Technical ReportPDF Available

Jacksonville, Florida: Leveraging Transit for Economic Development

June 2018

DOI:10.13140/RG.2.2.12758.80960

Authors:

Ladd Keith

The University of Arizona

Neal Payton

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ULI Advisory Service panel was asked to provide strategic advice and recommendations for the City of Jacksonville and the Jacksonville Transportation Authority (JTA) on the following four key objectives and goals: economic development opportunities, regulatory goals and policy, land use and market-based development, and implementation. These objectives and goals are intended to help envision the revitalization of downtown Jacksonville and the surrounding neighborhoods with the U2C at the center of development, and then to translate these recommendations into public sector investments and identify tools and next steps for their implementation. These were developed after interviews with stakeholders, a site tour, and a briefing by JTA.

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Jacksonville

Florida

June 17–22, 2018

A ULI Advisory Services Panel Report

Jacksonville

Florida

Leveraging Transit for Economic Development

June 17–22, 2018

A ULI Advisory Services Panel Report

About the Urban Land Institute

THE URBAN LAND INSTITUTE is a global, member-

driven organization comprising more than 42,000 real

estate and urban development professionals dedicated to

advancing the Institute’s mission of providing leadership in

the responsible use of land and in creating and sustaining

thriving communities worldwide.

ULI’s interdisciplinary membership represents all aspects

of the industry, including developers, property owners,

investors, architects, urban planners, public ofﬁcials, real

estate brokers, appraisers, attorneys, engineers, ﬁnan-

ciers, and academics. Established in 1936, the Institute

has a presence in the Americas, Europe, and Asia Paciﬁc

regions, with members in 80 countries.

ULI’s extraordinary impact on land use decision making is

based on its members’ sharing expertise on a variety of

factors affecting the built environment, including urbaniza-

tion, demographic and population changes, new economic

drivers, technology advancements, and environmental

concerns.

Peer-to-peer learning is achieved through the knowledge

shared by members at thousands of convenings each

year that reinforce ULI’s position as a global authority on

land use and real estate. In 2017 alone, more than 1,900

events were held in about 290 cities around the world.

Drawing on the work of its members, the Institute recog-

nizes and shares best practices in urban design and devel-

opment for the beneﬁt of communities around the globe.

More information is available at uli.org. Follow ULI on

Twitter, Facebook, LinkedIn, and Instagram.

Cover: Jamie Simchik /ULI.

2001 L Street, NW

Suite 200

Washington, DC 20036-4948

any part of the contents of this publication without written

permission of the copyright holder is prohibited.

Jacksonville, Florida, June 17–22, 2018

About ULI Advisory Services

THE GOAL OF THE ULI ADVISORY SERVICES is to

bring the ﬁnest expertise in the real estate ﬁeld to bear

on complex land use planning and development projects,

programs, and policies.

Since 1947, this program has assembled well over 700

ULI-member teams to help sponsors ﬁnd creative, practical

solutions for issues such as downtown redevelopment, land

management strategies, evaluation of development potential,

growth management, community revitalization, brownﬁeld

redevelopment, military base reuse, provision of low-cost

and affordable housing, and asset management strategies,

among other matters. A wide variety of public, private,

and nonproﬁt organizations have contracted for ULI’s

advisory services.

Each panel team is composed of highly qualiﬁed profession-

als who volunteer their time to ULI. They are chosen for their

knowledge of the panel topic and are screened to ensure

their objectivity. ULI’s interdisciplinary panel teams provide a

holistic look at development problems. A respected ULI mem-

ber who has previous panel experience chairs each panel.

The agenda for a ﬁve-day panel assignment is intensive. It

includes an in-depth brieﬁng day composed of a tour of the

site and meetings with sponsor representatives, a day of

hour-long interviews of typically 50 to 100 key community

representatives, and two days of formulating recommenda-

tions. Long nights of discussion precede the panel’s conclu-

sions. On the ﬁnal day on site, the panel makes an oral

presentation of its ﬁndings and conclusions to the sponsor.

A written report is prepared and published.

Because the sponsoring entities are responsible for signiﬁ-

cant preparation before the panel’s visit, including sending

extensive brieﬁng materials to each member and arranging

for the panel to meet with key local community members

and stakeholders in the project under consideration, partici-

pants in ULI’s ﬁve-day panel assignments are able to make

accurate assessments of a sponsor’s issues and to provide

recommendations in a compressed amount of time.

A major strength of the program is ULI’s unique ability

to draw on the knowledge and expertise of its members,

including land developers and owners, public ofﬁcials,

academics, representatives of ﬁnancial institutions, and oth-

ers. In fulﬁllment of the mission of the Urban Land Institute,

this Advisory Services panel report is intended to provide

objective advice that will promote the responsible use of land

to enhance the environment.

ULI Program Staff

Paul Bernard

Executive Vice President, Advisory Services

Thomas W. Eitler

Senior Vice President, Advisory Services

Beth Silverman

Vice President, Advisory Services

Paul Angelone

Director, Advisory Services

Cali Slepin

Associate, Advisory Services

James A. Mulligan

Senior Editor

Laura Glassman, Publications Professionals LLC

Manuscript Editor

Betsy Van Buskirk

Creative Directo r

Brandon Weil

Art Director

Anne Morgan

Lead Graphic Designer

Kurt Wisthuff, Arc Group Ltd

Graphic Designer

Craig Chapman

Senior Director, Publishing Operations

A ULI Advisory Services Panel Report

Acknowledgments

ON BEHALF OF THE URBAN LAND INSTITUTE,

the panel would like to thank the sponsors, Jacksonville

Transportation Authority (JTA), and Nathaniel P. Ford Sr.

and Chairman Isaiah Rumlin, for inviting the panel to

Jacksonville to examine the Skyway and the Ultimate

Urban Circulator. A special thank you goes to Alexander

Traversa and Brad Thoburn for their support and putting

together the panel’s brieﬁng materials.

In addition, thank you to the many other JTA staff mem-

bers who made the week a success, including Sal Alaimo,

Aleizha Batson, Matt Chang, John Claybrooks, Michael

Corbitt, Marcus Dixon, Kevin Greene, Kenny Jefferson,

Lorrin Leonard, Jen Hankey Maki, Winova Mayer, Leigh

McGinty, Jeremy Norsworthy, Leigh Ann Rassler, Kevin

Salzer, Kathleen Smith, Terri Smith, and Gerald Wade.

The panel also thanks ULI North Florida for its help in

answering questions and providing insight to the panel,

including Tarik Bateh, JLL; Carolyn Clark, ULI North

Florida; Jake Gordon, Downtown Vision; Peter King,

Bellatrix Ventures; Patrick Krechowski, Gray Robinson;

Joe Loretta, Genesis Group; and Rob Palmer, RS&H.

Finally, the panel would like to thank the more than

100 residents, business and community leaders, and

representatives from across Jacksonville who shared their

perspectives, experiences, and insights with the panel

over the week.

Jacksonville, Florida, June 17–22, 2018

Contents

ULI Panel and Project Staff ...................................................................................................................................6

Background and the Panel’s Assessment ..............................................................................................................7

Establishing the Vision .........................................................................................................................................9

Key Observations ...............................................................................................................................................11

Leveraging the Ultimate Urban Connector Network ..............................................................................................18

Land Development Strategies and Organizational Structure ..................................................................................26

Conclusion ........................................................................................................................................................31

About the Panel .................................................................................................................................................32

A ULI Advisory Services Panel Report

ULI Panel and Project Staff

Panel Chair

Ladd Keith

Assistant Professor, Planning and Sustainable Built

Environments

University of Arizona

Tucson, Arizona

Panel Members

Marcel Acosta

Executive Director

National Capital Planning Commission

Washington, D.C.

Amitabh Barthakur

Partner

HR&A Advisors

Los Angeles, California

Neal Payton

Principal

Torti Gallas + Partners

Los Angeles, California

Jamie Simchik

Principal

Simchik Planning & Development

Boston, Massachusetts

Julie Underdahl

President/Chief Executive Ofﬁcer

Cherry Creek North Business Improvement District

Denver, Colorado

Cassie Wright

Owner

Cassie Wright Consulting

Denver, Colorado

ULI Project Staff

Paul Angelone

Director, Advisory Services

Alex Schoeder

Manager, Project Marketing

Michaela Kadonoff

Associate, Meetings and Events

Clay Holk

Intern, Advisory Services

Jacksonville, Florida, June 17–22, 2018

Background and the Panel’s Assignment

BECAUSE OF A CITY-COUNTY GOVERNMENT

CONSOLIDATION in 1968, the city of Jacksonville in

northeast Florida is the largest city by area in the contigu-

ous United States, comprising 875 square miles. With an

estimated 2017 population of 892,062, Jacksonville is the

largest city in the state of Florida and the 12th largest in

the United States. Jacksonville’s Metropolitan Statistical

Area, which includes surrounding counties in northeast

Florida and southeast Georgia, has an estimated 2017

population of 1,504,980, making it the 40th largest by

population in the United States and the fourth largest in

Florida, behind the Miami, Tampa, and Orlando metropoli-

tan areas.

