. In addition, ao.e the visual impact to appear eneure proper place.ent and uinte benches are placed on private pro before the council to oppose nance. aow.ver, it relies on Metro perty without approval of the land the signs. In 1984, when a politan Syst... , Inc. to enforce the owners and aany benches obstruct the bill was introduced to ban pla~nt criteria in the bua bencb sidewalk. Tbe contracts allow ordinances and to respond to citiaen bencbes in •areas of public con portable signs in the city, a.plainte (the priury Mtbod of de venience or necesai ty•, but uny are a similar lack of vocal sup teraining the adherence to the con apparently placed only for convenience port by citizens concerned tract). Many of tbe bencbea violate in attracting advertising. the criteria outlined in tbe contracts about the visual impact of by place.ent a~ an angle greater tban these signs contributed to 30 degrees to the curb, less than 18 the defeat of the bill.
Bus bench signs are the pri tation. In some oommun Code Enforcement mary method by which commer ities, civic associations cial advertising can be ex and garden clubs have soli Board tended into the residential cited funds from merchants CODE BNI!'ORC.BMENT BOARDS areas. Although the bus in areas where benches are AU'l'BORI ZED TO LEVY FINES bench sign is only twelve needed and supplied benches I!'OR CDDE VIOLA'l'ORS HAVE square feet, the advertisers without advertising. Ben BEEN AN EFFECTIVE ALTERNA often utilize bright colors ches also have been provided TIVE TO 'l'BE EXPENSIVE AND and flashy graphics in order in lieu of flowers as memo TIME CONSUMING PROCESS OF to attract attention. rials for loved ones. TAKING ALL CODE VIOLA'l'ORS 'l'HROUGB . THE COURT SYSTEM. Many other cities, realiz The city does not regulate ing the need for benches and some other types of adver A major difficulty in the the adverse impact of adver tising, such as that on enforcement of ordinances tising on the visual envi taxi cabs and buses. Some controlling the visual envi ronment, have found other communities do not allow ronment is the requirement ways to finance bus benches. this type of advertising. of taking the violator to Some bus benches are The Jacksonville Transpor court to force compliance. financed by city funds. tation Authority receives For example, a violator of Other COIIIJDuni ties have ob considerable revenue from a sign code is W\likely to tained aid from the State advertising on buses. be successfully prosecuted Department of Transpor- because the Building and ZOning Inspection Division must compile data to estab VIsual Appearance overhanging the public lish a case and take the in right of way to be removed formation to the State Constituency within 10 years, a period Attorney's office. The JACKSORVILLB BAS R:> lARGE, of time allowed to amortize State Attorney's office VOCAL CONS'l'ITOBNCY 'l'BAT AC the overhanging signs would first summon the TIVELY 110RKS I!'OR 'l'BB PASSAGE existing in 1974. In 1984, violator to a non-court OF LEGISLATION TO PBOTBCT when all these signs were hearing in an effort to ob AND BRBANCB 'l'BB VISUAL BNVI to have been removed, oppo tain compliance. Otherwise, J.I)HMBNT. si tion by a few sign users the State Attorney's office led to amendments of the must prepare a case and take It may be politically dif ordinance to allow the the violator to court. ficult for Jacksonville to signs to remain indefi pass ordinances strong nitely. In recognition of this pro enough to control the vis blem, state statutes were ual environment. Histori The City Council, as an amended to allow for a cally, city leadership has elected body, is often re quasi-judicial code enfor been very slow to adopt such sponsive to the most vocal cement board. This is a legislation and reluctant to group working to influence lay board, appointed by the enforce it when established. legislation. In the case governing body, with the of the overhanging signs, authority to levy fines for In 1974, the City passed a sign owners were the most violations of the technical bill requiring all signs vocal group. Few citizens codes. If the fines are not
