FCCR: Transit-Oriented Development Study

The purpose of this report is to present the analysis and results of the First Coast Commuter Rail Transit-Oriented Development (TOD) Study only. While the Study’s focus was to identify TOD opportunities adjacent to potential commuter rail stations that resulted from multiple past commuter rail studies and current conditions, the resulting concepts could be applicable to any form of future rail system that may be adopted in the First Coast region. In addition to this study, the Authority continues to explore opportunities to implement a regional rail system in Northeast Florida. The final type and operating structure of the system may be different from the original commuter rail feasibility studies and references in this study. However, all future work will continue to build on all previous rail studies and will utilize TOD opportunities identified through this effort to ensure the best fit to provide a successful rail system to all residents and stakeholders.

FIRST COAST COMMUTER RAIL TRANSIT-ORIENTED DEVELOPMENT STUDY

DECEMBER 2023

1. INTRODUCTION�� 4 1.1 FIRST COAST COMMUTER RAIL & TOD..........................................................................7 2. COMMUNITY ENGAGEMENT��22 2.1 COMMUNITY & STAKEHOLDER ENGAGEMENT OVERVIEW........................................25 2.2 COMMUNITY WORKSHOP 1............................................................................................31 2.3 COMMUNITY WORKSHOP 2............................................................................................37 3. EXISTING CONDITIONS ��42 3.1 REGIONAL TRANSPORTATION ANALYSIS.....................................................................45 3.2 REGIONAL MARKET ANALYSIS....................................................................................109 3.3 STATION AREA ANALYSIS.............................................................................................143 4. TOD PERFORMANCE ��272 4.1 TOD TYPOLOGIES...........................................................................................................275 4.2 TOD READINESS & DESIRABILITY..............................................................................297 4.3 TOD GOALS & TARGETS................................................................................................329 5. TOD VISIONING ��336 5.1 TOD GROWTH TRENDS.................................................................................................339 5.2 STATION AREA PLANNING...........................................................................................345 6. TOD IMPLEMENTATION ��468 6.1 TOD REGULATORY FRAMEWORK AND INTERAGENCY AGREEMENTS...................471 6.2 LOCAL FINANCING AND VALUE CAPTURE MECHANISMS.......................................475 6.3 EQUITABLE TOD............................................................................................................481 6.4 TOD INFRASTRUCTURE NEEDS..................................................................................485

INDEX ��510

7 THE FCCR TOD STUDY............................................................................................................8 TRANSIT - ORIENTED DEVELOPMENT..................................................................................14 HOW TO USE THIS PLAN......................................................................................................20

1.1 FIRST COAST COMMUTER RAIL & TOD

The Jacksonville Transportation Authority (JTA) was awarded a Federal Transit Administration (FTA) grant for a Pilot Program for Transit-Oriented Development (TOD) Planning (TOD Pilot Program) to assist the JTA and its partners begin to plan for sustainable growth in the region. Capitalizing on the existing rail corridor, the JTA will examine opportunities to maximize the true potential of the commuter rail system and shape growth by incorporating TOD. This TOD Study was conducted as a result of this grant and represents the JTA’s efforts to evaluate the potential of TOD in select stations along the First Coast Commuter Rail (FCCR) corridor.

FIRST COAST COMMUTER RAIL TOD STUDY | INTRODUCTION

THE FCCR TOD STUDY STUDY BACKGROUND The Jacksonville Transportation Authority (JTA) proposed First Coast Commuter Rail (FCCR) project is the first of its kind in Northeast Florida. The 38.4-mile corridor would connect downtown Jacksonville to St. Augustine, providing new rail transit service for the employment, education, and health care needs of the community. The FCCR is one of many major proposed projects to mitigate traffic congestion in the region. Transit-Oriented Development (TOD) is a planning and design process focused on integrating land use and transportation, by strategically maximizing residential, business, retail, and leisure spaces adjacent to public transportation infrastructure. TOD principles are intended to densify land uses around stations and enhance accessibility to transit while boosting economic development opportunities and creating more walkable and sustainable communities. This comprehensive TOD

STUDY VISION STATEMENT

Planning Study (TOD Study) examines opportunities at select station areas along the FCCR corridor, to successfully implement TOD and enhance the overall viability of the transportation investment. The TOD Study’s purpose is to evaluate the functionality of the proposed stations for TOD and identify specific opportunities and needs to attract context-sensitive and transit-centric private development, as well as build relationships between agencies, developers, and the surrounding communities. The FCCR TOD Study will include transportation and market analysis, a vision for each station, station area plans, recommendations for implementation, infrastructure needs, and next steps to define economic investment and opportunity around station areas. A key objective of this study is to provide the steps needed to create a more sustainable and resilient multimodal transportation network for Northeast Florida.

Engaging the public and the private sector, and building on market and transportation analyses, the outcome of the TOD Study will present the full potential of transit investment in support of the following project goals: » Enhance economic development and transit ridership; » Facilitate multimodal connectivity and accessibility; » Increase access to transit from non-motorized transportation; » Enable mixed-used development; » Identify infrastructure needs; and » Facilitate both public and private sector involvement in the TOD planning process.