Water has played a crucial role in the formation of

Jacksonville’s identity. Although Duval County’s 22 miles

of beaches along three communities (Atlantic Beach,

Jacksonville Beach, and Neptune Beach) are technically

outside Jacksonville’s city limits, these towns largely serve

as bedroom communities or popular tourism draws near

Jacksonville.

The city is bisected by the St. Johns River and is home to

major naval facilities and the Port of Jacksonville, which is

the 13th-largest U.S. port by container volume and second

largest in Florida. Jacksonville’s location as a hub for rail

networks, interstate highways, and an international airport

make it a popular location for logistics ﬁrms, including rail

transportation company CSX Corporation and freight and

delivery company Landstar, both of which are headquar-

tered there. Other Fortune 500 companies based in the

city are title insurance provider Fidelity National Financial

and Fidelity National Information Services.

The city of Jacksonville is dedicated to revitalizing its

downtown. Downtown Jacksonville serves as a community

hub for nearly one and a half million people and is the

location of many destinations, events, and cultural centers

for the residents of Jacksonville and the surrounding

region. In an effort to support downtown revitalization, the

Jacksonville Transportation Authority (JTA) is planning a

new mode of transportation to improve accessibility and

support economic development in and around downtown.

The Ultimate Urban Circulator ( U2C) has the potential of

creating a more connected downtown, while addressing

the issues affecting Jacksonville’s aging infrastructure.

For nearly 30 years, JTA’s Automated Skyway Express

(Skyway) has transported Jacksonville’s commuters

throughout the urban core. However, emerging technology

and the evolving needs of Jacksonville’s downtown devel-

opment present a unique opportunity to reevaluate existing

infrastructure and provide greater connectivity, mobility,

and sustained economic growth. JTA has determined that

these objectives can be achieved by using investment in

the existing elevated Skyway, expanding the area it serves,

and adopting autonomous transit technology. U2C can

cost-effectively reach beyond the current system to serve

existing and planned downtown development.

Jacksonville is located in

northeast Florida.

DOWNTOWN VISION INC.

A ULI Advisory Services Panel Report

A ULI Advisory Service panel was asked to provide strate-

gic advice and recommendations on the following four key

objectives and goals:

 Economic development opportunities: To design a

transit system that is viewed as an economic advantage

that provides greater accessibility, is sustainable, and

supports economic development;

 Regulatory goals and policy: To determine a cham-

pion and strategies to guide regulatory controls and

policies in a direction that supports transit-oriented

development, smart city initiatives, and economic

development;

 Land use and market-based development: To

use transit-oriented development strategies to reduce

auto dependence and congestion as well as improve

accessibility through alternate modes in the downtown

area; and

 Implementation: To develop strategies for the develop-

ment and redevelopment of two transit stations, which

are representative of other stations throughout downtown,

that can act as models for future station development,

and to determine strategies to encourage support

for the project, as well as next steps in implementing

the project.

These objectives and goals are intended to help envi-

sion the revitalization of downtown Jacksonville and the

surrounding neighborhoods with the U2C at the center of

development, and then to translate these recommenda-

tions into public sector investments and identify tools and

next steps for their implementation. These were developed

after interviews with stakeholders, a site tour, and a

brieﬁng by JTA.

The U 2C network proposed by JTA. An automated vehicle on the U 2C test track on East Bay Street.

JTA

MARCEL ACOSTA/ULI

Legend

Existing route

Potential extensions

Jacksonville, Florida, June 17–22, 2018

San Diego in the 1970s.

San Diego today.

SAN DIE GO HISTORY C ENTER /FLICK RPORT OF S AN DIEGO /FLICK R

Establishing the Vision

SAN DIEGO IN THE 1970s was similar to Jacksonville

today. The city was a large, sprawling community with

beaches, strong suburban-based Fortune 500 compa-

nies, universities, and military facilities. However, focus

on downtown by the city and real estate developers was

limited. The trajectory of San Diego’s resurgent downtown

began to change in the 1980s with political leadership and

an understanding that a strong downtown meant a strong

region. This led to the revitalization of the Gaslamp Quarter

and nearby Horton Plaza with a focus on walkability, com-

mercial activity, and providing a safe atmosphere. More

than 30 years later, San Diego’s downtown is now often

considered one of the most livable and dynamic communi-

ties in the United States.

Many of the same attributes that created a strong economic

boom in San Diego are present in Jacksonville, but estab-

lishing a clear vision and tools to implement that vision are

needed. To guide the panel’s recommendations, the panel

established the following set of guiding principles:

 Create a city of neighborhoods: Downtown Jackson-

ville currently has many assets, neighborhoods, and

destination points. These assets should be built upon

and better highlighted. An opportunity exists to create

inclusive economic development and growth that will

better connect with downtown and provide currently

untapped ridership. Development should focus on

residential to provide housing options for the many and

diverse employment opportunities that are currently

located downtown. Like the diversity of employers, resi-

dential should meet the many needs of the workforce,

students, seniors, millennials, and corporate users.

 Enhance mobility: The U2C should be about creating

more mobility options and build on the existing network

of the regional and local bus system, vehicular transport,

sidewalks, water taxis, and active transportation options

such as bicycles. The proposed system is innovative,

exciting, and a real branding opportunity. However,

automated vehicles (AVs) are still unproven technology

and some caution is necessary in relying only on the

U2C network to drive economic growth. The system

needs to respond to changing dynamics to serve the

customers—the riders—ﬁrst. This forward-looking

technology can be successful if JTA uses its position of

controlling land, streetscapes, and funding sources.

 Start small: Successful downtowns are built with small

building blocks—not just with big projects. Taking

advantage of and nurturing small projects will build

trust and a culture of success. Recent examples include

the Lofts at LaVilla and Intuition Ale Works brewery.

These smaller-scale projects bring character, economic

sustainability, and neighborhood vitality.

A ULI Advisory Services Panel Report

 Empower champions: Many ongoing efforts to improve

downtown and many individual champions exist. The

development of inclusive engagement and a clear path

from top down to grassroots up should be established

to ensure the actions of the many come together so

that everyone succeeds in their missions. Having a

robust network of empowered champions will help plan

for a longer-term vision and implementation through

economic cycles and changes in market demands.

 Take transformational action: The idea of redevelop-

ment and revitalization of the downtown has engendered

a lot of excitement. Use this energy, funding, and exper-

tise to create a downtown Jacksonville that rivals other

successful communities, such as San Diego, Nashville,

or Indianapolis, and builds pride in the region while

recognizing and respecting the city’s deep history and

diversity. The reenvisioned Skyway and U2C can be this

transformational action.

The 2017 State of Downtown

Report from Downtown Vision

Inc. shows that billions of

dollars of investment are

occurring in downtown

Jacksonville, along with new

housing, entertainment, and

work. Downtown is a vital and

important place within the

region, and it matters for future

investment and attention.

Infill development should be

encouraged in downtown

because there are many

opportunities within the existing

street grid and parking lots.

This image shows an example

of a new residential building in

Detroit replacing a former parking

lot near the city’s People Mover

and new streetcar.

DOWNTOWN VISION INC.PAUL ANGELONE/ULI

Jacksonville, Florida, June 17–22, 2018

Key Observations

THE 2015 U.S. CENSUS ESTIMATES that Duval County

has about 490,000 jobs, the largest share of which is

represented by the health care and social assistance

sector with 14 percent of the total. Downtown Vision Inc.

estimates that downtown Jacksonville has almost 59,000,

or 12 percent, of total countywide jobs. The prominent

sectors represented in the downtown area include profes-

sional services (21.1 percent), ﬁnance and insurance (9.7

percent), and public administration (9.0 percent).

This ﬁnding is not a surprise, given the location of at least

three Fortune 500 companies, banks, and insurance

companies in the downtown area, as well as a wider eco-

system of professional service establishments supported

by the multiple civic functions, including the city hall and

courts. Downtown contains about 25 percent of citywide

ofﬁce inventory, but this has not grown because of compe-

tition from newer developments in suburban locations.

Although health care and social assistance represents

almost 8 percent of total downtown jobs, it includes only

the Baptist Medical Center but not other major health care

facilities such as UF Health Jacksonville to the north and

the St. Vincent’s Medical Center to the southeast, which lie

just outside the boundaries of the deﬁned downtown area.

Considering these other facilities as part of downtown’s

economic base may imply that downtown has a similar or

perhaps even a greater share of health care jobs than the

region as a whole.

The Battle for Survival

In contrast to downtown’s employment concentration, the

area’s 4,200 residents represent less than 1 percent of the

regional population. Duval County is also a tourist destina-

tion. Estimates provided by Visit Jacksonville’s annual visi-

tor survey report that 6.2 million overnight guests visited

Duval County in 2016. Other visitor preference surveys

conducted by Visit Jacksonville report that Jacksonville is

an affordable destination for family fun and beaches.

Although the city has a number of attractions located

downtown, including a Convention Center and a number

of high-quality sports franchises such as the Jacksonville

Jaguars, these attractions have not spurred signiﬁcant

overnight visitation. With 2,300 rooms, downtown has only

a small share of the close to 18,000 hotel rooms located

in the county, which has affected the city’s ability to attract

major conventions. The Stadium District’s Sports Complex

with its multiple venues does attract a large number of

regional visitors, but this visitation is event based and not

sustained on a daily basis.