16 tablished standards to paid, the board has the •Grandfatherlng-ln• In many cases, just compen sure that all construe authority to place a lien sation can be made through on meets community stan against property and even MUCH OF THE VISUAL BLIGHT amortization rather than a rds. The standards do tually to foreclose on the IN THE CITY IS ALLOWED TO direct payment. For ex t govern architectural property through the court REMAIN BECAUSE IT WAS IN ample, many communi ties have yle, but ensure that all system. PLACE PRIOR TO THE ESTAB determined that a two to ten ildings are properly buf LISHMENT OF REGULATIONS. year payback period is suf red for outdoor equipment Code enforcement boards, ficient for the owner of a d parking. The city even which have been in use in The process of allowing sign to amortize his initial s provisions for ensuring various communities through non-conformance to continue investment. Thus, communi at landscaping is main out Florida for the last because it was lawful when ties desiring to eliminate ined. five years, have been very orginally established is signs often have allowed a successful in obtaining com called •grandfathering-in•. two to ten year period from t. Augustine requires ar pliance with the codes with There is a substantial body the date of the ordinance itectural review of the out requiring the levying of of law requiring just com before requiring the remo xterior of buildings in fines. Statistics show that pensation for the elimina val of all non-conforming ts designated historic 97t of the cited violators tion of lawful uses of pri signs. istrict. The historic ar come into compliance with vate property. Even though hitectural review board the codes. a practice may no longer be In other cases, the origi sea a set of guidelines to permitted in an area, the nal cost of the sign is used nsure that new construe fact that it was established to determine the length of ion does not detract from lawfully allows the owner time for which the sign he unique historical ap to continue use or to obtain should be allowed to remain arance of the area and its just compensation before it in order to amortize the ppeal to tourists. is removed. owner's investment.
y communities across the nited States have estab ished similar boards. Haw CONCLUSIONS ver, most of these commun ties are small with unique Conclusions express the value judgments of the committee, based on the findings. haracter, usually known for particular architectural tyle or for an environment hat attracts tourists. Polley nomic interests. Because of the past absence of a vocal citizen constitu n Jacksonville, a city 1. Jacksonville has a serious problem with tency, city officials have responded taff member has recom visual pollution. The city lags behind to these special interest groups. nded establishment of a a number of Florida communities in de unity design standards terminedly addressing the sources of Signs nel to review the design man-made, visual pollution. f all public facilities, 5. Jacksonville's predominant (but not uildings within areas 2. Jacksonville as a community has not, sole) source of visual pollution is signs. dentified by the city as until recently, expressed serious con The proliferating signs are often ille equiring special concern cern over the aesthetic environment and gally placed and unsafe. The worst pol (designated as areas of its effect in attracting or deterring luters of the visual environment, partic ritical city concern)J and desirable economic growth. ularly when located in or adjacent to uildings financed with residential neighborhoods, are: ublic funds or benefitting 3. Jacksonville has the right, established rom special government in a number of court cases, to control - mobile or portable signs esources, such as building visual pollution within the city, but n tax increment finance there has been a weak commitment on the - billboards (off site signs) istricts or those financed part of public officials. ith industrial revenue - political and other •snipe• signs nds. One purpose of this 4. Certain special interest groups (such nel would be to establish as land developers and sign companies) - bus bench signs d maintain aesthetic which are well organized with strong tandards and to provide in lobbies, tend to perpetuate visual -oversized and excessive numbers of on ntives for good design. pollution in the pursuit of their eco- site signs 17 6. The reasons for Jacksonville's sign pol •Grandfatherlng -In• lution problem include: 11. Existing legislation or the actions of - inadequate sign control in Jackson publicofficials•grandfathers-in•for• ville's ordinance code ever many of the non-conforming sources of Jacksonville's visual pollution. - a lack of commitment by elected of Amortization programs can allow owners ficials and city staff to reducing a reasonable economic return while pro visual blight viding for the eventual elimination of the blight. - inadequate numbers of people trained to enforce existing sign regulations Open Space 7. The city's bus bench agreements are 12. Little or no attention has been given ill-advised and contribute greatly to to the long term preservation of open visual blight, particularly in resi green spaces, the loss of which de dential areas where signs are not gen tracts from Jacksonville's visual im erally permitted. Furthermore, many age. A financial commitment from city are placed in contravention to con tract terms, in parks or in areas officials and a change in policies are where signs are otherwise prohibited, needed to implement plans for large, or interfere with motorists • unob passive park lands or to provide for structed view at intersections or maintenance of public green spaces. partially block public sidewalks or rights-of-ways. Bus benches without advertising can be unobtrusive and Streets and Highways convenienc to waiting bus riders or pedestrians. 