A PLAN FOR DOWNTOWN JACKSONVILLE - CELEBRATING THE RIVER
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CELEBRATING THE RIVER: A PLAN FOR DOWNTOWN JACKSONVILLE
In early 1977, citizens and city leaders took up the
challenge of restoring downtown Jacksonville to a vibrant
district with many options for living, working and playing.
Public input has played an important role in meeting
that challenge, and substantial citizen involvement in
committees, public meetings and community forums
culminated in the development of this master plan for
revitalizing Jacksonville’s downtown.
Celebrating the River:A Plan for Downtown Jacksonville
is a road map that provides the basis for all future
downtown development. It directs and recommends
where development should take place and what type
of development it will be. It includes projects that can be implemented quickly and
others that will take much longer to complete. It focuses on the natural asset of
the scenic St. Johns River which flows through the heart of the city and anchors
both banks of the river to the downtown core. It also capitalizes on our climate,
creating green space, pedestrian right-of-ways and scenic vistas. It is our vision and
blueprint for future development opportunities, and something of which we can
all be proud.
Downtown Jacksonville is the heart of the city. It can and should reflect the beauty,
diversity and vitality of our entire region, and this master plan provides the guidance
needed to make that vision a reality.
Mayor John Peyton
City of Jacksonville
C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
V ISION S TATEMENT
J acksonville aspires to be one of the
worlds great cities. Downtown is the
heart of Jacksonville and its vitality is critical
to the citys future as a world-renowned
livable place.
The community and its leaders believe
downtown Jacksonville continues to be the
regional capital for commerce, government,
culture and entertainment. It will feature
pedestrian development in new and historic
neighborhoods. It will have ample green space
accessible to an intensive urban park along the
St. Johns River. It will have a strong, progressive
transportation system.
D ESIGN T HEME
W e have refined the vision for
Downtown Jacksonville by creating a
comprehensive design theme that sustains
the principles and policies contained in this
master plan.
Jacksonville is the celebration of a great,
international river and extensive public green
space, where city parks and attractive water
features are essential components of busy,
sustainable urban neighborhoods.
Prologue 1
D OWNTOWN J ACKSONVILLE M ASTER P LAN
FOUR IMAGES OF DOWNTOWN JACKSONVILLE
Public participation was an essential component of this Plan. We held public
workshops to help us better understand the aspirations that Jacksonvilles
citizens have for their downtown. Participants were encouraged to dream a
little. Four images of Downtown Jacksonville were created; they represent a
long-term vision of Jacksonvilles future.
T HE R IVER C ITY C IVIC O PEN S PACE
Photo taken by: Robert H. Linger
Night at the Jax Landing
Imagine Jacksonville being known throughout the world as one Imagine downtown on a cool spring afternoon. Your lasting
of the great river cities, a place synonymous with life on the impression is of green, tree-lined avenues and the sound of
water. The river has become a natural meeting and gathering water, either from the citys numerous fountains, or from its
place towards which residents and out-of-towners are naturally pocket parks. In the evening, these well-lit open spaces be-
drawn. On the River Downtown has become the best address come the venues for all sorts of events, drawing crowds from
in Jacksonville, whether you and your family have moved to the the suburbs as well as those lucky enough to live downtown.
region from some other part of the world or whether your As you enjoy the festivities, you agree wholeheartedly with
business has sought out the most prestigious location in north- the sentiment that Jacksonville really is a livable city.
east Florida.
2
C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
S PORTS AND R ECREATION C ULTURE C ENTER
Times-Union Center for the Performing Arts
You live outside Downtown Jacksonville, but for you its the
cultural hub where you spend a good deal of your leisure
hours. Since Jacksonville has emerged as a city of arts and
Youve heard about Jacksonville but this is your first visit to culture, expensive trips to New York or Washington, D.C. have
the City. Your team has made it to the Superbowl and it will fallen by the wayside. You have out-of-town visitors more
be the first time that this prestigious game has been hosted frequently and they always insist that part of their trip be
by one of the NFLs newest franchise cities. This is a once-in- spent downtown. Theyre even encouraging you to make the
a-lifetime trip for you, so you intend to enjoy everything about move to one of the smarter streets in downtown.
the extended weekend even if your team loses.
Prologue 3
important component of former Mayor Delaney’s
C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
We identified issues that stood in the way · Defining distinct areas or neighborhoods
of our vision within downtown
The Executive Steering Committee and its · Concentrating activity within the neighbor-
Advisory Committees identified a number of hoods to build a critical mass of people
issues that stood in the way of fulfilling the
vision, including: We carried out a series of workshops,
· A lack of diverse activities essential to a reaching hundreds of citizens and com-
dynamic downtown munity leaders
· Poor pedestrian connections As part of the planning process, a series of
· Concern that downtown was not a safe public workshops were held to solicit
place for its citizens reactions to the work done by the Advisory
· An absence of downtown residents Committees and to refine the proposed
· No sense of identity recommendations into a master plan.
We recommended solutions In addition to the workshops, a public website
After identifying the issues, the Advisory was launched to solicit feedback from a broader
Committees recommended solutions on how audience using modern technology.
to turn the dream into reality. The recommen-
dations included: In addition to the work being done by the 1999 Jacksonville Public Workshop; One of a series of
· Creating a mixture of diverse civic, social, committees, the City retained a professional workshops. ±
cultural and entertainment activities consulting team to carry out three tasks. The
dispersed throughout downtown consulting team assisted the Executive
· Supporting local employers currently Committee by completing a transportation
located downtown and recruiting new study and a market study and synthesized all
businesses to downtown this activity in the form of this master plan.
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Prologue 5
D OWNTOWN J ACKSONVILLE M ASTER P LAN
P L A N A R E A
6
C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
THE P LAN
THE FRAMEWORK FOR OUR IDEAS Page 9
Principles of the plan
OPEN SPACES AND PEDESTRIAN PLACES Page 11
The River and emerald necklace, of open spaces
connected by pedestrian links to form an inte-
grated network.