The JTA envisions a fully optimized commuter rail system that will be a transformative catalyst for growth in northern Florida. TOD is a key component of such optimization and will be a major social and economic driver for attracting residents and employment to the region. Implementing TOD along the FCCR corridor will be made through the enhancement and concentration of transit-supportive land uses, densities, and public realm improvements around select station locations. The development of each station area will present a vision for density and land use mix appropriate for its context that creates an accessible and connected community guided by varying levels of development strategies based on estimated and desired growth.

FCCR TOD STUDY GOALS

Enhance economic development and transit ridership

Facilitate multimodal connectivity and accessibility

Increase access to transit from non-motorized transportation

Enable mixed-used development

Identify infrastructure needs

Facilitate both public and private sector involvement in the TOD planning process

Figure 1-1: DOWNTOWN JACKSONVILLE (UPPER) & ST. AUGUSTINE (LOWER)

Figure 1-2: FCCR TOD STUDY PROJECT GOALS

FCCR TOD

FIRST COAST COMMUTER RAIL TOD STUDY | INTRODUCTION

CORRIDOR OVERVIEW

STATION EVALUATION

The FCCR Southeast Corridor is proposed to have as many as 15 commuter rail stations between Downtown Jacksonville and St. Augustine, crossing the county boundary between Duval and St Johns Counties, as depicted in Figure 1-3. Proposed commuter rail stations are located in a variety of urban and suburban environments, ranging from Downtown Jacksonville to emerging residential neighborhoods where commuter rail may provide a more convenient and efficient means of travel. The FCCR alignment is proposed to operate on existing rail infrastructure and rights-of-way (ROW) that exists between the two cities. The northern terminus of the FCCR Southeast Corridor is the Jacksonville Regional Transportation Center (JRTC) just west of the downtown core in the LaVilla neighborhood. There are multiple local, regional, and interstate transportation services at this location, as well as investments in the development of the JRTC Station area to make it become a more transit-oriented and livable neighborhood in Downtown Jacksonville. The commuter rail alignment then crosses over the St. Johns River on the existing Florida East Coast (FEC) Strauss Trunnion Bascule Bridge into the Southbank and San Marco neighborhoods, two lively areas near downtown with strong existing commercial and employment hubs. Then the commuter rail alignment travels along the existing freight rail route just west of US 1, with stops at major commercial, retail, employment, or residential nodes. Prominent station locations include a stop at J. Turner Butler Boulevard, Baymeadows Road, the Avenues Mall and Avenues Walk. As the commuter rail service travels through more suburban and rural areas between Jacksonville and St. Augustine, distances between stations can be over eight miles. Station areas in the more rural and undeveloped areas of St. Johns and Duval counties offer the opportunity for large-scale TOD opportunities, such as near CR 210. Distances between commuter rail stations decrease as the FCCR service enters St. Augustine. There are three stations proposed within the urban fabric of its historic Downtown before ultimately terminating service just west of the Flagler Hospital and its associated clinics along SR 312.

The FCCR TOD Study area includes 15 potential station areas along the proposed rail corridor. Each station area was evaluated on natural and built environment, land use, zoning and ownership, and transit and multimodal connectivity to determine TOD opportunities and barriers. TOD station area plans are developed for station areas that have the characteristics needed for successful TOD. At the time the project was authorized, this TOD Study initially envisioned the review of TOD opportunities at four proposed stations (JRTC, Avenues Walk, Racetrack Road, and King Street) along the FCCR corridor, with the potential of adding stations to meet overall accessibility needs along the FCCR corridor. Upon preliminary assessment, additional stations (Baymeadows Road, Palencia, and SR 312) were included as potential stations for detailed TOD analysis. Due to substantial redevelopment in the vicinity of the Racetrack Road Station area, a station initially proposed at Racetrack Road was eliminated from further consideration. A station at CR 210, based on its proximity to Racetrack Road and the availability of undeveloped parcels, was selected as an alternative for creating new TOD opportunities. Additionally, while this study was conducted, the owner of the identified parcel at the proposed King Street Station began planning efforts for the development of the site, thus this study did not advance the analysis of this station location. As a result, seven stations (JRTC, Baymeadows, Avenues Walk, CR 210, Palencia, King Street, and SR 312) were identified for TOD, and a detailed analysis was performed on six, as depicted in Figure 1-3.

Figure 1-3: FCCR CORRIDOR MAP

FCCR TOD

FIRST COAST COMMUTER RAIL TOD STUDY | INTRODUCTION

TOD STUDY PROCESS

a development framework was established for each of the selected stations, and a plan was developed to visualize and test TOD around the station area. The selection process and plan development were informed and guided by inputs and feedback received from the JTA, stakeholders, and the public throughout the engagement process. The last step of the study entailed the creation of a high-level implementation plan, which provides guides for the implementation of TOD as they relate to the regulations, infrastructure, financing, and equity.