13. The philosophy and recent practice of the Traffic Engineering Division to encourage the elimination of median 8. As other COIIIIDunities have demonstrated, the physical and visual environment can strips and other green areas along be enhanced by controlling signage with streets and highways is destructive out preventing businesses from inform to the city's visual image. ing the public of their location and services. Overhead Utilities Landscape and Tree Ordinances 14. OVerhead wires contribute to visual pollution. Total and immediate con 9. The landscape ordinance, a good first version of remaining overhead facil step in improving the visual environ ities to underground is not economi ment, is not adequately enforced. The cally feasible, but piecemeal change city does not review landscaping plans over is a practical alternative. sufficiently, nor is there a mechanism for follow-up inspection. In addition, .Enforcement Capability the ordinance fails to address land scaping on existing projects or on im 15. The numbers of personnel assigned to provements, such as paving over a va enforcing existing sign regulations cant lot, which do not require a and other visual pollution regulations building permit. are inadequate. 10. The tree ordinance is not sufficiently 16. A number of city regulations are not comprehensive, it does not protect adequately enforced and thereby con trees in the inter lor of lots, nor tribute to visual pollution. Inade does it recognize pines or palms as quately enforced regulations include trees to be preserved. those controlling junk yards, automo bile repair facilities, commercial activities on public rights-of-way, or abandoned property.
18 boatramps. However, in Other Issues addressing the visual needs tectural review, historic preservation of the CODDunity, the avail 17. The areas outside of the city core ordinance or programs for public art ability of open green space as found in other communities. to mitigate the negative lack a coordinated beautification pro visual impact of develop gram such as that working in the down town area. 19. Jacksonville's trash-abatement program ment was considered. is a step in improving the visual envi 18. Jacksonville lacks any type of archi- ronment. The 2005 Comprehensive Plan, a legal document designed to guide the future growth of Jacksonville, considered the city's need for open RECOMMENDATIONS space. In addition to other recreational needs, Recommendations are the committee's specific suggestions for change, based on the find this plan calls for the ings and conclusions. The JCCI recommends that: creation of Metropolitan/ Conservation-Stream Valley 1. Neighborhood groups, civic organiza • Prohibit advertising devices, such Parks along major stream tions and other parties interested in as tethered balloons, pennants, valleys and natural drainage the visual environment organize, coor streamers, flashing lights, sand ways. The plan identifies dinate and maintain efforts to provide wich boards, T-frames, snipe signs over 8,500 acres of land a unified voice to elected officials. (small, temporary, e.g. political recommended for inclusion signs) etc., not specifically per in this Stream Valley Park 2. To ensure th~ continued visual enhance mitted under the ordinance. System. Parks also have ment of the city and the enforcement of been planned for Bogan's ordinance code relating to visual pollu • Limit the maximum size of any sign Creek and McCoy's Creek. tion, the Mayor provide an advocate for to 300 square feet, except for iden This land not only provides beautification, qualified in urban de tification at the top of tall build a pleasing visual environ sign issues, in the Planning Department ings for which a special permit may ment but protects the main or other appropriate body. be granted after prior city approval elements of the city's of the design, construction, and drainage system and flood 3. The Mayor and City Council adopt the placement. plains from development. sign ordinance recommendations of the The 2005 plan suggests the Mayor's Blue Ribbon Growth Management • Establish the permit-tag system with acquisition of the sites Task Force. regular fees sufficient to fund the listed on the following permitting process, inspection and table. 4. 