POLICIES AND DESIGN GUIDELINES Page 12
Setting the standard of excellence in Jacksonville
THE DISTRICTS Page 20
Opportunities for downtown districts
OUR LEGACY PROJECTS Page 36
Strategic plans
MASTER PLAN AREA TRANSPORTATION NETWORK Page 45
T
Improved transportation plans for downtown
he Downtown Master Plan includes all areas contained within the
official boundaries of the Downtown Development Authority. The
plan area is generally bounded by State Street on the north, Interstate THE MARKET Page 50
95 on the south and west, and the St. Johns River on the east.
Market analysis to support the plan
Surrounding neighborhoods are important to this plan. They are
centers of economic and social activity that help provide Jacksonville with
its unique character and they represent important nodes from which ACTION PLAN AND TIMELINE Page 52
downtown can build strength. In some cases, surrounding neighborhoods
Implementation strategies
can benefit from enhanced links with downtown, drawing on the eco-
nomic activity that this plan aims to generate.
Prologue 7D OWNTOWN J ACKSONVILLE M ASTER P LAN
8 A farmers market under the shade of the ASE tracks creates a vibrant downtown street life on weekends. Textured paving and comfortable
seating areas form a place for people of all ages to relax and interact.C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
P RINCIPLES OF THE P LAN
T his master plan is the culmination of a partnership
between the City of Jacksonville and its citizens. It
sets out to fulfill an exciting vision that we realize will take
many years to attain. We intend to immediately implement
a series of short-term projects that, as a whole, will change
the face of our downtown. The following principles are
the foundation of our new downtown master plan. The
design themes, plan framework and policies of the plan
stem from these principles.
1 We will improve access to our river banks, creating a
greenway of substantial amenity to our citizens.
2 We will develop clearly defined downtown districts Our plan will build on the strengths of the existing
river walk and the Jacksonville Landing. ±
with distinct identities and a mix of uses and identify
which district would be an appropriate location for
major public capital investment projects.
3 We will develop interconnected, attractive and safe
pedestrian links among neighborhoods, activities and
open space.
4 We will encourage adequate, well-designed and
strategically placed parking throughout downtown.
5 We will recognize open space as a valuable
development asset.
6 We will provide a sustainable system of connected
public open spaces that encourages variety, both in
terms of size and function. Water and natural features
will be important elements.
7 We will establish downtown as a 24-hour city and as a
new location for residential development, a regional
destination for tourists, conventioneers, and local
residents.
8 We will enhance the perception of downtown as a safe
place.
An active Hemming Plaza on a sunny afternoon.
9 We will pursue short-term actions that help us
achieve our long-term vision.
The Framework for Our Ideas 9D OWNTOWN J ACKSONVILLE M ASTER P LAN
T H E O P E N S P A C E A N D P E D E S T R I A N P L A N
The Emerald Necklace connects neighborhoods to the river through a variety of pocket parks, boardwalks, creek-side
trails, and streetscape inviting pedestrians and bicyclists to explore downtown through a series of green spaces.
10C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
THE O PEN S PACE AND P EDESTRIAN P LAN To emphasize the connection to the river, Hogans Views encourage people to linger downtown
CREATES THE PHYSICAL FRAMEWORK OF THE Creek will form the first part of the necklace and Physical connections are not the only way to link the
McCoys creek the second. river to downtown neighborhoods. One of the most
MASTER PLAN .
important methods we can employ to bring the river
Parks are legacy projects adding value to into surrounding neighborhoods and entice people to
T he Open Space Plan is the starting point for
making Jacksonville a more livable city. It organizes
public spaces and pedestrian places so that they link
surrounding land parcels
Our vision for Downtown Jacksonville includes the
come down to the rivers edge is to establish view
corridors.
creation of parks in the center of downtown, our
neighborhoods, individual buildings and the St. Johns legacy to future residents. The yellow arrows on the plan indicate views of the
River. river to either be created, preserved, and enhanced.
The parks will provide the links to the river as well as These views of the river do not start at waters edge,
Our Plan Components raise property values in adjacent neighborhoods. Parks but are located at the inland culmination of corridors,
· The river will serve as catalysts for the redevelopment of such as streets or parks that terminate at the river.
· The emerald necklace adjacent blocks with a mixture of residential and
· Parks neighborhood serving uses. The economic impact of Sustainable stormwater management
· Pedestrian connections the parks will be felt not only by adjacent properties, encourages dual-use of facilities
· Views but by the entire downtown.
· A sustainable plan for storm water management The open space plan proposes a network of storm
water ponds that complement the landscape and
Pedestrian connections link centers of function as visual amenitiesponds will be designed
The river is Jacksonvilles unique international downtown activity
asset with shallow slopes and landscaped edges to take on
The open space and pedestrian plan identifies a series
One of the main goals of the open space and pedes- the appearance of small lakes.
of pedestrian links. These links are intended to
trian plan is to recognize the important role the river maximize the potential of the overall park system by
plays in attracting people to downtown and to Possible locations for storm water ponds include:
providing connections between small pocket parks, the
preserve and enhance public accessibility to the river · Open space network/emerald necklace
emerald necklace and the river. · Under interstate overpasses
and its recreational opportunities.