This imbalance between a small resident population

and sporadic event and convention visitors, contrasted

with a large number of daytime employees who are only

downtown from 9 a.m. to 5 p.m. on weekdays, poses a

The defined downtown of

Jacksonville.

GOOGLE M APS; UL I

A ULI Advisory Services Panel Report

signiﬁcant challenge to retail and dining establishments

in downtown, which cannot thrive without a reliable and

consistent ﬂow of patrons during weekdays and weekends

as well as at different times of the day.

As a result, according to CoStar, downtown’s share of re-

tail and dining establishments is less than 2 percent of the

citywide inventory, and average retail rents have declined

by more than 30 percent since 2010. This situation is

further exacerbated by Jacksonville’s continued outward

growth, with newer developments in the suburbs over the

past few decades; new suburban shopping centers of all

types have followed the rooftops.

Strong Fundamentals but

Underleveraged Assets

Although a large part of downtown is laid out on a

walkable grid, and the central core of the Civic Center

emanating out of Hemming Plaza is dense and includes

a variety of historic buildings with architectural character,

most of the ofﬁce stock in the area surrounding this core

is dated, going back to the 1970s and 1980s, and built for

the automobile.

As in any automobile-centric city, downtown is dominated

by an abundant supply of parking of all forms, including

very large and mostly underused surface lots and

structures, which create severe barriers to a walkable

environment. The lack of shade and various intrusive

infrastructure features, including a number of ramps and

grade separations, also do not help walkability. During

extreme rainfall events, the amount of hard surfaces

such as parking lots and roadways decreases the ability

of downtown Jacksonville to avoid ﬂooding.

Despite some of these challenges, which are not unlike the

ones faced by most cities across the country at one time

or another over the last 50 years, downtown Jacksonville

also has many unique strengths. Perhaps the greatest of

these is its location, straddling both sides of the beauti-

ful St. Johns River. This location is further enhanced by

some of the critical investments made by the city over

time, including the creation of the Riverwalk and continued

improvements within the urban core related to streets.

However, the river and associated storm surges also pose

JAMIE SIMCHIK/ULI

NEAL PAYTON/ULI

Hemming Plaza in downtown Jacksonville.

A parking lot near the intersection of West Bay Street and Hogan Street.

Jacksonville, Florida, June 17–22, 2018

a threat to downtown, as seen in 2017 with the ﬂooding

from Hurricane Irma, which caused an estimated $85 mil-

lion of damage to the city. The riverfront presents a unique

opportunity to position this part of the city as a one-of-a-

kind urban center with access to amenities, open space,

entertainment, jobs, health care, education, and a variety

of housing options.

Downtown is also home to a number of cultural and

institutional anchors, including Florida State College of

Jacksonville’s downtown campus north of the downtown

core, the newly constructed Jacksonville Public Library, a

number of religious institutions including the First Baptist

Church, and the Museum of Science and History on the

south bank, among others.

Addressing Climate Vulnerability

As downtown Jacksonville becomes more pedestrian

focused, the lack of shade along corridors and at activity

centers poses a challenge to the viability of increasing

pedestrian activity.

Increased shade (e.g., street trees, covered walkways,

or arcades) is particularly important because the 2014

National Climate Assessment indicates temperatures in

the region have increased since the 1970s by an average

of 2°F, with further increases of 4°F to 8°F anticipated

by 2100. A signiﬁcant increase of the number of hot days

(95°F and above) by as many as 60 to 75 days is expected

by 2070.

The river and associated storm surges also pose a threat

to downtown. Events like Hurricane Irma are expected to

be more frequent in the future, and according to the 2014

National Climate Assessment, sea levels have risen by

eight inches globally since 1900 and are anticipated to rise

another one to four feet by 2100, further adding to the

storm-surge risk.

Another aspect increasing the risk for future ﬂooding

includes the scheduled U.S. Army Corps of Engineers

dredging project for the river, which is anticipated to

increase ﬂood levels in a 100-year storm by three to six

inches in the downtown area, according to the Marine

Science Research Institute at Jacksonville University.

Map of projected high-tide flooding based on the intermediate scenario as part of NOAA’s Sea Level Rise Viewer. Coastal flooding

events and duration will increase as relative sea-level change occurs, and actions to mitigate these changes should be incorporated

into the planning process.

NOAA D IGITAL COA ST

A ULI Advisory Services Panel Report

A City of Neighborhoods

Downtown’s geographic extent is quite large, including

nearly four square miles of land area on both sides of the

river, and its northern riverfront is nearly three miles long.

One of the key characteristics of downtown, however, is

that it is not a single homogenous district. As shown in the

map above, downtown comprises many distinct neighbor-

hoods that differ in character, mix of uses, demographics,

and densities. In addition, downtown is surrounded by a

number of primarily residential neighborhoods, each with

its particular character.

This diversity of neighborhoods can offer a variety of

options to live, work, play, and learn: it can become one of

the greatest strengths in the downtown renaissance. The

area surrounding Hemming Park, the heart of downtown,

is a largely single-use employment center, but the

neighborhoods of LaVilla, Brooklyn, Five Points, Riverside,

and Avondale and to the east are transitioning into

mixed-use places with residential, retail, and recreation

options (denser, more intensive development east of I-95).

The sports complex to the west is a regional destination,

Southbank is a more well-established market with

high-rise condominiums and related amenities, and

immediately to its south, San Marco, which lies outside the

downtown boundaries, is a stable and desirable neighbor-

hood with historic housing stock. Neighborhoods to the

north such as Springﬁeld are also in transition, but some

of the northern areas are economically distressed, lack

basic amenities, and are pockets of poverty. Nonetheless,

signiﬁcant residential and commercial investment is

occurring, and this should be built on.

Today, none of these neighborhoods has strong physical or

economic connections with one another that would allow

activities and amenities in one area to be easily accessed

by residents, employees, or visitors in another. Their ability

to access the river or other open spaces and trails as

shared amenities is inconsistent.

A New Beginning

Like many downtowns across the country, downtown

Jacksonville is experiencing new growth and private

investment, but the pace of this investment has been

modest and somewhat unevenly spread across the various

neighborhoods.

Since the recession (between 2010 and 2017), downtown

Jacksonville has added a little over 600 residential units,

a signiﬁcant share of which were delivered as affordable

units. In comparison, other Florida cities such as Tampa

and St. Petersburg have added close to 3,300 and 2,000

units, respectively, to their downtown areas. This differ-

ence is partly owing to a market perception that downtown

Jacksonville cannot support market rents to justify land

and development costs.

The core of downtown

Jacksonville and additional

neighborhoods within the

defined downtown.

DOWNTOWN VISION INC.

JAMIE SIMCHIK/ULI

Newly constructed residential buildings near Riverside Avenue and

Stonewall Street.

Five Point s

Jacksonville, Florida, June 17–22, 2018

Contrary to this perception, average residential rents

downtown were $1.54 per square foot at the end of 2017,

more than 60 percent higher than the citywide average of

$0.95 per square foot. Moreover, downtown residential

rents grew by 37 percent from 2010 to 2017, compared

with 27 percent growth citywide during the same period.

Although these rents are still not adequate to support new

multistory wood frame construction without some subsidy,

the panel’s interviews revealed that newer projects are

achieving rents of $2.00 per square foot, some of the

highest in this market. As a result, most of the newer

market-rate product is targeted to the highest end of the

rental market to justify construction costs.

Increasing pent-up demand for more urban-style resi-

dential development, particularly rental product aimed

at young professionals working in or near downtown

and empty nesters, is the driving market force for new

development. Most of this new development momentum is

concentrated in the western part of downtown, with new

market-rate residential and retail developments completed

in the Brooklyn and Riverside districts.

The LaVilla district has seen new high-quality affordable

and workforce housing projects, supported by the city’s

Housing Finance Authority and low-income housing tax

credits, which is adding to the resident population of

downtown neighborhoods. Closer to the core, the Elbow

district is evolving into a location of nighttime activity and

more diverse businesses.

In addition, a number of large catalytic projects have been

proposed, including the Shipyards development near the

sports complex; the District project, a mixed-use multi-

generational neighborhood in the Southbank area; and a

new convention center to be located on the waterfront. All

of these projects will require some form of public/private

partnership and are in the early stages of the planning and

development process.

Downtown Jacksonville’s stock of historic buildings has

also generated a fair bit of new development interest. Cur-

rently, adaptive use projects are converting historic ofﬁces

JTA

Parking garages and lots in downtown Jacksonville, broken down by specific downtown neighborhoods.

A ULI Advisory Services Panel Report

into residential and hospitality uses, creating an authentic

product in the market.

Downtown has a signiﬁcant inventory of vacant land, and

a large portion of this is controlled by public agencies

including the city, JTA, the school board, and others. This

land presents a tremendous opportunity to focus and

incentivize new development. The challenge is in mak-

ing these development opportunities attractive enough

for developers (and their customers) by providing an

enhanced public realm—walkable, bikeable, and transit-

accessible connections to key nodes and destinations that

residents, employees, and visitors want to access. Overlaid

with high-quality urban design and a concerted effort to

activate and program the public realm, downtown could

become one of the most desirable places to be.