The objectives that informed the TOD study process to catalyze developments near the proposed stations and increase future transit ridership around the FCCR stations are as follows: » Develop visions and frameworks to transform existing and create new communities to be livable, walkable, and transit-friendly places » Develop a holistic, corridor-wide TOD strategy while maintaining the unique character of each station area

» Support economic development by applying equitable TOD programs and policies » Create new interagency coordination structures for TOD Implementation » Define how a new high-quality transit service can connect jobs to employment centers and create new economic opportunities while supporting existing resources.

The TOD Study was conducted methodically and systematically to provide a holistic and comprehensive understanding of each of the proposed station areas, as depicted in Figure 1-4. It began with a review of the existing conditions of each of the sites as they pertain to the spatial attributes of the site, multimodal connectivity around it, and market demand. The next step in the study included an evaluation of all proposed stations along the corridor, and the selection of the stations most suitable for TOD. Once the stations were selected,

Figure 1-4: TOD STUDY PROCESS & TIMELINE

FCCR TOD

FIRST COAST COMMUTER RAIL TOD STUDY | INTRODUCTION

TRANSIT - ORIENTED DEVELOPMENT TOD OVERVIEW

MEDIUM TO HIGHER DENSITY DEVELOPMENT

MIX OF LAND USES

COMPACT, HIGH QUALITY PEDESTRIAN ENVIRONMENT

TOD aligns investment in vibrant, pedestrian-oriented, compact, mixed-use development, around quality public transportation stations and corridors. The concept leverages public investment in transit to drive private investment in order to enrich neighborhoods and drive regional growth. TOD often includes a mix of residential, office, and retail supported by neighborhood amenities to become dynamic places where people live, work, and play. TOD creates connected, focused, and mixed-use communities generally denser than the surrounding area, or generally includes higher densities of employment and residential options. The typical arrangements of TOD density is focused at the center of a one-quarter radius area, which is estimated to be around a five minute walk from transit. The characteristics of TOD include an emphasis on the public realm, public space, planning at the pedestrian scale, providing freedom of mobility choice, ensuring development is sensitive to community context, and reducing and/or incorporating shared parking requirements. The form of TOD is highly dependent on context. Density and mix of uses depend not only on the type of transit, but also on the context of the surrounding areas, input from the community, and the value of the land. TOD is adaptive, and the look and feel should consider the desires of the existing community to ensure a good fit and to avoid displacement of current residents. TOD PRINCIPLES Planning and implementing successful TOD involves decisions that directly influence density, land uses, the public realm, multi-modal transportation, urban form, and overall character as a place. There are seven fundamental targets that define the characteristics of successful TOD. While these targets should be applied to create transit-supportive environments around station areas, TOD must be aligned with a neighborhood’s character, the market strength for development, and the community’s aspirations for TOD. These targets are reviewed in detail in Figure 1-5 and include: » Medium to higher density developmentnt » Mix of land uses » Compact, high quality pedestrian environment » Active and vibrant center » Connected network of public spaces

Concentrating a mix of land uses in a TOD provides diversity and variety, allowing people the opportunity to live, work, and play in the same place and encouraging people to use active mobility options like walking to meet their needs regardless of how they arrive at a TOD. A transit-oriented environment efficiently utilizing the land and infrastructure, and has a mix of residential, commercial, restaurant, retail, gathering, and employment uses. The key is to locate the various compatible uses close together, making them easily accessible to each other in order to improve active mobility and transit uses.

Density is about scale, with the goal of creating an active, walkable district that also is compatible with the character of the surrounding neighborhood. TOD has a higher net average density than the surrounding areas, with the highest densities adjacent to the transit station as well as the destinations the transit station serves. Higher densities increase ridership by providing access to more people and creating an active and vibrant place where people want to be.

Transit trips start and end by walking. Vibrant communities, with or without transit, are convenient and comfortable places for pedestrians. The walkshed of a TOD can be enhanced and expanded by designing streets that are inviting and comfortable for people through streetscaping and Complete Streets. The incorporation of these principles like widened sidewalks, natural and on-street parking buffers, high quality lighting, wayfinding, and landscaping help create an inviting and comfortable walking environment.

NON-TOD

Dispersed, auto-oriented density doesn’t leverage transit or provide supportive uses that generate ridership

Single-use buildings without ground-floor activation, typically uncoordinated and not supported of each other

Streets are oriented around single-occupancy automobiles with minimal sidewalk space.

TOD

Density is focused around the transit station and pares down as you move away from the station, increasing access to and activity around the station and generating ridership.

Mixed-use buildings with active ground floors that open up to the street and activate the sidewalk located next to transit.

Street space is redistributed to be inclusive of all modes, ensuring pedestrians and cyclists have adequate space for an active public realm, and street lanes accommodate transit, automobiles, loading, and parking needs.