· A network of ponds along the edge of
The importance of the pedestrian systemidentified by
Currently the impact of the river is felt mainly by Interstate 95
the continuous red line on the open space plancan
adjacent properties. To maximize the influence of the not be over stated. The creation of the emerald
river throughout the city, connections to the St. Johns necklace is a long-term project. The pedestrian system
River must be forged. These connections will be offers both short and long-term solutions in the
created through the implementation of the other parts creation of the overall open space systems. Main
of the open space and pedestrian plan. pedestrian links include:
The emerald necklace links the river to other · Riverfront
parts of downtown · Hogans Creek
The second component of the open space and · McCoys Creek
pedestrian plan is the creation of an emerald neck- · Main/Ocean Street Corridor
lacea ring of parks and open space connecting the
downtown neighborhoods to the river. The emerald
necklace will function as the seam binding individual
neighborhoods together. 11
Open Spaces and Pedestrian PlacesD OWNTOWN J ACKSONVILLE M ASTER P LAN
P LAN P OLICIES We will develop an attractive,
comfortable and safe pedestrian
A t the beginning of this plan, we
stated nine principles to guide the
redevelopment of downtown. The
environment that provides
connections between commercial
and residential activities and open
following policies are intended to space by .
implement our principles. · Providing an interesting sidewalk
We will improve access to our river environment for pedestrians
banks by . · Encouraging a mix of uses in
· Extending the river walk wherever buildings, with publicly accessible
and whenever possible uses on the ground floor
· Creating strong visual and pedes- · Extending commercial activity into
trian links from downtown streets the public realm; encouraging
· Encouraging the continued imple- sidewalk cafes, street vendors,
mentation of strategies to reduce street performing on sidewalks and
pollution and restore the aquatic in public open spaces
The St. Johns River and the city skyline gives Jacksonville a strong habitat of the St. Johns River We will take a new approach to
sense of place. identified in the River Agenda, the downtown parking by .
City and States commitment to · Encouraging retail use of the ground
preserving Jacksonvilles greatest floor of parking structures adjacent
natural resource to public right-of-way
We will develop clearly defined · Prohibit new surface parking lots in
districts that have a distinct the Central Civic Core District
identity and include a mix of uses requiring all new parking to be
by . provided in structures
· Recognizing that major public · Lowering required parking ratios as
capital investment projects can the market allows, as well as
significantly enhance district encouraging the use of transit
development and character · Counting on-street parking towards
· Building on the existing district meeting parking requirements
character and uses · Locating parking at the rear or side
· Concentrating activity, as much as of buildings
possible, around catalyst projects · Requiring no additional parking for
within districts structures that are being renovated
for new uses in any zoning district
· Allowing parking to be shared in
Future residential development in the Riverfront District - mixed-use projects
Berkman Plaza (Source: Andrew King)
12C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
We will recognize open space as a We will enhance downtown as a 24-
valuable asset to surrounding hour city, a regional destination for
development by providing a sustain- tourists, conventioneers, and local
able system of connected public residents by
open spaces that vary in size and · Encouraging a diversity of activities
function by downtown
· Framing open space with buildings · Encouraging a mix of uses within
· Orienting building entries, plazas, districts, blocks and buildings
courtyards, terraces and balconies wherever possible
to open spaces · Promoting downtown as a place to
· Providing urban plazas, civic open live
space and parks for active recre- · Promoting the rehabilitation of
ation, neighborhood community existing buildings to provide
parks and shady green places for housing, office, institutional, com-
quiet contemplation mercial and visitor destinations Our plan calls for more water front gathering places, like
· Using green space to link activities · Encouraging entertainment and this one at the Landing.
· Providing each district with a nighttime uses on the streets
common green open space and between the Performing Arts
pedestrian links to it Center and the Florida Theatre
· Creating a master plan for storm We will enhance the perception of
water retention systems that can be downtown as a safe place to be at
incorporated into open space night by
amenities · Clustering cafes and entertainment
· Allowing grading and slopes around venues that are open at night,
storm water retention areas to locating them on the ground floor
facilitate the removal of fences and, of buildings
where appropriate, create hard · Improving streetscape and pedes-
scape environments trian lighting
· Using pavers and special surfaces to · Encouraging the development of
connect public open spaces housing downtown
· Providing evening activities in public
spaces
An attractive, shaded sidewalk always encourages
pedestrians to linger. Laura Street, Jacksonville ±
13
Policies and Design GuidelinesD OWNTOWN J ACKSONVILLE M ASTER P LAN
U RBAN D ESIGN G UIDELINES These guidelines apply to all districts.
T he policies of our plan lead naturally Intent: To clearly define gateways
to a set of guidelines; for those into downtown.
responsible for improving downtown · Identify gateways with landscaping
and for developers interested in and special features
implementing new projects in Jackson- · Support public investment in
ville. The following guidelines, therefore, Jacksonvilles gateways by identifying
address three important urban ele- and promoting commercial uses
ments: nearby
· The broad downtown urban Intent: To encourage enticing views
environment that is so important to of the river from as many places in
Jacksonvilles sense of place downtown as possible.
· The streetscape; that part of the · Create views to the river down the
public realm that is most important following streets:
to the pedestrian; the sidewalks and In the Central Core and
their environs beyond Main, Ocean, Newnan,
Creating a clearly defined gateway. Monroe Street, Jacksonville ± Market, Liberty, Laura, Hogan,
· Development sites; where Down-
town Jacksonvilles future is created and Points along Gator Bowl
in the form of new buildings Boulevard
In Brooklyn Jackson, Dora,
The following urban design guidelines will Forest, Roselle
help us implement our vision for down- In Southbank Hendricks,
town. They promote flexible design of Miami, Montana
public and private spaces and encourage · Encourage the creation of views
quality development. from buildings to the river, through
buildings, and across the river to
Guidelines for Public Spaces buildings
The following guidelines encompass the
development of public spaces, including Guidelines for Connections
parks, open spaces and public right-of- Downtown
ways, particularly the gateways to The following guidelines are intended to
Jacksonville, views throughout down- create a new network of improved pedes-
town, and pedestrian orientation. trian connections between the various dis-
tricts and the proposed open spaces. The
pedestrian connections identified in the
Open Space and Pedestrian Plan will be
The Northbank Riverwalk is an important River front connection that implemented through the addition of off
is also a gateway. This presence is enhanced by the display of banners
street pathways in public sidewalk system
and creative landscaping features. ±
14C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
with the trees, pedestrian scale lighting, · Provide connections to Hogans
signs and other features that enhance the Creek along Ashley, Church, Liberty,
pedestrian environment.. The main focus Main and Ocean Streets
is on creating pedestrian and bicycle links Intent: To provide connections
between major anchors and activi-
that encourage visitors and the residents
ties.
of Jacksonville to enjoy the different ameni- · To the Performing Arts Center down
ties downtown has to offer. Hogan and Water Streets
· To the Convention Center along
These design guidelines apply to all Water and Bay Streets
districts.