A Strong Network of Capable

Partners

A number of efforts are already underway to implement

many of the strategies mentioned. Much of the new

development has been facilitated by the Downtown

Investment Authority (DIA), which has been designated

as the Community Redevelopment Authority for the larger

downtown area with access to tax increment ﬁnancing

(TIF) funding from three TIF districts comprising the north

and south banks of the river.

In the past, TIF investments have not produced the

desired level of development and resulting tax increment,

particularly on the north bank. TIF will be an important

resource to enable the implementation of downtown

projects, but it has to be deployed strategically.

Downtown Vision Inc., which is the downtown business

improvement district (BID), provides “clean and safe”

services, programming and activation, and marketing and

branding services, but the BID’s geographic jurisdiction is

currently limited to only a portion of downtown around the

Civic Center and core.

A number of large, medium, and small private players are

also active in the market and clearly see the opportunity.

They include Iguana Investments and the developer of the

District, as well as a number of smaller inﬁll developers

and adaptive use developers who are actively working

in the market. Vestcor Companies, one of the primary

developers of affordable housing, which plans to deliver

more than 600 units of affordable and workforce units,

will continue to be a key partner.

Last but not least, JTA has been instrumental in continu-

ing to make investments to enhance the attractiveness of

downtown to its current and future patrons. These include

its investments in the regional transportation network

through bus rapid transit and enhanced bus routes improv-

ing regional access to and from downtown, as well as the

development of the new Jacksonville Regional Transpor-

tation Center (JRTC), which could become one of the

most important transportation hubs in the region with the

potential future realignment of the Amtrak lines to create a

full-ﬂedged transportation hub.

Finally, JTA’s plans to extend the Skyway network with the

U2C, using a system of AVs at the ground level, can play a

critical role in connecting the many downtown neighbor-

hoods and amenities. As shown in the ﬁgure, prioritizing

connections in a manner that establishes connections

GROUNDWORK JACKSONVILLE

Groundwork Jacksonville created

a master plan to develop the

Emerald Necklace project. This

is a conceptual map of the plan

along Hogan’s Creek.

Jacksonville, Florida, June 17–22, 2018

between downtown neighborhoods that have the strongest

desire lines will be important.

The Way Forward

With continued regional growth driven by some of

Jacksonville’s core industries, low cost of living, and

access to great quality-of-life amenities, Jacksonville—

and particularly downtown Jacksonville—can be a magnet

for a young and dynamic workforce. They can help grow

the existing economic base and with the right incentives

JTA

Likely passenger trips within the U 2C study area as determined by JTA. In addition, there is a strong desire on the part of users to travel across the St. Johns River.

can open doors to other economic opportunities driven by

creativity, innovation, and entrepreneurship.

With diverse housing options targeted to all income

groups, downtown can add the much needed resident

population, one neighborhood at a time, and begin to

create the vibrant mixed-use waterfront destination that

it aspires to be.

A ULI Advisory Services Panel Report

Leveraging the Ultimate Urban

Connector Network

JTA’S SKYWAY PROVIDES THE BACKBONE for the

proposed U2C. A free, 2.5-mile, eight-station elevated

monorail, the Skyway bridges the St. Johns River and

connects the north and south banks of downtown

Jacksonville. The vehicles are past due for their mid-life

overhaul and facing obsolescence.

JTA has proposed removing the central guideway, resur-

facing and creating ramped or mechanical connections to

street level at the existing termini of the elevated structure.

In place of the automated monorail, AVs will extend

beyond the existing system to reach farther into downtown

neighborhoods. The elevated to street-level connections

must be thoughtfully designed and be sensitive to the

existing community so they enhance, not detract from,

these neighborhoods.

Best Practices

To fully leverage the U2C, the following transportation and

infrastructure strategies should be followed.

Put Safety First

Although the panel applauds JTA’s forward thinking by

incorporating AVs into its new downtown circulator service,

the service must be designed and operated with public

and passenger safety in mind. The Skyway segment oper-

ates on an elevated roadway in a controlled environment,

but the at-grade portion needs to be carefully designed to

minimize hazards because it is sharing street space with

cars, trucks, bikes, and pedestrians.

The panel strongly urges the city and JTA to provide dedi-

cated AV transit lanes, especially for the initial at-grade

segments, so the AVs do not have to operate in mixed traf-

ﬁc conditions. These dedicated AV lanes will also provide

a competitive service advantage against other modes of

travel, which makes the new transit service more attractive

and convenient for customers.

Rethink the Right-of-Way

Many cities have experienced a wave of new transportation

options, such as Uber/Lyft ride share, bike share, and

e-scooters, that compete for valuable public sidewalk,

curbside, and road space. Given Jacksonville’s existing

strong network of downtown streets, this is a good

opportunity to proactively identify priority streets by

The panel’s proposed revised

U2C network as well as key

streets (orange), station area

five-minute and ten-minute

walksheds, locations for infill

development (black), and

proposed open space (green).

The pink line along East Bay

Street represents the panel’s

desire to have investment better

align with the phasing of the

Shipyards development.

NEAL PAYTON/ULI

Five Points

Riverside

JRTC

Rosa Parks

San Marco East

Sports Complex

The Shipyards

Jacksonville, Florida, June 17–22, 2018

transportation modes (e.g., key truck routes, transit

corridors, bike-focused streets) and reallocate limited

public right-of-way to effectively serve all modes in the

future and reduce potential conﬂicts.

Consider Road Diets

The city streets could be made more walkable to expand

the retail and residential appeal. For instance, the 2014

Brooklyn-area road diet plan could be considered as a way

to more effectively relate the street to the needs of the

surrounding community.

Use Innovative Financing

The U2C not only offers a major transit improvement for

downtown Jacksonville, but also advances the future of

transit through innovative technology. Given the U2C’s

national prominence as a proving ground for emerging

21st-century public transportation while using the existing

Skyway infrastructure and surrounding street network, JTA

should be applauded for pursuing discretionary transporta-

tion innovation grants, such as the U.S. Department of

Transportation’s recently announced BUILD (Better Utiliz-

ing Investments to Leverage Development) program, along

with the necessary state and local matching funds.

In addition, the U.S. Department of Transportation’s TIFIA

(Transportation Infrastructure Finance and Innovation Act)

loan program may offer another source of capital funding

for the system but require a future funding source to repay

the loans. Finally, public/private partnerships might provide

an opportunity to ﬁnance the construction or provide an

alternative means to operate the U2C system.

Automated vehicles and the U2C present an opportunity to rethink

how public space is dedicated to parking and driving, allowing

pedestrians, bicycles, scooters, and autonomous vehicle traffic to

safely intermingle. The diagram represents how street space could

be converted to enable people-focused design for improved and

safer mobility.

Case Studies: Financing Transit Expansion

The following cases studies are examples of transit expansion projects that have

included transit-oriented development (TOD) as a major component.

Crossrail 2 London. The London Crossrail project is a

new north–south rail line that is anticipated to increase

the Underground network’s capacity by 10 percent. The

project will provide access to parts of London and the

region that are currently underserved. The project is anti-

cipated to stimulate the building of more than 200,000

homes and create more than 60,000 jobs. The project

was sold as an economic development tool to access

affordable housing locations. To fund the project, a frame-

work was created in 2007 in which London businesses

within the zone affected by the proposed Crossrail

contributed to the cost of constructing the project. About

60 percent of the construction funding ultimately came

from the Greater London region’s residents and

businesses. The funds are managed by Transport for

London and the Greater London Authority. This strategy

of “monetizing” the future value created by the transit

investment to leverage additional capital for construction

should be considered for the Jacksonville region.

Moscow Suburban Railway Corp. Transport Hubs Program. The railway corporation

realized that development around station areas it owned was a source of revenue and

additional passengers. Analysis and calculation of the commercial potential of railway

stations and railway-owned land around the stations was conducted. This helped identify

stations to be targeted for TOD plans that would have a high return on investment.

Transbay Transit Center. The Transbay Transit Center is a modern, multimodal transit

hub that connects 11 transit systems in downtown San Francisco, including a next-

phase 1.3-mile extension of the Caltrain commuter rail and space for the future high-

speed-rail project. The project area encompasses about 40 acres of redevelopment

sites and a 5.4-acre park on the roof of the transit center. The vision for this $ 6 billion

project has been evolving for 30 years and is ﬁnanced by a variety of federal grants,

loans, private investments, and local and state funding. The ﬁrst phase of the project

has created a new ﬁve-story Transit Center with one above-grade bus level, ground-

ﬂoor level, concourse, and two below-grade rail levels serving Caltrain and future

California high-speed rail.

HOK/RIGGS SHEPNEK

ULI

In 2014, ULI published

Successful Public/Private

Partnerships: From Principles

to Practices. This report outlines

best practices to combine the

strengths and resources of the

public and private sectors most

effectively.