» Multimodal connectivity » Limited, managed parking

Figure 1-5: TOD PRINCIPLES

FCCR TOD

FIRST COAST COMMUTER RAIL TOD STUDY | INTRODUCTION

ACTIVE AND VIBRANT CENTER

CONNECTED NETWORK OF PUBLIC SPACES Public spaces and plazas at the immediate area around a station complement the clustered mix of uses around transit, beautifying an area. Public areas are also used in a multitude of ways, including civic, recreation, wellness, and gathering uses, all improving the user experience. These uses are just as vital to a healthy, dense, diverse community as the mix of land uses present around the station, and also enhance many of those land uses. Having a series of connected public spaces also facilitates easy mobility in, around, and to TOD and its associated high-quality pedestrian environment.

MULTIMODAL CONNECTIVITY

LIMITED, MANAGED PARKING

Transit is particularly successful in areas with defined centers, making an 18-hour place by offering multiple attractions and reasons for people to frequent the area through the day and into the night. Having a vibrant mix of uses near transit is important for placemaking, but it must also have a sense of community so that people can choose to gather there. A cohesive, active center can be created by planning comprehensive TOD districts rather than individual projects.

Successful TOD allows people to arrive at or depart from a destination without needing to drive. This requires multimodal connectivity at or near the TOD center in the form of transit, taxi, shared mobility, bicycle, or other forms of transportation that allow for easy and comfortable transfers to/from transit. Complete Streets design principles encourage the use of transit and improve mobility for all users of the street. Multimodal connectivity allows the catchment area of the TOD to expand by enhancing accessibility to a TOD without needing to drive and connecting the first-mile/last-mile. Areas of multimodal connectivity also help create an active area that leads to a vibrant center.

Parking is a persistent constraint for TOD. Abundant and inexpensive parking motivates people to drive rather than use transit. By creating a more limited parking supply and moving parking from surface parking lots to parking structures around TOD, residents, shoppers, and employees are encouraged to use transit and walk. Managed parking also can enhance building frontages, and activate publicly available spaces.

NON-TOD

Non-active uses limit activity, and the lack of landscaping discourages users from interacting with the space.

Isolated public spaces with minimal connections to their surroundings.

Vehicles are prioritized over other modes, creating unsafe environments for non-motorized users.

Parking is placed at the edge around a development, creating large unwalkable lots and encouraging driving.

TOD

Active uses and improved landscaping bring life to the plaza, encouraging passers by and transit users to engage the space. The improvements establish the transit center as a local activity node and encourages transit use.

Connected spaces integrated into the streetscape and nearby developments that encourage active and passive recreation, providing human-scale connections through the area.

Street space is balanced to accommodate many mobility options, expanding and creating designated right of ways for pedestrians and cyclists, and facilitating transit service.

Buildings front the street, activating the sidewalk and providing direct entrances for pedestrians. Parking is managed across the development and tucked into the back to encourage access by other modes.

FIGURE 1-5: TOD PRINCIPLES (CONTINUED)

FCCR TOD

FIRST COAST COMMUTER RAIL TOD STUDY | INTRODUCTION

TOD BENEFITS

GENERATE ECONOMIC OPPORTUNITIES TOD can result in economic programs and policies that promote increased opportunity for residents and businesses. TOD provides an environment that attracts an increased quantity and quality of retail to both improve quality of life for existing residents and potentially attract additional residential and commercial development. Equitable TOD strategies focus on providing the environment to support land use programs that will generate jobs for the workforce in this corridor. Working with local land owners, business owners, and developers, this plan identifies key opportunities to strengthen and complement existing industries, and proposes the land use programs in the station areas to accommodate them. TOD initially creates a number of local jobs during construction. Additionally, TOD can attract and retain younger workers, as younger workers seek to live and work in areas where there are amenities such as restaurants, cafes, entertainment options, and access to transit – all of which are elements of TOD. Implementing TOD that improves walkability and safety, enhances schools and parks, and retains affordable housing options and key services like childcare will attract both a younger and more experienced workforce. FOSTER COLLECTIVE VISION The communities along the FCCR corridor will benefit from the planning process, which brought together stakeholders from all interest areas, including residents, business owners, elected officials, economic development organizations, local staff, community agencies, developers, and others to form a common vision for the future TOD in the region. This process also educates and informs local stakeholders to be better prepared for the implementation of the future transit infrastructure. Kick-starting momentum, interest, and investment in the corridor will help create long- lasting partnerships between local agencies and private developers.

PROVIDE GREATER LIFESTYLE CHOICES TOD can provide more transportation and housing choices, increase the flexibility for residents to shop, work, and entertain themselves close to their homes, provide options for active lifestyles for a convenient, affordable, and active community, and facilitate accessibility to all ages and income levels for the communities located along the FCCR corridor. TOD also promotes an active lifestyle by enhancing the environment for pedestrians and bicyclists. By improving community amenities and creating more destinations, TOD creates a sense of community and place that can cater to everyone.