· To the Landing along Hogan, Laura
and Main Streets
Intent: To maintain traditional
block patterns with a grid of · To the Florida Theatre down Forsyth
streets. To eliminate vacant streets and the alleys in between
and minimize the creation of super · To Adams Mark Hotel along Bay
blocks, wherever practically pos- Street and Coastline Drive
sible. · To the Stadium along Bay street and
· Encourage new large development Gator Bowl Boulevard Streetscape design with landscape signage and pavers improves the
proposals to respect the existing · To the Government Center up pedestrian experience
Jacksonville downtown street Hogan and Laura and along Bay
pattern Street
Intent: To provide connections that · Encourage ground floor uses that
maximize the asset of the St. Johns link activities and relate to the theme
River. of the area
· Provide a continuous public Intent: To provide connections
walkway along the north bank of within and beyond districts.
the St. Johns River from Metro Park · Provide links to open space within
to Memorial Park the district and to other districts
· Reunite the city with its river by through landscaped connections
protecting existing connections to Intent: To provide connections from
the river and creating new connec- downtown to the adjacent neighbor-
tions wherever possible hoods.
· Improve river walk connections to · To San Marco along Hendricks
the Southbank at the Main Street Avenue and San Marco Boulevard
and Acosta Bridges; make smoother · To Springfield along Main, Pearl, Broad
and more pleasant transitions from and Jefferson Streets
bridges to sidewalks · To Riverside and Brooklyn along Park
Intent: To create a series of down- Street and Riverside Avenue
town connections to open space. Our plan proposes more parks, like this one opposite the
Florida Theatre. ±
· Provide connections to McCoys
Creek along Stonewall, Jackson, and
Dora Streets
15
Policies and Design GuidelinesD OWNTOWN J ACKSONVILLE M ASTER P LAN
Streetscape Design · Remove all utility poles, lights,
Guidelines meters from the pedestrian zone
and relocate them in the amenity
zone; install underground utilities
T he beauty and livability of a city
depends greatly on the design of its
streets. The character and quality of the
·
whenever possible
Use consistent, continuous widths
of concrete for sidewalks
space between the curb and the face of
· Comply with ADA (Americans with
a building has a lot to do with the way
Disabilities Act)
people walking in the city feel about it.
· Widen sidewalks along all intra-
Creating comfort for the pedestrian is
district streets to have a minimum
an important way to generate positive
of 8 wide clear walking area, and
economic activity on the streets.
amenity zones between 5 and 8
S
wide, at minimum
treetscape is composed of two
· Widen sidewalks along all inter-
elements: the clear walking area -
district streets to have a minimum
the pedestrian zone - and the area
of 10 wide clear walking area, and
between the curb and the sidewalk - the
Broad sidewalks encourage pedestrians. amenity zones a minimum of 8
amenity zone. These zones are typically
wide
distinguished by a change in materials,
· Build sidewalks in selected places in
from hard materials to greenery, though
the core and commercial areas that
in areas of high pedestrian traffic the
are wide enough to accommodate
amenity zone may include less planting
sidewalk cafes, clear walking zones
and more paving. Elements that should
and amenity zones, 22 minimum
be located in the amenity zone include:
from building face to the curb
street trees, ground cover or paving
· Build sidewalks in residential areas
stones, street furniture, trash cans,
that are a minimum of 5 width;
kiosks, lights, utility poles, and parking
provide landscaped walking areas
meters.
under the ASE
The following design guidelines apply to · Provide ADA standard curb ramps
all districts. in the direction of sidewalk travel at
every intersection
Intent: To make sidewalks interest- · Use historic interlocking paving, or
ing, safe and comfortable places to replicas, in those residential districts
walk. To unify the sidewalk and where they originated
provide a clear, direct and safe path · Change the paving material at
for pedestrians. crosswalks in areas where pedes-
· Require developers of new projects trian traffic is high and vehicular
to build sidewalks and install the traffic needs calming
Hemming Plaza offers shade, security, and a nice place to rest or
eat lunch during a busy day. ± streetscape that is designated for
the area and to provide ongoing
16 maintenanceC ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
Intent: To create a unified sense of Intent: To create a sense of security
place throughout Downtown and safety for pedestrians.
Jacksonville. · Street light fixtures should be no
· Plant regularly spaced trees in more than 14 tall to provide
straight rows; the number and adequate lighting at a pedestrian
spacing of trees should be based on scale
the need to allow adequate room · Continue use of citys historic
for root and branch growth while standard light fixture
still providing a continuous canopy; · Fixtures should have sufficient detail
trees should be centered in the to create scale for the pedestrian
width of the amenity zone · Lights should be spaced 60- 80
· Use the same type of tree on each apart to minimize glare and allow
side of the street for street trees and traffic lights
· Put trees in lawns or ground cover Intent: To encourage pedestrians to
wherever possible linger and take pride in the down-
· Use paving in the amenity zone town and its districts. Jacksonvilles Treaty Oak Park is a tranquil open space, set
where lawns are not practical, and · Provide a unified system of seating, in the busy Southbank District.
provide grates and guards to trash receptacles, bicycle racks,
protect trees kiosks and bus shelters
· Locate trees a sufficient distance · Incorporate elements that are
from street intersections to provide unique to Jacksonvilles history and
clear viewing distances for cars culture by using historic photo
· Provide an irrigation system in references
commercial areas · Encourage the use of awnings on
· Require that the owner of the the first level of buildings to provide
property that abuts the right-of-way shade and protection for pedestri-
assume the maintenance of the ans
trees and other amenities · Encourage the use of signs that
· Provide continuous green and project from buildings and are
seasonal color in the amenity zone oriented toward pedestrians
along the ground plane wherever · Provide public art at strategic
possible locations
· Plant the amenity zone with grass, · Require private developers to set
perennial ground covers or seasonal aside a percentage of site develop-
color as appropriate or provide ment costs for public art
pavers in areas of high pedestrian · Encourage the participation of local
traffic or amenity zones less than 5 artists
wide · Enhance the Main Street and Acosta
Bridges as a recreational loop Landscaping enhances the sidewalk along
Riverside Avenue, Jacksonville.