A ULI Advisory Services Panel Report

Think beyond the Station

To maximize the developmental beneﬁt of an enhanced

transit system, the city and JTA should focus on extending

station improvements to the adjacent community through

the use of “complete streets” or “complete neighborhood”

public improvements as well as more traditional street-

scape improvements.

Should the city issue bonds in the future, it should con-

sider directing some of the capital improvement funds to a

station area improvement program to improve the at-grade

environment around the existing Skyway stations as well

as the new at-grade AV transit stops. In many cities, simi-

lar physical improvement and streetscape programs are

considered an integral part of their economic development

strategy.

Implement Smarter Parking Management

Compared with many other cities, downtown Jacksonville

is well served by public parking surface lots and garages.

To make the most effective use of its parking assets, the

city should conduct a downtown parking inventory and

utilization study.

New technologies exist to better inform the public in real

time about available public parking near their destination

through the use of electronic road signs and phone

apps that notify drivers of the nearest parking facilities

with immediate availability. This will help the city more

effectively manage available parking supply as future

development converts surface lots into more productive

and tax-revenue-producing buildings.

Transit-Oriented Development

JTA requested recommendations on two types of eco-

nomic development opportunities, including redevelopment

(Rosa Parks Station) and development (Shipyards Station).

The panel explored these two stations but also looked at

several others:

 Jacksonville Regional Transportation Center;

 Five Points Station (panel-proposed station to replace

Brooklyn Station); and

 District Station.

HOK/RIGGS SHEPNEK

NEAL PAYTON/ULI

JTA has an opportunity to think beyond the U2C stations in creating

livelier and safer streets. This rendering shows a tree-lined boulevard

that allows pedestrians and AV traffic to safely intermingle.

Map representing the primary experiential streets identified by the panel.

Jacksonville, Florida, June 17–22, 2018

The panel took the liberty of proposing a new station at

Five Points in place of Brooklyn to take advantage of the

existing momentum in that neighborhood while at the

same time exploring the redevelopment potential of a

street-level station. Based on the site visit, stakeholder

interviews, and background research, the panel proposes

three different station typologies for redevelopment:

 Terminal (JRTC);

 Street level (Five Points, Shipyards, and District); and

 Elevated (Rosa Parks).

Jackson Regional Transportation Center

(Terminal Station)

The new JRTC will connect the new Intercity Bus Terminal

with the existing Convention Center Station, with the pos-

sible addition of a future train station, as well as the new

JTA headquarters. Located in LaVilla, this terminal station

will be a catalyst for redevelopment.

Because of this terminal station’s signiﬁcance, the

JRTC will cater to a ten-minute walkshed. Therefore,

improvements should not be concentrated in just the

land immediately adjacent to the station, but the major

bike and pedestrian corridors must also see signiﬁcant

improvements.

Complete street improvements, coupled with trafﬁc-

calming measures, on Water Street and Adams Street

extending to the east will enhance connections to the

center of downtown and on Park Street to the south

will enhance connections with Brooklyn/Five Points.

These improvements will spur further high-density inﬁll

General Design Guidelines for

Station Areas

Note that all three station typologies proposed by the

panel (terminal, street level, and elevated) —and as a

result all ﬁve stations—must incorporate some of the

same general station design guidelines (listed here in

no speciﬁc order):

 Pedestrian scale;

 Universal design principles;

 Street-level activity;

 Green infrastructure;

 Improved sidewalks;

 Street trees or other shade elements;

 Inﬁll development;

 Neighborhood-serving retail;

 Public space;

 Bike accommodations ( personal or bike share);

 Wayﬁnding (physical and digital);

 Complete street/neighborhood improvements;

 Zero setback; and

 Active ground ﬂoor.

Typology of building density near

terminal and elevated stations

recommended by the panel.

Typology of building density

recommended near street-level

stations.

TORTI G ALLAS + PA RTNERSTORTI G ALLAS + PA RTNERS

A ULI Advisory Services Panel Report

redevelopment and investment in this area, which has

begun with the Lofts at LaVilla and the Lofts at Monroe.

Given the amount of city-owned land in the station area,

the city should assemble parcels for developers and

provide adequate public open space. The city should also

encourage mixed-use development and mixed-income

housing options. A reduction of parking needs because

of the numerous transit options will also free additional

land for redevelopment. An opportunity exists to engage

the LaVilla School of the Arts in creative ways to better

improve the neighborhood experience.

The reenvisioning of the Skyway and the redevelopment

of the Florida Times-Union ofﬁce and printing facility

creates greater potential for the area surrounding the new

terminal station. With the U2C, the JTA Skyway Operations

and Maintenance Building could be moved or eliminated,

providing a large contiguous area to provide a mix of uses

near a number of transit options. The nearby McCoy Creek

should be daylighted, which will help mitigate future ﬂood-

ing and provide additional recreational space.

Five Points (Street-Level Station)

Five Points Station can build upon the center of gravity

that is already forming at the intersection of Park Street,

Margaret Street, and Lomax Street. As a street-level sta-

tion, meaningful improvement must be made in addition

to dedicated lanes to communicate the permanence to

developers and investors. For example, the panel noticed

that even with the successful rollout of the new JTA bus

rapid-transit service, these new bus routes are stopping

at existing bus stops that are not on a dedicated transit-

way or more than just a bus shelter. Incorporating raised

platforms, ticketing machines/gates, and canopies will

provide a clear visual cue to where the U2C will stop and

ensure a sense of the system’s permanence. Not only will

this be helpful for potential riders, it will also provide a

sense of conﬁdence for investors and encourage lending

by ﬁnancial institutions.

NEAL PAYTON/ULI

Map representing five-minute

and ten-minute walk distances

surrounding the JRTC and the

Rosa Parks stations.

Building along right-of-way.

Building setback along right-of-way allows for more open space and

public uses.

TORTI G ALLAS + PA RTNERSTORTI G ALLAS + PA RTNERS

Jacksonville, Florida, June 17–22, 2018

The station also provides an opportunity to leverage its

proximity to the St. Johns River as well as Riverfront Park.

Special attention should be paid to the block surrounding

Riverside Park, which could accommodate high-density

inﬁll redevelopment to promote safety with more eyes on

the park. Nearby institutions include Riverside Park United

Methodist Church, the Cummer Museum of Art and Gar-

dens, and Riverside Arts Market. Local retail and residents

could help support new development.

A great deal of effort has already been expended to

reenvision the riverfront, and Five Points is located near

Brooklyn, which can take maximum advantage of these

improvements. Ensuring a strong connection with the St.

Johns River will enhance the redevelopment opportunities

in this already dense area. Furthermore, the addition of

the new I-95 bike and pedestrian bridge will further con-

nect Northbank and Southbank in a less auto-dependent

fashion.

Rosa Parks (Elevated Station)

The Rosa Parks Station will be ripe for redevelopment

when JTA moves its bus operations to the new JRTC. Dur-

ing the stakeholder interviews, it was anticipated that Rosa

Parks would be able to reduce the number of bus bays

from 18 to four. This reduction would free considerable

JTA-owned land for redevelopment.

For this redevelopment to be successful, the panel identi-

ﬁed a number of issues to be resolved. The high-speed

one-way pair of State Street and Union Street acts as a

barrier to downtown, and trafﬁc-calming measures should

be implemented.

Improvements should be made the length of Main Street,

leveraging the Florida Department of Transportation Com-

plete Street Guidelines for the full length and incorporat-

ing trafﬁc-calming measures so that Main Street ceases

to be a thoroughfare through downtown and becomes a

local road with ground-level retail activity that serves as

connection between Northbank and Southbank. Moreover,

Laura Street should be improved along its length all the

way to the St. Johns River, with the road terminating as

a pier. This view corridor would greatly beneﬁt from the

reenvisioning and redevelopment of the Jacksonville Land-

ing, possibly as public open space, that incorporates the

extended right-of-way.

JAMIE SIMCHIK/ULI

Rosa Parks Station bus bays as seen from the Skyway platform.

NEAL PAYTON/ULI

Five Points Station represents

neighborhood-scale stations.

Five Points

A ULI Advisory Services Panel Report

When considering inﬁll redevelopment opportunities, dis-

cussions should include Florida State College and address

the need for potential student housing for some of the

5,000 students in addition to other residential develop-

ment options. This discussion should include a new vision

for the JTA employee parking lot and the vacant bank site.

Careful thought should be put into how the Florida State

College campus could grow with the inclusion of adequate

public space and where classrooms and housing should be

located to activate the street. Furthermore, available land

could be dedicated for community gardens using raised

beds, which will support the fresh food needed by the

Florida State College culinary program.

The edge of campus should be deﬁned better along Laura

Street and Bethel Baptist Street. In addition, the sidewalks,

street trees, and shade elements should be incorporated

into existing or proposed corridors and trail system to the

north and west of the station. The Florida State College

campus should explore the possibility of an agreement

with the First Baptist Church to use the existing structured

parking to free up surface parking for redevelopment.