TOD is a method to maximize the potential of both premium transit, and the land around it. Nationally, the market for TOD is strong. The Center for Transit- Oriented Development indicates that 81% of millennials and 77% of Baby Boomers prefer to live in walkable, active communities; and further indicates that by 2030, 25% of people in the rental and housing market will be seeking housing near transit. TOD reduces the number of automobile trips made and lessens transportation costs, resulting in an increase in discretionary income, allowing people to have more money to spend in the community. Communities can make significant progress towards improving their quality of life and meeting smart growth goals by linking transit and land use. TOD increases mobility choice and access to employment and services while reducing transportation costs, provides health benefits by making walking and biking more convenient and comfortable, and generates economic development activity around stations.

The key benefits of TOD include the following:

INCREASE TRANSIT RIDERSHIP To secure funding, it is crucial to demonstrate that the new system will have enough ridership demand. Implementing TOD around the FCCR corridor can provide an environment that attracts more residents, workers, high quality jobs, and public and private investments to the station areas, increasing the potential ridership for the transit system. Implementing TOD along the proposed rail corridor will also help the project compete successfully for future funding for transit infrastructure implementation by meeting Federal Transit Administration (FTA) evaluation criteria. SUPPLY ALTERNATIVE TRAVEL METHODS TOD can provide alternative travel methods to reach new and familiar destinations. TOD also supports active mobility by providing a connected Complete Streets network. Residents will have reliable and direct access to other modes of transit, which will reduce automobile dependence, daily vehicle trips per household, ultimately improving the air quality for residents in and around Jacksonville’s downtown by reducing CO² emissions per capita.

Figure 1-6: VISUALIZATION OF A TOD STATION AREA

FCCR TOD

FIRST COAST COMMUTER RAIL TOD STUDY | INTRODUCTION

HOW TO USE THIS STUDY This report is based on an assessment of available data from various plans, Geographic Information Systems (GIS) resources, a review of existing plans, policies, and regulations in place, input from the Stakeholder Advisory Group, stakeholders, and public officials, input from participants at two community workshops, input

from presentations at professional and community organizations, and a professional assessment from subject matter experts. The report serves as a tool for future planning and economic development. The JTA and partner agencies will utilize the analyses and considerations assembled through this TOD planning

process to make informed real estate decisions concerning property and economic development around stations. This TOD Study provides the first holistic vision for future development around the FCCR corridor that will leverage transit investments. As a basis for comparison, TOD is evaluated for 7 select station areas

to better understand what the reasonable capacity for TOD could be in an ideal market. The report is organized into 6 chapters, including this Chapter 1, and the additional five chapters are presented in the figure below:

CHAPTER 3: EXISTING CONDITIONS

CHAPTER 2: COMMUNITY ENGAGEMENT

CHAPTER 3: STATION AREA ANALYSIS

FIRST COAST COMMUTER RAIL TOD | TOD IMPLEMENTATION

CR 210 INFRASTRUCTURE OVERVIEW

to address specific concerns that will improve sustainability and livability for all users.

new mixed-use residential units, provide open spaces to accommodate recreation and create a walkable community with streetscape improvements. The suggestions and comments provided below aim

The redevelopment area around the CR 210 station will densify existing underutilized parcels and develop a new residential community. The Transit Oriented Development (TOD) framework proposes to create

PRIORITY INFRASTRUCTURE INVESTMENT/STRATEgY

DESCRIPTION

APPLICATION/ACTION PLAN

AgENCY COORDINATION

PRIORITY

The area surrounding the CR 210 station consists of low-density suburban residential and commercial uses. There is a considerable amount of available land for future development. The TOD proposes to add retail, services, office spaces, multifamily residential units and open spaces. The development area will require a detention and/or retention pond areas. It is recommended that water features be incorporated within the design. It is also recommended that available green space be utilized for parks and amenities.

The County, Developer, and JTA should coordinate plans for redevelopment of the area as proposed in the Transportation Oriented Design where feasible

St. Johns County, Developer, JTA

Public Space

It is recommended that adequate lighting for pedestrians be included throughout the development and the station. Traffic calming is also recommended to enhance safety and improve mobility. It is recommended that enhancements such as mini-roundabouts, speed tables, narrow streets, street trees, wider sidewalks, crosswalks and ADA ramp upgrades, signage, and lighting be included.

A traffic study will be required for each recommended improvement (road diet, mini- roundabouts, pedestrian hybrid beacons or rapid rectangular flashing beacons).

Developer, St. Johns County, Florida DOT, Permitting Agencies

Pedestrian Connectivity

The developer/JTA should coordinate all proposed roadway/infrastructure improvements with the local municipality, Floridia DOT (as applicable) and required permitting agencies. A traffic study is required of roadway improvements with proposed operational changes

It is recommended that enhancements such as mini-roundabouts, speed tables, narrow streets, street trees, wider sidewalks, crosswalks and ADA ramp upgrades, signage, and lighting be included. In addition, a traffic study should be conducted to evaluate the need of additional traffic controls such as Pedestrian Hybrid Beacons or Rapid Rectangular Flashing Beacons to enhance pedestrian safety.