17
Policies and Design GuidelinesD OWNTOWN J ACKSONVILLE M ASTER P LAN
Site Design and Building Intent: To reuse and protect
Form Guidelines designated historic structures as
well as structures eligible for
T he following guidelines are intended designation.
to insure that the design of build- · Rehabilitate the buildings in ways
ings supports and enhances the pedes- that are sensitive to their original
trian experience. historic character
· For new buildings adjacent to
The site design and building form historic or eligible buildings, provide
guidelines apply to the following massing, windows and a range of
districts: Brooklyn, LaVilla, Central Civic materials that are compatible with
Core, Church District, Riverfront, the historic building
Cathedral, Stadium, and Southbank. · Where rehabilitation of the entire
structure is not feasible, encourage
Intent: That the design of individual the retention and incorporation of
sites will add to the quality of the exterior facade into the new
City Hall at St. James ± downtown. building form
· Provide clear and separate access · Require the review and approval of
for vehicles and pedestrians replacement designs before allowing
· Define the street and sidewalk any building to be demolished
space Intent:To minimize the impact of
· Provide outdoor space that will be parking and service areas in down-
used by the public or the occupiers town.
of the building · Locate parking lots and garages
· Provide visual interest to the away from sidewalks and pedestrian
pedestrian, along the sidewalk connections; locate them within
fronting the building projects or off of service alleys
· Screen and buffer service access · Locate loading and service docks
and docks from the public right-of- away from sidewalks and pedestrian
way connections
· Encourage the service function of · Ensure that the design of parking
the alleys lots minimally affect the pedestrian
environment
· Provide active uses such as shops
and restaurants on the ground floor
of garages to engage pedestrians
Jacksonville has preserved some of its buildings very well.
The Florida Theatre, Forsyth Street ±
18C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
· Require landscape and architectural · Orient buildings perpendicular to
treatments to soften the appearance the St. Johns River to allow views
of surface lots and structures from interior blocks
· Promote development of structured Intent: To encourage development
parking, particularly within the that is designed to improve the
Central Civic Core, and discourage pedestrians experience of
surface parking throughout Downtown Jacksonville.
downtown · Respect the existing development
· Discourage the demolition of patterns
existing buildings to create parking · Provide frequent pedestrian entries
Intent: To encourage the along the street
construction of buildings to provide · Provide balconies from upper floors
continuous frontage along of residential units
sidewalks. Intent: To encourage developments
· Construct buildings to the property with building facades that involve
line the pedestrian on the street.
· Provide pedestrian-oriented · Avoid undifferentiated building walls Unique architecture adorns the top of the New City
buildings with pedestrian-scaled · Create open and inviting facades Hall at St. James. ±
elements along their adjacent · Provide human/pedestrian scale
sidewalks · Create an active and interesting
Intent: To encourage building forms sidewalk presence
and massing that respect the · Provide a variety of detail and form
context of their surroundings and by addressing variation in wall
the pedestrian environment. planes, horizontal and vertical
· Step buildings up from the river and articulation, glazing, materials,
define height zones finishes and color
· Break up the building form to allow
views through the architecture, It is recommended that a Downtown
particularly down public right-of- Design Review Board be appointed by
ways the Mayor and approved by the City
· Discourage large undifferentiated Council to administer the design guidelines
building masses and encourage and monitor the realization of the intents
building breaks of this master plan. The Board will review
· Respect the scale of the context in all public work projects, partnerships with
which the development occurs the City that require funding and all
· Encourage variety in roof forms, projects that require permitting.
entry forms, bays, room modules Parking above retail and office space. Forsyth Street, Jacksonville. ±
and step-backs
19
Policies and Design GuidelinesD OWNTOWN J ACKSONVILLE M ASTER P LAN
B R O O K L Y N A N D R I V E R S I D E A V E N U E
B rooklyn and Riverside Avenue are
contrasting halves of the same
neighborhood. Brooklyn was once an
important in-town community with
family homes and thriving businesses.
Riverside Avenue is a busy traffic
corridor and entry to downtown. It is
lined with some of Jacksonvilles leading
office-based businesses, but has little
relationship to the neighborhood to its
north.
Opportunities
Our vision for Brooklyn is to regenerate
it as a vibrant mixed use neighborhood
and to link it to the river via as many
routes as possible. A key redevelop-
ment strategy will be to attract creative
businesses and individuals, such as
graphic artists, architects, sculptors and
designers, to this area. The key activity
generators are:
McCoys Creek
· A primary public open space on the
emerald necklace
· A means of creating valuable
amenity for nearby residential
development opportunities
· A significant pedestrian and bike
connection to the St. Johns River
and LaVilla
20C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
Park Street Policies & Design Guidelines
· Brooklyns central spine The following policies and design
· An important primary connection guidelines will apply to the Brooklyn
to the neighboring district of LaVilla District:
· The prime opportunity for creating
McCoys Creek will become a
a pedestrian-oriented mixed use
significant public open space and a
street anchored at its eastern end
neighborhood amenity, as well as a
by the activity generated at McCoys
development catalyst for single and
Creek
multifamily residences along its
edges.