'l'he new sign ordinance include the fol enforcement, and the cost to the city lowing provisions, many of which are of the removal of illegal signs or Because short range plans recommended by the Mayor's Task Force. advertising devices. and activities of the Rec reation and Parks Division Control the spacing, size, number, Promptly remove all signs projecting are heavily oriented towards and set-back of all on-site signs. onto or over public right-of-ways. active park creation, there Parking spaces established in accor has been no acquisition to dance with building/zoning minimum • Designate, from time to time, scenic implement the foregoing rec requirements are not to be occupied drives or corridors in which no off ommendations. The State of by signs or other advertising de site signs will be permitted and more Florida has made two large vices. stringent on-site controls may be acquisitions in Northeast established. Florida - Talbot Island and • Prohibit all off-site signs (bill Guana Tract - and it is un boards) in Conmercial General (CG) 5. The Mayor strengthen the enforcement likely it will soon make and Open Rural (OR) zoning classi policies and capability of the Building other major land purchases fications. and zoning Inspection Division, includ for green space in Jackson ing additional personnel, to enable it ville. However, the state • Require a minimum 2,500-foot spacing to enforce the ordinance code provi Conservation and Recrea between all off-site signs. sions related to visual pollution tional Land (CARL) conmi t (i.e. signs, junkyards, landscape, tee lists land on the • Establish an amortization period of trees, etc.). Julington-Durbin Creek pe not more than five years to bring all ninsula among the 20 par- signs into conformance. 19 e. The city's right to exclude advertising 12. Jacksonville's tree protection ordi bus benches from the downtown core be nance be revised to provide protec extended city-wide. The JTA and the tion to the palms and pines and to Planning Department develop alterna extend protection to larger trees tives to existing programs for place (over 18 inches in diameter) through ment of bus benches throughout the out the lot. city of Jacksonville. 1 3. The Jacksonville Transportion Author 7. The Duval Delegation work to eliminate ity, Florida Department of Transporta the authorization of billboard com tion, City Council and Mayor: panies to remove trees on public • Adopt and implement plans for land rights-of-way adjacent to bill scaping Jacksonville • s streets and boards. highways,particularlyitsexpressway system. 8. Jacksonville • s congressional represen tatives work to amend the Highway Beau • Provide grassed rather than asphalt tification Act to allow for an amortiza medians when possible. tion period as an alternative to cash • Increase capabilities for maintenance compensation for removal of billboards of street landscaping. on interstate highways and federal pri mary aid highways. • Support the efforts of organizations such as Greenscape and The Greater 9. All private businesses display street Mandarin Civic Coalition to provide number identification signs in a promi street landscaping. nent place to aid shoppers and to reduce the need for additional signs. 14. The Mayor and City Council establish a Code Enforcement Board, as authorized 1 0. The city and local sign companies by State Statutes, to provide a more jointly sponsor a scrap-old-signs pro efficient method of enforcing the ordi grall to reJDOve abandoned signs. nance codes related to visual pollution (i.e. signs, landscaping, junkyards, 11 . The Landscape Ordinance Code be amended abandoned buildings, etc.). to: 15. The city acquire undeveloped land for • ensure that interior landscaping be passive parks and greenspaces. A pro distributed so as to break up the grall should be established to encourage expanse of pavement in parking the donation of real property to the lots. city for use as parks or greenspaces. The city should work to fund the imple • apply to construction which does not mentation of the 200S plans recommenda currently require a building permit, tions for a stream valley park sys such as paving an existing vacant tem. lot. 16. The Mayor and City Council establish • be made applicable to substantial programs of architectural review and expansions of existing businesses, public art for all public buildings such as those in which the square and an historic preservation ordi footage of the new construction is nance. at least so• of the original build ing size or where the cost of new 1 7. The Planning Department site plan re construction is at least so• of the view be expanded to require review of original building cost. site plans for all commercial property similar to present requirements for • require landscape plans to be pro multi-family housing. perly reviewed by trained personnel and enforced through follow-up 1 8. The JEA develop long term plans to con inspections, similar to those re vert to underground utilities, begin quired for plumbing and electrical ning in high visibility, high impact requirements. areas such as neighborhood shopping districts. 