Developer, St Johns County, Florida DOT, Permitting Agencies

Roadway/Infrastructure Improvements

FIgURE 1-4: CR 210 INFRASTRUCTURE NEED

DRAFT

FCCR TOD

CHAPTER 4: TOD PERFORMANCE

CHAPTER 5: TOD VISIONING

CHAPTER 6: TOD IMPLEMENTATION

Figure 1-7: DOCUMENT CHAPTERS

FCCR TOD

2.1 COMMUNITY & STAKEHOLDER ENGAGEMENT OVERVIEW.....................................25 COMMUNITY & STAKEHOLDER ENGAGEMENT.................................................................26 2.2 COMMUNITY WORKSHOP 1 ��31 DUVAL COUNTY VIRTUAL MEETING....................................................................................32 ST. JOHNS COUNTY VIRTUAL MEETING.............................................................................34 2.3 COMMUNITY WORKSHOP 2 ��37 DUVAL COUNTY WORKSHOP...............................................................................................38 ST. JOHNS COUNTY WORKSHOP.........................................................................................40

2.1 COMMUNITY & STAKEHOLDER ENGAGEMENT OVERVIEW

Conversations surrounding the planning of commuter rail in Northeast Florida have circulated among stakeholders and throughout communities along Florida’s first coast for over a decade. Transit-Oriented Development (TOD) concepts were introduced in prior commuter rail studies as potential rail station areas were identified for consideration along proposed rail corridors. This First Coast Commuter Rail TOD Planning Study (TOD Study) advanced the dialogue about potential TOD opportunities at select station areas. This TOD Study provided the community with a distinct focus on the various forms of community placemaking involved in TOD, from site conditions and readiness to potential land use integration. This chapter summarizes project activities undertaken to share TOD concepts for the specific station areas and describes the strategies implemented to engage stakeholders and community participants in a dialogue to guide future station area planning and design.

FIRST COAST COMMUTER RAIL TOD STUDY | COMMUNITY ENGAGEMENT

COMMUNITY & STAKEHOLDER ENGAGEMENT OVERVIEW

PROJECT WEBSITE Creating an identity for the project through branding standards, including a project logo, helps the public to easily identify project-related information. A project logo depicting images of the connection between the two cities was developed. A project website, www.jtafcrtod. com, as shown in Figure 2-2, was also established to share project information and updates.

Early identification of key stakeholders, the formation of a Stakeholder Advisory Group, designing an online survey, and establishing a plan for conducting multiple community workshops, both virtual and in-person, were key components of the public outreach plan implemented for the TOD Study. Following a review of the tools and techniques used to implement the public engagement component of the project, the results of the specific outreach activities are reviewed and summarized in this chapter.

Creating opportunities for community leaders and the public to be involved in transportation investment planning, development, and decision-making processes is critical to project success. Recognizing the importance of stakeholder interaction, the JTA implemented multiple community engagement activities to reach broad and diverse audiences along the 38-mile project corridor, from the City of St. Augustine, north to Downtown Jacksonville. PUBLIC INVOLVEMENT PLAN At the outset of the TOD Study, a Public Involvement Plan was developed to document strategies to engage, educate, and empower stakeholders and the public in the planning process. It is critical that citizens understand the WHAT, WHY, and HOW of the project in order to provide informed feedback to the project team and agency leaders. The community engagement goals are presented in Figure 2-1. An initial step in the development of the Public Involvement Plan was the identification of target audiences, such as residential communities, major

businesses, civic organizations, and educational institutions, along the project corridor, as well as local and state government agencies having jurisdiction within or adjacent to the project corridor. Representatives of these organizations are included in a comprehensive Stakeholder List, updated throughout the project, and then used for public notification of project activities.

Establish strong relationships with stakeholders through open and responsive communication

Proactively provide updates and information through a variety of methods to increase reach

Educate stakeholders and the public about the FCCR project

Offer convenient opportunities to provide input through both virtual and in- person means (if possible)

Reach disadvantaged stakeholder groups through accessible content and community leaders

Figure 2-1: PUBLIC ENGAGEMENT GOALS

Figure 2-2: IMAGE OF PROJECT WEBSITE: WWW.JTAFCRTOD.COM

FCCR TOD

FIRST COAST COMMUTER RAIL TOD STUDY | COMMUNITY ENGAGEMENT

ONLINE PUBLIC ENGAGEMENT

STAKEHOLDER ADVISORY GROUP At select phases of the TOD Study, representatives from various planning organizations, transportation industry, and government agencies, including public and private sector decision-makers, were invited to participate as part of a Stakeholder Advisory Group (SAG). This technical working group provided valuable insight into industry requirements and community infrastructure needs.

An online public engagement platform, Publicinput. com, was used to gather and document public feedback on the project. An online public opinion survey, implemented through Publicinput.com, was developed to seek responses to questions related to decision-making factors to better inform the project team regarding station area development. The live interactive survey included opportunities for the public to provide comments regarding land use preferences around proposed stations, mobility options, and modal connectivity. Specific feedback obtained through the survey is summarized in subsequent sections of this chapter. Figure 2-3 depicts the public participation tracked through the online platform, from project launch in September 2021 through September 2023. Of those who responded to the survey during this time period:

» 56% Commute to work at least three days per week » 21% Work from home at least three days per week » 20% Retired/Not Employed at the time » 3% Others Additional highlights of specific public feedback obtained during the community workshops are included in Sections 2.2 and 2.3.