St. Johns River Bank
· Residential structures will be
· A superb setting for new office
oriented to creek-side pedestrian
space
and bicycle paths through the
· Provides access to the St. Johns
extension of Elm Street along the
River from Brooklyn by using the
creek edge
existing street network and termi-
· The McCoys Creek path will have
nating it with public open spaces at
safe attractive links to the adjacent
the river
residential developments
Riverside Avenue Access from the neighborhood to
the river will be maximized by
· An important gateway to the central · Corporate office buildings will be above ground floor commercial
extending the street grid toward
civic core of Jacksonville encouraged on the riverfront; these uses
the river, terminating the following
· A link between Brooklyn and buildings will be located between · Sidewalks along Park Street will
streets as close to the river as
communities to the south of the the parks that serve as an extension be widened to enhance the
possible.
new Fuller Warren Bridge of the north-south streets noted pedestrian nature of the street
· Rosalie Street, Edison Avenue, Forest
Avenue/Price Street, Jackson Street above · Streetscape will be enhanced
Automated Skyway Express (ASE)
and Dora Street · The Public School (Riverside 4) is a along Park Street to encourage
· Could be routed alongside Riverside significant historic building and is a pedestrian activity while
Ave. to the Central Civic Core, Brooklyn will be redeveloped as a
key adaptive reuse opportunity maintaining the visibility of
LaVilla, Church and Southbank transit-oriented, mixed-use neigh-
Park Street will be redeveloped to adjacent buildings and shops from
Districts borhood with the ASE extension
encourage pedestrian activity and the travel lanes; streetscape will
· Provides a prime opportunity for serving as the primary means of
will serve as the neighborhood comply with the guidelines
promoting transit-oriented develop- connecting Brooklyn with other
center for services that support presented elsewhere
ment as Brooklyn develops and the districts and neighborhoods.
residential development. · The site design and building form
market grows · Mid-rise and high-rise residential guidelines will apply to all
structures will be encouraged along · The development of Park Streets
· Potential for shaded public gathering properties on Park Street
a landscaped setback next to the existing buildings to provide a mix of
spaces and uses under track
ASE alignment between Magnolia uses will be encouraged; this could
Street and Oak Street comprise office and residential uses
21
The DistrictsD OWNTOWN J ACKSONVILLE M ASTER P LAN
L A V I L L A D I S T R I C T
L aVilla is one of Jacksonvilles most historic
neighborhoods and it is in transition. It has
been a slow process of Revitalization started
previously by the River City Renaissance Bond
Initiative. It has several landmark buildings,
including the restored train stationnow the
Prime Osborn Convention Centerand the
reopened Ritz Theater, and some of Jacksonvilles
newest streetscaping.
Opportunities
The City of Jacksonville has actively marketed its
land holdings in LaVilla, attracting several
commercial proposals and locating various public-
funded projects, such as the School for Performing
Arts, in the neighborhood. This activity has set a
strong urban-edged tone for LaVilla. The new
Winn Dixie, the Ritz Theater and the Urban
League project have reinforced this sense of a
developing in-town neighborhood.
We envision LaVilla to be a vibrant, mixed-use
urban district where commercial, cultural, enter-
tainment, light industrial uses and urban housing
such as loft apartments and walk-ups coexist side
by side and create the synergy needed to sustain a
neighborhood. The key activity generators are:
New Cultural Facilities for LaVilla
· The School for the Performing Arts, the Ritz
Theater renovation and the Urban League
Project have potential to form an important
synergistic pocket of activity within the
neighborhood
· Stronger, secure pedestrian links to the
Central Civic Core and Church Districts
along Duval Street and Monroe Street will
reinforce this synergy
22C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
New Commercial and Industrial Policies & Design Guidelines
Developments Public investment in LaVilla will be
· The new Winn Dixie grocery store strengthened and sustained.
· Elkins Constructors, Inc. · The Ritz Theatre district and the Urban
· Sally Industries League project will form the cultural center
· Lee and Cates Glass of LaVilla
· Existing commercial structures that can · Pedestrian connections along Duval Street,
either be renovated for light industrial use Monroe Street, Lee Street and Jefferson
or loft apartments Street will be enhanced, consistent with the
· Opportunities for new urban in-fill streetscape standards
developments · The LaVilla neighborhood will be buffered
from the visual and noise impacts of
The Prime Osborne Convention Center Interstate 95 by green open space
Quality multi-family housing with ground floor development
· Currently the largest activity generator in LaVilla will include a mixture of would help revitalize LaVilla. Addison Community, Dallas, Texas
LaVilla commercial, industrial and residential uses,
· Serves as an important Landmark Building deliberately designed to be in close
for Jacksonville for all outsiders who pass by proximity to each other and to appear to
Jacksonville on nearby Interstate 95 maximize lot coverage.
· A Historic Building and Vital Rail Hub which · Commercial and Industrial uses will be
helped fuel the early development of encouraged throughout LaVilla
Jacksonville and the rest of Florida · Neighborhood-serving retail and incubator
business opportunities will be encouraged
Open Space Network
throughout LaVilla
· Smaller parks in the emerald necklace · Urban housing types such as warehouse lofts
between Duval Street and Monroe Street and walk-up apartments above ground floor
· Pedestrian pathways and sidewalks linking commercial will be encouraged between
McCoys Creek and Hogans Creek along Lee Broad Street and Jefferson Street
Street and Jefferson Street · The urban street pattern of LaVilla will be
· A means of bringing substantial public respected by maximizing lot coverage, by
amenity to LaVilla avoiding low density development and by
· A way of creating an attractive buffer bringing uses close to the sidewalk
between the Interstate and the heart of · Transit-oriented development will be
LaVilla encouraged adjacent to the existing skyway
· The location for a progressive means of stations
addressing surface water drainage through Investment in LaVilla is already underway.
The Ritz Theatre and Urban League
the creation of wetlands and ponds along the
interstate
23
The DistrictsD OWNTOWN J ACKSONVILLE M ASTER P LAN
C H U R C H D I S T R I C T
T he Church District is
dominated by the presence of
the First Baptist Church. The church
fills many blocks with its activity, but
to the west of the neighborhood,
empty or underused blocks present a
different character. These blocks are
often bordered by poorly maintained
sidewalks and streets blighted by fast-
moving through-traffic.