20 is occurring with RESOURCE PERSONS TO THE COMMITTEE aesthetic t.prove- The JCCI process relies upon information supplied by knowledgeable resource per sons in addition to published reference materials. we wish to thank the follow ing resource persona for meeting with the committee and making very valuable con e Downtown Development tributions to this report. utbority, (DDA) a seven r body appointed by the he Mayor, acts as a go Tracey Arpen, Jr • , Attorney, Mar ka, Gray, Conroy li Gibbs tween wi tb governmental ies and developers to Dick Basford, Associate Managing Director, System Engineering and Operations, Jacksonville ssist in re1110ving slUIIl and Electric Authority light in downtown Jackson ille. In its dealings with Bob Baughman, Horticulturist, Jacksonville Recreation Depart.ent evelopers, the Downtown velopaent Authority nego Forrest Boone, Jacksonville City Council, District III iates tradeoffs to encour ge quality development. In Marvin Boutwell, Division Chief, Building and Zoning Inspection Division, Jacksonville rojecta where city aaaia Department of Public Works nce, such as new infra tructure from tax increment NorlDan Bowman, Director of ec.aunity Development, Gaineavile, PL inancing is needed or when city-owned building is be Matthew Carlucci, Mandarin Beautification Project of Mandarin Civic Coalition ng purchased, the Downtown velopaent Authority is William Cook, President, William Cook Advertising irectly involved via a tract with the developer. Bill Cox, Director of Corporate Developaent, Naegele Outdoor Advertising is contract includes nego iated amenities such as Myrtice Craig, Downtown Development Authority ~andacaping and public art to ensure a good quality Laura D'Aliaera, Chief of Planning, Research and Grants, Jacksonville Recreation Seve los-ant. Department l'he DDA baa worked with city Joyce Dyro, Executive Coordinator, Keep Jacksonville Beautiful tgenciea and Greenacape to tncourage the planting of Carl Peisa, FAIA, AICP, Planning and Urban Conservation Consultant ~reea and landscaping in the lowntown area. It is trying Susan Fisher, Greenscape :o work with the state to tncourage landscaping of new Gifford Grange, Jacksonville City Council, District IV state road construction rithin ita downtown juria Preston Haskell, President, The Haskell Coapany liction. Mary Ann Lederhaua, Associate Professor Marketing, UNP ~andarln Pete Liane, President, Jacksonville Jaycees Beautification Project !Uiother good example of a Terry McGowan, Real Batate Representative, 3~, National Advertising Company :x.munity project designed :o enhance the beauty of Henry Mock, Division Chief, Traffic Engineering Division, Jacksonville Department of Jacksonville is the Mandarin Public Works ieautification Project begun 'JY mellbera of the Greater w. Ray Newton, Director of Planning, Jacksonville Planning Department landar in Civic Coalition and ~e Mandarin Business Asao Joe M. Pepe, ~diate past President, The North Florida Builders Association, President, :iation. The project calla JOPBP Construction :or extensive landscaping on 1 strip of San Jose Boule Bob Stone, Media Planner, Williaa Cook Advertising ,ard which is considered the 'Gateway to Mandarin •. Chuck SWearingen, Vice President, Jacksonville Jaycees 21 Resource Persons Continued Pat Thornton, Chairman, Aesthetic and Growth Management Committee, Mayor's Blue Ribbon Growth Management Task FOrce
James G. Vaughan, Jr., Executive Vice President, Jacksonville Chamber of Commerce
Ron Watson, Deputy Director, Recreation and Parks Division, Jacksonville Recreation Department
Mike Wedner, Attorney, City of Jacksonville General Counsel's Office
Roger Williams, President, Quality Neon Sign Company
REFERENCES American Planning Association. Billboards. Floyd, Charles F. •Billboard Control Under Chicago, Illinois: Planning Advisory Ser the Highway Beautification Act - A Failure vice (May, 1980). of Land Use Controls.• APA JournalJ Chi cago, Illinois (April, 1979). American Planning Association. Regulating Portable Signs. Chicago, Illinois: Plan Jacksonville Area Planning Board. 2005 ning Advisory Service (April, 1979). Comprehensive Plan--city of Jacksonville. Jacksonville, Florida (June, 1979). Anderson, Raymond T. The Economic Values of On-Premise Signs. Alexandria, Virginia: Lamar Advertising Associates of East National Electric Sign Association (1983). Florida, Limited v. City of Daytona Beach, 450 So. 2d 1145 (Fla. 5th DCA 1984). Arlington Redevelopment Board. Sign Sense: Arlington, Massachusetts. Arlington, Mayor's Blue Ribbon Growth Management Task Massachusetts: Arlington Department of Force. •Aesthetics and Growth Management Planning and Community Development (June, Coami t tee Report, • Jacksonville, Florida 1977). (April, 1985).