» St. Johns County Sheriff’s Office » Florida East Coast Railroad (FEC) » Northeast Florida Builders Association

One-on-one interviews were conducted throughout the TOD Study to gather feedback from SAG members and additional local and county government planners and agency personnel. An ongoing dialogue with stakeholders was essential to monitor familiarity with the project, further examine community priorities, and other general improvements to be considered as the proposed station areas are reviewed. Example interview questions included: » How familiar are you with the project? » What questions/concerns do you have regarding development around the proposed stations? » What features or services are needed to make these stations successful? » How likely are you to use this service? A virtual meeting specifically for SAG members was held on June 29, 2022. This meeting was attended by 14 people. A presentation provided an update on project activities and the virtual platform provided a forum to gather important input from SAG members regarding the station area development concepts and future TOD opportunities. The overall TOD Study timeline, including the community outreach, is shown in Figure 2-4.

Introductory one-on-one interviews were conducted with SAG members prior to the launch of the community- wide workshops to obtain critical input regarding development challenges and opportunities surrounding the proposed transit station areas. Organizations represented on the SAG included:

» City of Jacksonville » City of St. Augustine » St. Johns County » Florida Department of Transportation (FDOT) » North Florida TPO » Smart North Florida » JaxPort » Duval County Public Schools » St. Johns County Schools » Jax Chamber » JAXUSA Partnership » Jacksonville Housing Authority » Jacksonville Sheriff’s Office

Tracked PublicInput Survey Participation

PARTICIPANTS 434

RESPONSES 228

COMMENTS 1,355

SUBSCRIBERS 1,401

Engagement statistics as recorded on the Publicinput.com platform from the Workshop 1 & 2 digital survey.

Figure 2-3: PUBLIC ENGAGEMENT PARTICIPATION (AS OF SEPTEMBER 2023)

COMMUNICATION TOOLS AND MEDIA Email and online notification have been the primary tools for communication with agencies, community leaders, stakeholders, and the public. A stakeholder list comprised of more than 1,000 names and organizations, assembled through prior similar studies and JTA

Two sets of community workshops were conducted for the TOD Study. In order to encourage community participation, prior to each workshop, the JTA and project team members reached out to various groups and organizations through email, telephone calls, and social media posts. Additionally, news media coverage on local TV networks provided widespread notification of the TOD Study and upcoming community meetings.

COMPLETION OF STUDY

events, was used to distribute information regarding the community workshops and online survey opportunities. JTA’s communications team also used social media platforms, such as LinkedIn and Twitter, to publicly notify community meetings.

SAG MEETING

Figure 2-4: IMAGE OF PROJECT TIMELINE

FCCR TOD

2.2 COMMUNITY WORKSHOP 1

The first set of community workshops was conducted virtually In February 2023. The focus of the community workshops was to provide an overview of the TOD Study and highlight key findings from existing conditions analysis and review of transportation infrastructure surrounding proposed station areas. Since the corridor spans approximately 38 miles, one community workshop was held to address the stations in Duval County, and a second community workshop was held to address the proposed stations in St. Johns County. The meetings were advertised via the contact list of 1,000 stakeholders, and two reminder emails were sent prior to the public meetings. Due to the virtual format, public comments were collected through the chat function and then addressed during the Question and Answer session at the end of the meeting

FIRST COAST COMMUTER RAIL TOD STUDY | COMMUNITY ENGAGEMENT

DUVAL COUNTY VIRTUAL MEETING FEEDBACK SUMMARY

ONLINE SURVEY SUMMARY One of the survey questions asked participants to identify three words to describe their vision for TOD at the proposed station areas. Figure 2-6 illustrates an example of the keywords conveyed by survey respondents during the Duval County workshop for

More than 120 people participated in the community workshop held on February 22, 2023, to discuss the proposed stations along the project corridor within Duval County. Using a PowerPoint presentation, the project team described project development components, including project background, purpose, a

review of TOD concepts, and a discussion of the existing conditions surrounding the proposed station areas. The station areas discussed included JRTC, Baymeadows, and Avenues Walk Station areas. Select comments shared during the meeting are presented in Figure 2-5.

the corridor. Figure 2-7 depicts an image of the online interactive map that recorded participant responses to identifying the most needed development and land uses along the corridor and at the station areas.

Select Comments Shared During the Virtual Meeting (February 22, 2023):

“When you spoke about transportation to the stations, you mentioned bike connections. I’ve been concerned about the rise of unprotected bike lanes in Jacksonville and would like to advocate for protected bike lanes going to the stations if thats possible. I always ask our politicians, “Would you let your child bike on that bike lane? If not, then it’s not complete.” “How will this rail go through the San Marco area specifically between Hendricks Avenue and St. Augustine Road.? Any station planned in the San Marco area to add to an accumulation of people in one spot for a long period of time?”