Opportunities
Educational and religious establish-
ments bring life and vitality to urban
neighborhoods, offering opportunities
for retailers, improving public safety
and often enabling the reuse of
commercially non-viable buildings.
The Church District is a transition
between the mixture of urban uses
that form the character of the LaVilla
neighborhood (supported by the
School for Performing Arts), the
predominantly residential character
of the Cathedral and Hogans Creek
District, the campus of the Florida
Community College to the north and
Central Civic Core District to the
south. We envision the Church
District as a locale where businesses
support the local student population
and religious uses.
24C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
The key activity generators are: Policies & Design Guidelines
Education, civic and religious
Florida Community College of activities will be the focal point of
Jacksonville (FCCJ) this district. Wherever possible,
· Jacksonvilles premier downtown development will be encouraged to
educational institution support and enhance the
· Close proximity to Central Civic educational and religious character
Core allows for educational and of the district.
professional interaction · Development will be encouraged to
· Proximity to nearby School for capitalize on the educational theme
Performing Arts encourages synergy by enhancing connections to LaVilla
· Future growth and development and the School for the Performing
could be accommodated on nearby Arts
vacant land parcels New development and
redevelopment of existing
Churches properties should encourage a
· Predominant land owners mixture of uses and pedestrian
· Owners of large surface parking lots oriented design.
that could, in time, bear different · Strong north/south pedestrian
more attractive, uses connections will be created across
· Potential to provide retail services State Street and Union Street
· Potential to be a catalyst by · Large surface parking lots are
improving their property and the considered a poor use of land and
adjacent pedestrian linkages should be minimized or eliminated
· A champion project for promoting where possible
the design guidelines leading through · New development or
example, prototype projects redevelopment of existing
properties will be consistent with
the site development guidelines
contained in this master plan
· Improved streetscapes will be
consistent with the guidelines
contained in this master plan
A view of the river from above the Church District
25
The DistrictsD OWNTOWN J ACKSONVILLE M ASTER P LAN
T H E C E N T R A L C I V I C C O R E D I S T R I C T
T he Jacksonville Landing and the Performing
Arts Center are the only centers of activity
open in the downtown after 5 oclock. There is
ample opportunity for extending activities to a
wider area of the Civic Core.
Opportunities
The Civic Core has a workforce that represents an
important potential market. It also has a strong
visual image, with its skyline reflecting in the
surface of the St. Johns River. Several older
landmark buildings are vacant and have potential
for redevelopment with ground floor retail. The
revitalization enhancement of Hemming Plaza
shows the potential for bringing more life to
downtown. In addition, the creation of a Business
Improvement District (BID) will make downtown
clean and safe by providing up to $1 million
dollars per year to upgrade city services and
implement security, marketing and beautification
programs. The key activity generators are:
The St. Johns River
· The natural destination for visitors and a
special place for those working downtown
· The Performing Arts Center and the Jackson-
ville Landing provide places for the pedestrian
to linger and enjoy the river
· The Riverwalk provides unique pedestrian
access
· Main Street and Acosta Bridge provide
pedestrian and recreation opportunities with
views of the River and the skyline
Hemming Plaza
· Jacksonvilles best public square
· Provides an important anchor, with consider-
able potential for further development, on the
northern end of the Laura Street/Landing axis
26C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
The Laura / Main / Ocean Corridor Improved Pedestrian Links through and out of
· Vital gateways and connections to the river, the civic core
these streets will set a new tone for downtown · From Jacksonville Landing to Hemming Plaza
· Main and Ocean are the primary links to the · From the Adams Mark Hotel to The Performing
Riverwalk and the main street bridge Arts Center
· Laura Street, with its terminus at the Landing, is · From the Adams Mark Hotel and the Florida
an ideal pedestrian link to other major down- Theater to Hemming Plaza
town landmarks, such as the City Hall at St.
James, Hemming Plaza, the Policies & Design Guidelines
proposed Jacksonville Museum of Modern Art, The Civic Core will develop further as the
First Baptist Church, the Bank of America Tower premier cultural and entertainment district
and the Modis Building within downtown.
· Activity along these streets will serve as a
· A place for live entertainment and museums and
catalyst for the revitalization of the streets that
evening activity generators
run east to west through the core
· Ground floor spaces on interconnecting streets
Location of New Public Facilities and alleyways will be promoted as potential
restaurants, bars and coffee shops
· Construction of a new County Courthouse in
the vicinity of the government cluster created by Provide additional parking facilities in the New Federal Courthouse adjacent to Hemming Plaza.
the recently relocated City Hall at St. James and Civic Core which promote strong pedestrian
(Source: KBJ Architects)
the new Federal Courthouse and urban design features for downtown
· Construction of a new downtown main library visitors and workers
in the vicinity of Hemming Plaza and the Laura/
· Prohibit new surface parking lots in the Central
Main/Ocean Corridor complementing the recent
Civic Core District requiring all new parking to
investment by the Museum of Modern Art, the
be provided in structures
St. Johns River City Band and the City
· Discourage the demolition of historic buildings
Restoration and Adaptive Reuse of vacant and/ for the construction of parking facilities, at a
or Historic Buildings minimum require the retention and incorpora-
tion of the historic facade within the new
· Renovation of the May-Cohens Department
building form
Store into the new City Hall at St. James, the
· Consider policies which retrofit existing surface
center of City Government
lots to meet the standards of the landscaping
· Restoration of the Seminole Club, the Galleria
requirements of the zoning code
Building into the proposed Jacksonville Museum
· Require newly constructed parking garages to
of Modern Art, the Elks Building, and the Snyder
have commercial and/or office uses on the
Memorial Church into the St. Johns River City
ground floor
Band facility Laura Street has a strong sense of place, but lacks pedestrian
· Encourage the construction of new parking activity.