Giving consideration to the underside of the elevated sta-

tion is also important. Downtown has seen various levels

of improvement in these areas. Examples for the vertical

support elements should be taken from the beautiful exist-

ing murals throughout downtown and incorporate white

paint underneath with uplighting and music to activate

the space. Given the relocation of the major downtown

transportation hub, JTA must provide clear instructions

and wayﬁnding for those seeking connections and the

Greyhound bus terminal at the new JRTC.

Seattle’s Sound Transit issued

a request for qualifications and

proposals for firms interested

in submitting real estate

development plans near the

Capitol Hill light-rail station.

Gerding Edlen was awarded

the project as master developer

and is building a mixed-use

project as part of a Federal

Transit Administration Joint

Development project. Some of

the economic value created by

the project is being leveraged

by Sound Transit and the

developer to finance expenses.

A farmers market under the

Bay Area Rapid Transit Fruitvale

Station in Oakland shows a way

to activate space.

GERDING EDLEN/DESIGN: SCHEMATA WORKSHOP, HEWITT, AND BERGER PARTNERSHIP

CHRISTOPHER ULRICH/FLICKR

Jacksonville, Florida, June 17–22, 2018

The District (Street-Level Station)

The District Station will be a great addition to the momen-

tum already occurring in Southbank, yet this is another

area where the panel did not focus its efforts because of

already announced plans for the area’s redevelopment.

The area would be strengthened by the new bicycle and

pedestrian bridge adjacent to I-95 and the improvements

to Main Street connecting Northbank and Southbank

currently being planned. Complete street improvements to

Hendricks Avenue, Riverplace Boulevard, and Prudential

Drive, coupled with the existing stations, will provide a

more pedestrian-friendly experience that will enhance the

need for neighborhood-serving retail. The panel suggests

moving the station from the east San Marco location to

just north of the Square at San Marco to better serve the

neighborhood.

Map representing the five-minute walkshed surrounding a proposed new location for

the San Marco U 2C station.

Map representing the five-minute walkshed of the proposed stations within the

Stadium District.

NEAL PAYTON/ULI

The Shipyards (Street-Level Station)

The Shipyards is a signiﬁcant development in the Stadium

District; however, the panel instead focused its efforts in

areas that could take advantage of the existing redevelop-

ment momentum. Once completed, the Shipyards develop-

ment will strengthen the Bay Street corridor, anchored

by downtown on the west and the TIAA Bank Field to the

east. With a winning combination of the U2C testing facility

and the efforts as part of the North Florida Transportation

Planning Organization Smart Region Roadmap, Bay Street

will have a lot to offer in the future.

However, at this time, the panel does not feel investments

in this smart corridor should be prioritized at the expense

of other opportunities, such as connecting to Five Points,

and additional investments should be aligned with the

timeline of the Shipyards development.

A ULI Advisory Services Panel Report

Land Development Strategies and

Organizational Structure

THIS SECTION IS DIVIDED into a description of poten-

tial land development strategies and their implementation

with a new organizational structure.

Land Development Strategies

To fully realize the downtown development opportunities

offered by the U2C’s enhanced transportation network, all

parties need to refocus themselves, so they can act more

strategically as they review development proposals and

negotiate development incentives that promote crucial

public beneﬁts in return. The introduction of autonomous

transit vehicles and other emerging transportation options

in downtown Jacksonville may require the reallocation of

street and sidewalk space, while public investments should

extend beyond the U2C station to enhance the physical

environment of the surrounding community.

Organize for Action

Although the city of Jacksonville and civic organizations

have completed many high-level vision downtown plans

over the years, now is the time for all parties to commit

to a joint strategic phased action plan to more effectively

implement downtown development. The parties should

agree upon a coordinated action plan that prioritizes

and sequences development opportunities and related

infrastructure projects to more effectively leverage future

opportunities.

The effort should clearly assign responsibilities and

tasks to a primary organization and secondary partners.

Although many of these responsibilities will likely fall under

the auspices of the DIA, effective downtown development

will require strong partnerships with other landholding and

infrastructure agencies as well as other stakeholders.

If the city’s leadership believes high-quality downtown

development is a priority, the mayor or a high-level designee

should convene the public or quasi-public agencies that

hold developable parcels, have infrastructure responsibili-

ties, or are vested with regulatory oversight to conﬁrm

project management/timetables and oversee the prep-

aration of a mutually agreed upon action plan.

Focus on Small Projects

Although the city has focused much of its time and energy

to pursuing large-scale, catalytic development projects—

such as the District and the Shipyards—it should make a

more concerted effort to focus on smaller, inﬁll develop-

ment projects. Successful small projects can be as

impactful in catalyzing surrounding development and can

set up the conditions that allow the more visible large

projects succeed.

Expect the Best

The city of Jacksonville and its partners should provide

consistent direction and set strategic public beneﬁt

expectations when negotiating development incentives and

development approvals through its entitlement process.

Whenever the city provides a ﬁnancial subsidy to assist

private development, the city of Jacksonville should always

secure meaningful beneﬁts for the public and the sur-

rounding community.

The various plans prepared for downtown provide a road-

map for the DIA and the Downtown Development Review

Board that identiﬁes public improvements and amenities

surrounding the proposed development that can also

enhance the development’s value—a win–win. These

public beneﬁts should pay special attention to ground-ﬂoor

uses, streetscape improvements (including those support-

ing transit use), and parking requirements.

Jacksonville, Florida, June 17–22, 2018

Prepare for the Future

Every city is affected by national economic cycles, and

Jacksonville can better position itself for future develop-

ment upturns. During the next down cycle, the city and its

partners should aggressively focus on more speciﬁc area

or corridor-level planning (rather than vision planning) and

ﬁnalize entitlements with developers of strategically located

parcels to take advantage of the full real estate up cycle.

By doing this, the city will be well prepared to beneﬁt from

new development at the start of the next real estate boom,

without losing two or three years of opportunities.

Unbundle Parking

Although the panel acknowledges that providing accessory

parking (exclusive parking in a building or lot dedicated for

the tenant’s use) is important to the economic viability of

downtown Jacksonville, new techniques “unbundle” park-

ing from a building and allow a nearby parking facility with

excess capacity to be used in lieu of building new parking

spaces. The focus should encourage better utilization of

existing parking spaces; however, as a last resort, devel-

opers can contribute to a parking fund that would support

the construction of a shared parking garage. An appropri-

ately priced fee should incentivize developers to unbundle

parking (which is cheaper than constructing new parking).

Stabilizing Neighborhoods during Investment

In Washington, D.C., where white households have a

net worth 81 times greater than their African American

counterparts, JPMorgan Chase & Co. is supporting

collaboration to ensure inclusive economic growth.

The company has provided $10 million in grants to

support Community Development Financial Institutions

(CDFIs) to make strategic investments in the econom-

ically and racially disparate communities that will be

physically linked with the development of the 11th Street

Bridge Park, a $ 50 million elevated bridge across the

Anacostia River.

To ensure that the 11th Street Bridge Park does not displace low- and moderate-income

residents but provides new opportunities, the CDFI collaborative, which includes the

community-based organization Building Bridges across the River, the Washington Area

Community Investment Fund, City First Enterprises, and the Skyland Workforce Center,

is making strategic investments to expand access to capital and provide technical

assistance for local and minority-owned small businesses. The collaborative is also

working to establish the Douglas Community Land Trust, which will work to increase

housing affordability and reduce displacement.

More information about the 11th Street Bridge’s equitable development goals can be

found at www.bridgepark.org/community-impact.

This strategy would make more efﬁcient use of land

resources as future developments are constructed on

increasingly scarce vacant parcels and ﬁne-tune parking

supply with local demand. As developments are reviewed

by the city through its discretionary process, tailored park-

ing programs and requirements can be considered to meet

the speciﬁc needs of the development and its tenants as

transit service improves in the downtown area.

The panel notes that parking costs are often a signiﬁcant

portion of overall development costs and reducing parking

overcomes a key barrier to ﬁnancial feasibility. Moreover,

small inﬁll sites may not be able to accommodate surface

parking and yield enough density but at the same time

may not support the cost of podiums or decks.

Share Development Expertise

For JTA, the disposal or joint development of its real estate

assets offers long-term value to the agency and contrib-

BUILD ING BRIDGE S ACROSS T HE RIVER

Representation of how infill development can occur on vacant or

underused land.

TORTI G ALLAS + PA RTNERS

A ULI Advisory Services Panel Report

utes to the revitalization of the downtown area. However,

the agency would have to ramp up in-house capacity to

effectively transact real estate deals. JTA should consider

a partnership or agreement with DIA or a similar organiza-

tion for joint development or land disposal professional

services so the agency can beneﬁt from the real estate

transaction while focusing on its core mission to provide

the best transit services for Jacksonville residents.

Organizational Structure

As mentioned previously, Jacksonville’s downtown and

broader city center area has been included in multiple

planning efforts over the past two decades, but these

efforts have been completed on a piecemeal, fragmented

basis. Although these plans and efforts are useful and

provide guidance to individual organizations or authorities,

to the panel’s knowledge, no single document knits these

plans together and offers a clear, comprehensive vision for

the future of downtown Jacksonville.