Figure 2-6: THREE-WORD TOD VISION DESCRIPTION (DUVAL COUNTY)

Figure 2-5: VIRTUAL MEETING COMMENTS

Figure 2-7: DESIRABLE DEVELOPMENT ALONG THE CORRIDOR (LEFT) & BAYMEADOWS STATION AREA (RIGHT)

FCCR TOD

FIRST COAST COMMUTER RAIL TOD STUDY | COMMUNITY ENGAGEMENT

ST. JOHNS COUNTY VIRTUAL MEETING FEEDBACK SUMMARY

ONLINE SURVEY SUMMARY

Approximately 55 people participated in the virtual community workshop on February 28, 2023 to discuss the proposed stations along the project corridor within St. Johns County. The project team reviewed project components through a PowerPoint presentation with

a focus on proposed stations at CR 210, Palencia, King Street, and SR 312. Figure 2-8 presents several public comments captured as part of the meeting.

The online survey accompanying the workshop presentation solicited feedback on the desirability of land use types and connectivity features. The results of the “three-word” vision for TOD conveyed during the St. Johns County workshop are depicted in Figure 2-9.

Figure 2-10 illustrates the participant responses to the most needed development and land uses along the corridor within St. Johns County, and conveys comments for the station areas.

Select Comments Shared During the Virtual Meeting (February 28, 2023):

“Have you considered a complimentary circulator bus with multiple stops along the route with drop-offs at rail stops? That could be a good way to indicate future rail stops.” “I understand this is a commuter rail but is there potential expansion with Brightline/SunRail as an intercity rail?” “As some of the previous comments, I would like to encourage a systems approach to support a broader public transportation system in Florida - linking to other public systems both public and private (Brightline). Also, it does not appear that there is a stop between Palencia and King Street. There are two master planned communities between the two stations that could benefit from the commuter rail.”

Figure 2-9: THREE-WORD TOD VISION DESCRIPTION (ST. JOHNS COUNTY)

Figure 2-8: VIRTUAL MEETING COMMENTS

Figure 2-10: DESIRABLE DEVELOPMENT ALONG THE CORRIDOR (LEFT) AND FOR CR 210 STATION AREA (RIGHT)

FCCR TOD

2.3 COMMUNITY WORKSHOP 2

The second set of community workshops, one in each county, were held through an in-person format in August 2023. The focus of these workshops was to further examine TOD concepts in neighborhood planning around the FCCR proposed stations. Using the TOD typologies developed through other TOD planning and visioning activities conducted since the initial community workshops, these community meetings were designed to present specific TOD options for each station, then gather community feedback and ask, “Did we get this right?” At each Community Workshop, project team members used a PowerPoint presentation to discuss the TOD station framework at each proposed location, which included station classification, potential modifications to traffic circulation and road network, open space options, and the mix of proposed land uses. Media coverage of the upcoming community workshops during the days prior to the workshops was provided by local TV networks.

FIRST COAST COMMUTER RAIL TOD STUDY | COMMUNITY ENGAGEMENT

DUVAL COUNTY WORKSHOP WORKSHOP SUMMARY

ONLINE SURVEY SUMMARY Workshop attendees were provided with a QR code to link to the online survey. Approximately 100 comments and opinions were provided through the online survey. Many of the online survey comments addressed support for rail, commenting “Let’s get it done!” However, many reference the need for the rail to serve a transportation hub and connect to the Emerald Trail and the area’s major activity centers, where large numbers of people want or need to go, including the sports venues and the existing Amtrak station. Comments also reflect that the proposed rail needs to be accessible to those individuals who need it the most. While many support the rail corridor concept, others do not support the investment, citing historical investments that have not worked, and referencing that there are other transportation needs in the community and concerns about the induced sprawl that may occur.

A Community Workshop was held on August 8, 2023, in the evening, at the JTA’s Boardroom in the JRTC in Downtown Jacksonville. Invitation e-blasts and emails were sent to the stakeholder list beginning on July 26, then three additional notifications were sent up until the day before the workshop. This workshop presented TOD opportunities at the JRTC, Baymeadows, and Avenues Walk proposed station areas along the FCCR corridor. Approximately 40 people

attended the workshop, and twelve public comments were collected during the workshop. Figure 2-11 presents select public comments from the workshop. Several local TV news networks were all represented at the workshop. Following the presentation, members of the public had the opportunity to view maps of the proposed station areas and meet with the JTA personnel and the project team.

Select Questions & Comments from Workshop Participants (August 8, 2023):

“How does this TOD framework reduce traffic congestion at Baymeadows?” “Why was Baymeadows selected versus JTB?” “We’re so excited for Real Transit. We have great opportunities here. Why not go for a light rail corridor for TOD opportunities? How does TOD vary in a Light Rail vs. Commuter Rail?” “Is there a multi-family element to this?”

Figure 2-11: CORRIDOR WORKSHOP MEETING COMMENTS, AUGUST 8, 2023

Figure 2-12: COMMUNITY WORKSHOP, JRTC, AUGUST 8, 2023

FCCR TOD

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