· Several other vacant or underutilized buildings
spaces in the civic core for downtown workers
are available to complement the development
and visitors 27
already underway The DistrictsD OWNTOWN J ACKSONVILLE M ASTER P LAN
T H E C A T H E D R A L D I S T R I C T
T he Cathedral District contains
many of Jacksonvilles landmark
churches and a large number of at-grade
parking lots. Several of Jacksonvilles
fastest downtown roads run through this
area and, together with the parking lots,
they undermine the serenity and
architectural appeal of the churches.
Hogans Creek forms an eastern bound-
ary, between the traditional street
pattern of the neighborhood and the
super blocks of the Stadium District.
Opportunities
The Cathedral District has the potential
to become a revitalized residential
neighborhood adjacent to the main
employment center in the Civic Core
District. The traditional street pattern
with its mixture of churches and
residences, bounded by the Civic Core
and Hogans Creek, create a neighbor-
hood with significant potential.
28C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
The key activity generators are: · Development of in-fill housing will
be consistent with the site design
Hogans Creek and building form guidelines con-
· On the emerald necklace, it forms tained in this master plan
the northern and eastern perimeter Residential development will be
of district supported by neighborhood serving
· It provides a major amenity for the commercial uses.
land parcels that form its border · Liberty Street and the east side of
· It is a prime recreation opportunity Ocean Street will be recognized as
for residents important links into and through the
· It creates a strong connection to the neighborhood; commercial uses will
river front be encouraged along these streets
· It is close to the planned residential Churches will be recognized as
development
important to the success of the
neighborhood.
The Churches · In-fill housing will be sensitive to the
architecture and building scale of
· A fine collection of historic buildings
existing churches
that set the tone for the neighbor-
· The Cathedral will serve as a focal
hood
point for the residential neighbor-
· They provide important landmarks
hood on the west side Immaculate Conception Catholic Church, a national historic
between which pleasant pedestrian landmark, is typical of the architectural standard for which the
· Development of new churches or
environments will be created district is named. ±
expansion/redevelopment of existing
churches will be no greater than the
Policies & Design Guidelines
scale of the surrounding residential
The Cathedral District will be
uses
promoted as a residential neighbor-
· Large surface parking lots will be
hood.
discouraged or, where absolutely
· Residential development adjacent to essential, landscaped to create a
Hogans creek will be oriented to pleasant, pedestrian-friendly
maximize the amenity of the Creek streetscape
improvements
· The Hogans Creek trail and open
space system will be extended into
the neighborhood wherever
possible Future housing in the Cathedral District - The Parks at Cathedral.
(Source: Rink, Reynolds, Diamond, & Fisher Architects)
29
The DistrictsD OWNTOWN J ACKSONVILLE M ASTER P LAN
I N S T I T U T I O N A L D I S T R I C T
T he Institutional District includes a
modern correctional facility and courthouse,
the police headquarters, and the Maxwell House
coffee processing plant.
Opportunities
Our goal for the Institutional District is not to try
to change the existing character of the district by
imposing strict design guidelines, but rather to
recognize that the uses in this district are a
necessity. Therefore, our focus is on the relation-
ship between this district and adjacent districts
(Cathedral, Stadium and Riverfront).
Policies and Design Guidelines
Positive pedestrian connections will be
promoted between the Institutional District
and Stadium/Riverfront Districts through the
use of streetscape on Adams Street, Bay
Street and Liberty Street.
· Streetscape will comply with the guidelines
established in this plan
Any development/redevelopment in the
Institutional District will recognize the
importance of protecting the residential
character of the Cathedral District to the
north.
· Pedestrian connections between the Institu-
tional District and the Cathedral District will
be limited
· The physical barrier between the two districts
formed by the viaducts will be maintained as a
buffer between the more intense institutional
uses and the lower-scale residential uses
The view east along Bay Street, an important link
through the Institutional District to the Stadium
District.
30C ELEBRATING THE R IVER : A P LAN FOR D OWNTOWN J ACKSONVILLE
T he Stadium District includes the
Alltel Stadium, the Coliseum, the Wolfson
Ballpark and the State Fairgrounds. On specific
S T A D I U M D I S T R I C T
occasions, these sporting and entertainment
venues attract Downtown Jacksonvilles largest
crowds. The events require substantial car
parking, rapid road access and temporary support-
ing facilities and services. The district is currently
a bookend for Downtown Jacksonville, providing
it with a clearly defined character at its eastern
edge.
Opportunities
The Stadium District offers an entertainment
opportunity distinct from the remainder of
downtown. The special parking needs of sports
and entertainment venues in this district provides
a foundation for park-and-ride facilities during the
normal work week. Existing industrial structures
to the west and east of the district offer the
opportunity for additional redevelopment projects.
The key activity generators are:
Alltel Stadium Wolfson Park · The special parking needs of
· Home to the Jacksonville Jaguars NFL team · Home to Jacksonvilles Minor sports and entertainment venues in
and venue for other football games, like the League Baseball Team - the Jackson- this district provides a foundation
Toyota Gator Bowl ville Suns for park and ride facilities during
· A highly visible national icon for Jacksonville · Activity generator during the the normal working week
· Potential future location for the Superbowl summer months
· Major activity generator for several days a · The ballpark should be enlarged and Policies & Design Guidelines
year improved on its current site to The Stadium District will be
accomodate Triple A baseball promoted as Jacksonvilles premier
Coliseum
sometime in the future sports and entertainment district.
The Alltel Stadium dominates its
· Downtown Jacksonvilles main indoor surroundings. Increased use of
entertainment venue · Existing industrial structures in the the Stadium District, throughout
Automated Skyway Express (ASE)
· Primarily an evening activity generator, district should be retained and the year, should be an objective.
· Provides future possibilities for redeveloped for entertainment use
throughout the year
linking the Stadium District to the · An increase in the number of
· A new coliseum/arena is needed and should
Central Civic Core and beyond events will be encouraged
be built in the district west of Memorial
· Provides a prime opportunity for · Links to downtown will be
Coliseum near Hogans Creek maximizing its
developing park and ride, should a enhanced
opportunity as an open space and pedestrian
simpler bus-based system prove · Parking improvements will be
resource
successful promoted 31
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