As JTA continues to reﬁne its plan for expansion of the

Skyway system, the panel recommends that DIA take the

lead and synthesize the objectives and recommendations

set forth in the following planning documents in an effort

to develop an overall vision and a single implementation

document that will direct the city as it redevelops its

downtown over the next decade:

 DIA Business Investment and Development Strategy;

 DIA Downtown Redevelopment Plan;

 Downtown Master Plan;

 Urban Core Vision Plan;

 Downtown Action Plan;

 Groundwork Trail System;

 Riverfront Plan; and

 Miscellaneous small area plans.

It is critical that the city as a whole (including decision

makers, implementers, stakeholders, and the community

at large) understand the vision for downtown so that imple-

mentation is focused and deliberate. Without this single

implementation strategy, the panel believes that downtown

Jacksonville will develop in a disconnected, inefﬁcient

manner and will not produce the outcome the community

desires—a vibrant, diverse center city with residents,

employees, visitors, entertainment, services, retail, and

interesting destinations. Rather, downtown will become a

hodgepodge of individual economic development efforts,

resulting in a disjointed urban fabric.

Once the key themes from these plans are coalesced into

a single comprehensive vision, the panel recommends

that two groups be formed to shepherd its implementa-

tion. Several key people clearly are committed to making

a strong city center for Jacksonville. However, their efforts

seem to have been somewhat siloed. To create a great

city, Jacksonville must not only identify and empower the

champions who will lead the implementation efforts but

also bring these people together to collaboratively make

decisions that will shape Jacksonville’s future.

The panel proposes an organizational structure that has

proven successful in downtowns nationwide. It includes a

decision-making body, a stakeholder group that will ensure

that implementation happens in a way that works best for

the community, and a community engagement component

to debate, discuss, and direct downtown’s future.

The panel identiﬁed potential individuals and organiza-

tions that should be involved in each of the three groups,

Moving from Planning to Action

“Authority must align with responsibility,” says Tom

Murphy, former mayor of Pittsburgh and a ULI senior

resident fellow. Those who are given the responsibility

must be given the authority to act. This is a key

principle for achieving results.

Jacksonville, Florida, June 17–22, 2018

but entities may have been overlooked or over time these

participants may need to be adjusted. The following groups

should be organized to move from planning to action:

 Downtown Executive Team;

 Downtown Jacksonville Community Stakeholder Group;

and

 Public Engagement Group.

Downtown Executive Team

This group is convened by the mayor and consists of

senior-level executives who serve as the champions for

the transformation of downtown Jacksonville. Creating

this group will bring together senior leadership of both

public and private sector organizations so the perspec-

tives and resources of both are at the table. Their job is to

identify the resources needed, to build the budgets and

the schedules, and to assign projects and responsibilities

to organizations and individuals. They then will hold them-

selves and others accountable for achieving these results.

JTA, among others, will have leadership roles on this team.

This group is a public/private partnership that is modeled

after groups that exist in downtowns throughout the coun-

try but, more speciﬁcally, is modeled after the committee

tasked with implementing the Downtown Denver Area

Plan. A group like this is fundamental for success, because

it coordinates interagency efforts and becomes the cham-

pion for the projects (small and large) that will transform

downtown Jacksonville into the vibrant, diverse community

that its constituents desire.

Groups like these nationwide are also tasked with (and

doing a good job of) explaining why downtowns are so

important to the health of their entire regions. This is

their ﬁrst—and perhaps most important—job because

they must reverse the pattern of decades-long disinvest-

ment in downtowns and their surrounding neighborhoods.

Over time, these groups see a reversal of the downtown

disinvestment trend and gain momentum and conﬁdence

that comes from experiencing even small successes. They

often become the strongest and most effective civic lead-

ership group in the entire region. They learn how to engage

as civic leaders and become skilled advocates at the local,

state, and regional levels.

Whether for a transit project, housing policy, or some other

civic issue, downtown leadership in many U.S. cities is at

the forefront. Downtown leaders succeed by becoming

champions and engaging their communities in their work.

Duties of the Downtown Executive Team should include

the following:

 Evaluate the already established objectives for

downtown;

 Establish priorities and time frames for implementation;

 Coordinate public and private resources (TIF, capital

improvement projects, etc.);

 Review and reevaluate the Implementation Plan annually

to prepare work programs and readjust priorities as

opportunities arise;

 Receive public input and guidance from Jacksonville

Community Stakeholder Group; and

 Celebrate and publicize accomplishments.

Downtown Executive Team

City of Jacksonville

Mayor’s Office

Department of Planning and Development

Department of Public Works

Department of Parks, Recreation, and

Community Services

Downtown Investment Authority

Jacksonville Transit Authority

Note: The executive body could appoint additional executive team

members through amendments to the bylaws.

ULI

A ULI Advisory Services Panel Report

Downtown Jacksonville Community

Stakeholder Group

The plans that exist for downtown Jacksonville were devel-

oped with the input and inﬂuence of a variety of stakehold-

ers, including a Citizens Planning Advisory Committee

(CPAC) that is a mayoral-appointed group composed of

residents living in the urban core (from State and Union on

the north to the St. Johns River on the south). The panel

recommends forming an expanded downtown Jacksonville

Stakeholder Group that includes downtown residents (such

as those who serve on the Urban Core CPAC) and other

civic leaders to inform the Downtown Executive Team of

the public’s recommendations for downtown.

Community leadership and direction can emerge from this

stakeholder group. Although they are not the implement-

ers, they can help make sure that implementation happens

and that it happens in a way that works best for the

community. They serve as something of a proxy for the

community and can take the pulse of stakeholders’

opinion, provide feedback, and provide a platform for

downtown leadership development.

Duties of the Downtown Jacksonville Community

Stakeholder Group include the following:

 Meet on a regular basis (quarterly);

 Endorse the Downtown Executive Team’s priority

projects and policies;

 Identify ways in which the community can support such

projects and policies; and

 Be the “eyes on the street” for the Downtown Executive

Team, informing them of new opportunities and threats

to the implementation of the downtown Vision.

Public Engagement Group

The panel recommends creating a comprehensive public

participation and outreach process that is grassroots in

nature, including the following elements:

 Public meetings;

 Online surveys;

 Interviews;

 Outreach to speciﬁc stakeholder groups; and

 Educational sessions focused on particular topics.

These events should be coordinated in a way that is com-

munity driven and location based.

Community engagement is needed in debating, discussing,

and directing downtown’s future. This cannot involve just

a single group of downtown stakeholders or a near-term

effort but instead must actively involve many people

and groups for a sustained period of time. Regular and

two-way communication is important. This will make for a

stronger and more robust downtown revitalization.

Community Stakeholder Group

Neighborhood leaders

Large employers

Foundations

Arts and cultural institutions

Public School District and higher education institutions

Faith-based organizations

Hospitals

Environmental groups

Historic preservation groups

Bike and pedestrian advocacy groups

Convention and Visitors Bureau

Chambers of commerce (including affinity group

chambers)

ULI North Florida

American Institute of Architects

Note: This is a cursory list developed by the panel. Additional

stakeholders may need to be included as required.

ULI

Jacksonville, Florida, June 17–22, 2018

Conclusion

THE U2C IS A BOLD AND FUTURISTIC IDEA that has

the potential to serve as a model for how to implement a

fully automated, on-demand transportation system. Never-

theless, technology does not make cities great: rather, the

people who live, work, and play in the city and the places it

provides for them to do so are a city’s greatest asset. The

panel sees a bright future for downtown Jacksonville, but

it will take a much more concerted, deliberate, and long-

term effort to achieve the vision laid out in this report.

A ULI Advisory Services Panel Report

About the Panel

Ladd Keith

Panel Chair

Tuscon, Arizona

Keith is an assistant professor in planning and sustain-

able built environments and chair of the Sustainable Built

Environments program at the University of Arizona. He

researches policy innovation in planning, including the use

of climate science in the planning and design of cities.

He has afﬁliations with CLIMAS (Climate Assessment for

the Southwest) and CCASS (Center for Climate Adapta-

tion Science and Solutions). He has taught a number of

courses, including planning for urban resilience, sustain-

able design and planning, public participation, and

planning theory.

Keith also currently serves on the city of Tucson’s Planning

Commission where, as chair, he led the commission’s

public participation process for Plan Tucson: General &

Sustainability Plan 2013, which guides city planning policy

for the next decade.

An active member of the Urban Land Institute, Keith has

participated on several Advisory Services panels. He also

served as a council member on the Sustainable Develop-

ment Council, was chair of ULI Southern Arizona, and was

a founding member of the ULI Center for Sustainability

Advisory Board, ULI Next, and ULI Southern Arizona Young

Leaders Group. In 2016, Keith was recognized as one of

ULI’s 40 under 40, who represent the best young land

use professionals from around the globe, as selected by

members of ULI.

Marcel Acosta

Washington, D.C.

As executive director of the federal government’s central

planning agency, Acosta leads a team of urban planners,

architects, historic preservationists, and other profes-

sionals who are committed to preserving and enhancing

the extraordinary qualities of America’s capital city and

national capital region. The National Capital Planning

Commission (NCPC) provides long-term planning guidance

for federal land and buildings in the region, and approves

memorials and museums, civic buildings, federal instal-

lations, and public spaces and parks through its design

review process.