~rman v. Parker, 348 US 26, 75 S Ct 98, McMahon, Edward T. •Opinion: Bow to Combat 99 LEd 27 (1954). Billboard Blight. • Washington, D.C., Place: , November 1984, Volume 4, Number California Roadside Council. Signs in 10, pp. 8-10. California. Sacramento, California. Morris, Philip. Southern Living, Birming City Council of Los Angeles v. Taxpayers ham, Alabama, Numerous articles on improv for Vincent, 104 s Ct 2118 (1984). ing community appearance. City 2.{_Lake Wales v. Lamar Advertising So, Frank s., Stallman, Israel, Beal, Association of Lakeland, Florida, 414 So. Frank, and Arnold, David s. The Practice 2d 1030 (Fla. 1982). of Local Government Planning. Washington D.C.: International City Management Coalition for Scenic Beauty. Several pub Association (1979). lished and unpublished documents. Media, Pennsylvania.
22 COMMITTEE MEMBERSHIP AND WORK The Committee met weekly from November, 1984 through April 5, 1985 for a total ~rived from the published of 22 meetings. In addition, the Management Team met numerous ti.es to guide ~rsons or from a consen- the study. The committee received information from 29 knowledgeable resource persons and additional written materials researched by JCCI staff. The Conclusions and Recommendations were discussed in March and April. Economic Value of Chairman: Douglaa J. Milne ~esthetics Tracey Arpen, Jr., Management Teall Bs'l'IIBTIC CONSIDERATIONS Joyce Bizot, Managa.ent Team !AD GOOD BUSINESS SBHSB. Bank Baynes, Manageaent Teaa :CCOrding to the Joint Bco Martha McGee, Management Teall ic-ic co.aittee of the Plo Nell Ozell, Manage~~ent Teaa lnited States Congress, a Ted Pappas, Management Team ity's quality of life is Wallace Anderson Ronae B. Keiser Gloria Rinaman iore illportant than purely Bruce Adrews Nancy Iabry Sally Robson usiness-related factors Barbara Jeanne Bald Blllily Lisska George Radon ~en it OOBeS to attracting Murray Beard Kathy McClain Anne Ross !ev businesses, particularly William D. Brinton Joseph Mikulas Lisa Strange he rapidly growing high John Bunker Sarah Monroe I. M. Sulzbacher ech and service industries. Stafford Campbell George Pascucci Camilla Tbcmpson lany 001111uni ties with Ivan c. Clare Charisse Patrinely William A. Warde ealthy economies and na John DeWOlf-Burt Sue Pine Bill warner ional illages as desirable Judith Gefter J. w. Prichard, Jr. Sharon weaver laces to live, work, and Beverly Horowitz Stephen Prom Roger Williams ~ business also have repu ~tions as aesthetically ,leasing 0011111unities and JCCI STAFF uave strong ordinances to Marian Chambers, Executive Director !nsure that they remain so. fotable aJIOng these are Boca PRlPBSSIONAL: • John L. Hamilton SUPPORT: Marcia Whaley laton, Ploridar Chapel Bill, Carole Varney * Jane Gerald lorth carolinar Boulder, *Responsible for this study. :Olorador Seattle, Washing :.onr Portland, Oregonr and PREVIOUS STUDIES lonolulu, Hawaii. Studies Chairmen Ugn control is even more *Local Government Pinance ••••••••••••••••••••••••••••••••••••••• Robert D. Davis lmportant to tour ism. Ameri *Bouaing ••••••••••••••••••••••••••••••••••••••••••••••••••••••• Thomas Carpenter ~s spend millions of dol *Public Education (K-12) ••••••••••••••••••••••••••••••••• Robert w. Schellenberg Lars each year vacationing *Public Authorities ••••••••••••••••••••••••••••••••••••••••••• Boward Greenstein Ln CCIIIDunities that offer *Strengthening the Pamily •••••••••••••••••••••••••••••••••••••••• Jaquelyn Bates uatural, historic and archi Capital Improvements for Recreation •••••••••••••••••••••••••••••••••• Ted Pappas :ectural assets. Such vaca Citizen Participation in the Schools •••••••••••••••••••••••••••••••• susan Black :ion areas include Palla Youth Unemployaent ••••••••••••••••••••••••••••••••••••••••••••••••• Roy G. Green ;prings, lake Tahoe, and Civil Service ••••••••••••••••••••••••••••••••••••••••••••••••••••• Max K. Morris :ar•l, california, Sante Planning in Local Government ••••••••••••••••••••••••••••••••••• I. M. Sulzbacher re, New Mexicor Scottsdale, But Not in~ Heighborbood ••••••••••••••••••••••••••••••••••••••• Pamela Y. Paul ~izonar Bilton Bead Island, The Bnergy Efficient City ••••••••••••••••••••••••••••••••••••• Roderick M. Nicol Iouth carolinar Williams Coordination of Ruman Services ••••••••••••••••••••••••••••••••••••••• Pat Bannan ,urg, Virginiar Boca Raton, Higher Bducation ••••••••••••••••••••••••••••••••••••••••••••••••• R. P. T. Young nor ida r and Martha's Vine Disaster Preparedness ••••••••••••••••••••••••••••••••••••••walter Williams, Jr. rard, Massachusetts. All Teenage Pregnancy •••••••••••••••••••••••••••••••••••••••••••••• Mari Terbrueggen :hese oamaunities have re Downtown Derelicts ••••••••••••••••••••••••••••••••••••••••••••••• Barle Traynham ::ognized that sign and other Mass !ransit•••••••••••••••••••••••••••••••••••••••••••••••••••••David Bastings Tisual pollution controls Indigent Health care•••••••••••••••••••••••••••••••••••••••••••Linda McClintock 1elp attract tourist dollars Jacksonville's Jail ••••••••••••••••••••••••••••••••••••••••••••••••• Bleanor Gay md aid the local economy. Growth Management •••••••••••••••••••••••••••••••••••••••••••••• curtis L. McCray *Copies no longer available for distribution 23 THE JACKSONVILLE COMMUNITY COUNCIL, INC.
'l'he Jack10nv1lle ec.aunity Council, Inc. (JCCI) was forMe! to anticipate, identify and address the 0011plex issues of urban life. JCCI is a co.aunity-baaed nonpartisan, nonprofit organization providing the vehicle for in-depth, objective, citizen analysis of oo.aunity probleaa and issues. It seeks broader coaaunity awareness and understanding of the issues and provides Jacksonville a diverse citizen foru. reaching across the tradi tional dividing linea of a oo.plex and diverse urban co.aunity.
The pri..ry goal of JCCI ia a better quality of life in Jack10nville through positive change. It baa an iapreaalve record for the quality, objectivity, clarity, and practicality of ita studies of a.aunity probleu, and ita advocacy for the 10lutlona it developa. Jacksonville baa experienced tbe benefits of n~roua iapro,...nta growing fra. t!Mtse citl:len studies. Through ita support of the Bu.an Services coalition, and work for the United Way, JCX:I pro.otea the planning and coordination of hUIDBn services.
JCCI ia founded on a deep faith in the ability of citizens to set aside their differences and join together to learn and reason about probl... of •utual concern. Ita growth and success offer renewed hope for this basic deaocratic concept as a ..ana of addressing the co.plex issues of .adern urban co.aunitiea. Jcx:I receives funding fra. the United Way of Jacksonville, the City of Jacksonville, corporations, and indivi dual ...t.ra.
JCCI BOARD OF MANAGERS James c. Rinaman, President Juliette B. WOodruff, Secretary Kenneth Eilermann, President-Elect James Burke, Treasurer carol Baumer Ray Bullard Curtis McCray Luann Bennett James Citrano Anne Mcintosh Jacob P. Bryan, IV. Lucy Badi Leanie Payne J. Shepard Bryan, Jr. David M. Hicks Andrew Robinson Ezekiel Bryant Ted Johnson Sylvia Simmons By Kliman
Jacksonville Community Council Inc. 1001 Kings Ave., Suite 201 Jacksonville, Florida 32207
A JCCI STUDY: VISUAL POLLUTION UllJLadWiy