Before joining NCPC in 2001, Acosta served as senior vice

president of planning and development for the Chicago

Transit Authority, the nation’s second-largest public

transport system, and held the position of deputy commis-

sioner for the city of Chicago’s Department of Planning and

Development. He was a federal government appointee to

the Washington Metropolitan Area Transit Authority board

of directors from 2010 to 2014.

Acosta received a master’s degree in urban and regional

planning from the University of Wisconsin–Madison and

was appointed a Loeb fellow at the Harvard University

Graduate School of Design.

Amitabh Barthakur

Los Angeles, California

Barthakur’s core expertise is centered on economic evalu-

ation of land use and environmental policy decisions. He

assists developers and public agencies to balance land use

Jacksonville, Florida, June 17–22, 2018

strategies that are economically viable in the marketplace

and ﬁscally sustainable in terms of their impact to public

resources.

Throughout his career, Barthakur has led a wide range of

projects in the areas of land use economics, land use and

environmental policy, strategic planning, and tourism and

hospitality for a variety of public and private clients. In the

United States his clients include the cities of Los Angeles

and San Diego, the state of California, Walt Disney Parks

and Resorts, Credit Suisse First Boston, Dallas Fort Worth

International Airport, and Phoenix Sky Harbor Airport.

Internationally Barthakur has advised the Delhi Mumbai

Industrial Corridor Development Corporation in India,

Economic Zones Company in Qatar, Khazanah Nasional

Berha in Malaysia, the city of Kunming in China, Reliance

ADA Group and the DLF Group in India, and Ascendas and

Grupo CIE in Mexico.

Before joining HR&A, Barthakur was a vice president with

AECOM and served as regional director for the planning,

design, and development business line for AECOM in

India. Earlier, he led AECOM’s economics practice in the

US-West region and served as the Global Practice leader

for the ﬁrm’s economic planning and real estate market

sector. Before joining AECOM, He was a principal with

Economics Research Associates in Los Angeles, until the

two ﬁrms merged in 2007.

Barthakur is a member of the American Institute of

Certiﬁed Planners, American Planning Association,

Urban Land Institute, and Council of Architecture (India).

Between 2010 and 2012 he served as a board member

of the US-India Energy Cooperation Program ( ECP) and

headed the Energy Efﬁcient Buildings working group

under the ECP.

He holds a master’s in urban planning with an emphasis in

economic development and a master’s in building science

from the University of Southern California. He also holds a

bachelor’s of architecture from the School of Planning and

Architecture in New Delhi, India.

Neal Payton

Los Angeles, California

Payton is a principal at Torti Gallas + Partners, where

he created and directs the ﬁrm’s West Coast ofﬁce in

downtown Los Angeles. Focused on the inﬁll and reﬁll of

cities and towns, he leads the ofﬁce’s efforts at designing

residential and mixed-use buildings in urban and urbaniz-

ing locations and in the development and redevelopment of

neighborhoods and downtowns. Working across scales, he

focuses his efforts on common themes such as connectiv-

ity to transit networks, a focus on walkable urbanism, inﬁll,

public participation in the design process, and the inextri-

cability of urban design from economic development. His

article titled “Transit Oriented Development” is included in

the recently published Architects of Community: The Work

of Torti Gallas + Partners (Vendome, 2017).

Before arriving in California, Payton codirected Torti

Gallas’s urban design efforts in its Washington, D.C.,

area ofﬁce. His efforts have been honored multiple times

with national awards for urban design from the American

Institute of Architects, the Congress for the New Urbanism,

and the Urban Land Institute, among other organizations.

Payton has a bachelor of architecture from Carnegie Mel-

lon University and a master of architecture from Syracuse

University and has served on the architecture faculties

of the University of Virginia, Washington University in

St. Louis, Rice University, and the Catholic University

of America.

Jamie Simchik

Boston, Massachusetts

Simchik is the principal of Simchik Planning & Develop-

ment in Portsmouth, New Hampshire. Simchik Planning &

Development is an urban/transportation planning and real

estate redevelopment advisory services ﬁrm that manages

its clients’ projects throughout their entire life cycle to

A ULI Advisory Services Panel Report

shape the highest and best use of the built form. Simchik

Planning & Development works with real estate develop-

ment ﬁrms to assist with urban planning, transportation

planning, market feasibility, public engagement, and

project management.

Before this current role, Simchik was a principal planner

at Fort Hill Companies, an architectural, engineering, and

urban planning ﬁrm with ofﬁces in Massachusetts and

Florida. He was also a public engagement assistant with

Regina Villa Associates, undertaking public outreach for

sewer separation and road reconstruction capital improve-

ment projects in Massachusetts. In addition, he was a

research planner with Connor Holmes, an urban planning

consulting ﬁrm in South Australia, collaborating on a vari-

ety of projects for government and private clients.

Simchik is a member of the ULI Urban Development &

Mixed-Use Product Council (Purple Flight) and ULI Boston

Infrastructure Council. He is an active ULI Boston Urban-

Plan volunteer, 2018 ULI Hines Student Competition jury

member, 2017 ULI Boston Partnership Forum participant,

and 2015 ULI Michigan Larson Center for Leadership

alumni. He has co-chaired several ULI technical assistance

panels and participated in the ULI Advisory Services panel

in Bellevue, Washington. Simchik graduated from Colgate

University and has a master’s of business administration,

master’s of urban planning, and graduate certiﬁcate in real

estate development from the University of Michigan.

Julie Underdahl

Denver, Colorado

Underdahl is the president and CEO of the Cherry Creek

North Business Improvement District (BID) and has served

in that role since 2007. Cherry Creek North is a grow-

ing, high-end commercial and residential district known

for its walkability, the strength of its businesses, and its

high-quality building and streetscape design. Historically

Cherry Creek North was a small-scale, retail-only district

with a local clientele. Today it is an urban center with a

mix of land uses drawing national and international visitors

and companies. Cherry Creek is the most visited tourism

destination in Colorado and a major ﬁnancial employment

center; it has the highest concentration of ﬁne shopping

and dining establishments and of wealth management

professionals employed in the region.

The BID provides marketing, streetscape, management,

and advocacy services for businesses in its service area

and is the second-largest BID in Colorado in revenues.

Under Underdahl’s leadership, the BID issued bonds to

ﬁnance and build “The New North,” an $18.5 million

districtwide streetscape and onstreet parking improvement

project. Cherry Creek North was the ﬁrst BID in Colorado,

and one of the ﬁrst in the country, to issue its own bonds.

As a part of the project, the BID successfully reopened a

formerly vacant pedestrian plaza to limited vehicular trafﬁc

and created a new space for events and adjacent mixed-

use development. Underdahl played a leadership role in

initiating and completing a new city area plan for Cherry

Creek and the subsequent rezoning of the district. Both

have led to an unprecedented level of ﬁnancial investment

and redevelopment activity in Cherry Creek North. She also

helped create the Cherry Creek Area Business Alliance, a

new business advocacy organization for the larger area.

Before she joined Cherry Creek North, Underdahl’s

career was in economic development. She recruited

companies nationally and internationally to Denver and

helped plan and implement the development of major

sites such the former airport, closed military bases, and

the airport environs.

Underdahl’s civic and professional leadership includes

serving as the chair of the City and County of Denver

Planning Board, on the executive committee of the Metro

Denver Visitor and Convention Center Bureau, and on

the board of the International Downtown Association.

She is also a member of ULI Colorado’s Recreation,

Entertainment, Tourism and Leisure Council and on the

board of the Denver Sports Commission.

She graduated magna cum laude from the University of

Colorado, Boulder, and holds a master’s degree in urban

and regional planning from Eastern Washington University.

Jacksonville, Florida, June 17–22, 2018

Cassie Wright

Amarillo, Texas

Wright is a real estate development and urban planning

consultant with over 15 years of experience in the private,

public, and nonproﬁt sectors. Currently located in Amarillo,

Texas, Wright offers real estate development and asset

management services, urban planning expertise, and

community development resources to the Texas panhandle

and beyond.

Before relocating to west Texas, Wright was the develop-

ment director for Urban Ventures LLC, a Denver-based real

estate development company that is dedicated to creating

healthy, sustainable communities. There, she worked on all

aspects of real estate development, from land acquisition

to project close-out. She tested the ﬁnancial feasibility

of projects, actively participated in the site planning and

design processes, developed marketing strategies, and

coordinated all project management.

While at Urban Ventures, Wright intensively focused on

the relationship between the built environment and healthy

living. In this role, she researched and implemented best

practices and health-based programming to foster com-

munity development that promoted social cohesion and

positive well-being. Her primary projects included Cultivate

Health, Aria Denver, Aria Cohousing Community, and

STEAM on the Platte.

Wright’s other professional experience is diverse and

includes a variety of work in economic development, mul-

timodal transportation initiatives, infrastructure planning,

environmental sustainability, neighborhood revitalization,

and adaptive use. She holds a master of city planning

degree from the University of Pennsylvania and a BA in

sociology/anthropology from St. Olaf College.

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Washington, DC 20036-4948

A ULI Advisory Services Panel Report

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