01 Growth Management

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Jacksonville Community Council, Inc. GROWTH MANAGEMENT REVISITED A Report to the Citizens of Northeast Florida ã Summer 2001 STUDY Summary Duval County is growing. Residents have children, and people and businesses arrive daily. Growth management is the effort of the local and regional community to preserve the quality of life while accommodating population and economic growth. JCCI released its first Growth Management Study in 1984. That study looked at the mechanisms necessary to maintain
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  STUDY JacksonvilleCommunityCouncil, Inc. GROWTHMANAGEMENTREVISITED A Report to the Citizens of Northeast Florida ã Summer 2001  Growth Management Revisited 2001 2 SummaryHighlights Duval County is growing. Residents have children, and people and businesses arrive daily. Growth management is the effortof the local and regional community to preserve the quality of life while accommodating population and economic growth.JCCI released its first Growth Management Study  in 1984. That study looked at the mechanisms necessary to maintainand enhance the quality of life in Jacksonville in the face of predicted growth. Among other recommendations, it calledfor the adoption and enforcement of a Comprehensive Plan, increased media coverage of growth management, andincreased citizen awareness and involvement in the growth-management process.In 1985, Florida passed a Growth Management Act, creating a statewide system for enforcing growth management. In1990, Jacksonville adopted its own Comprehensive Plan. In 2000, the State of Florida began review of its growth-man-agement regulations, and the 2001 Growth Management Study Commission report called for increasing local responsi-bility for growth management.In this study, JCCI examines the outcomes of Duval County’s growth-management efforts over the last fifteen years andidentifies steps to improve implementation of growth management in Duval County.The study committee explored how legislative mandates, community goals, and other factors have influenced growthmanagement; examined the effectiveness of past and current strategies; reviewed the regional implications of growth-management efforts; and discussed how growth-management approaches from across the country might be adapted tolocal efforts.This study accepts current projections that growth will continue in Duval County. For the purposes of this study, growthmanagement refers to programs and policies intended to improve or maintain the quality of life by influencing the rate,location, design, and quality of development, including new development and reuse of current assets. It is not synonymouswith stopping growth. Major Concerns State growth-management efforts have increased the cost of development while creating unintended negativeconsequences for local communities.The natural environment traditionally has been giveninsufficient consideration in growth-management decisions.The complexity, cost, and time-consuming nature of theDevelopments of Regional Impact (DRI) processdis-couraged its use.Historically, growth-management efforts in Duval Countyhave focused more on new growth than on redevelopmentof existing neighborhoods.Duval County lacks a comprehensive methodology fordetermining the full costs and benefits to the community ofproposed development. Recommended Solutions Restructure the Florida growth-management process bydelegating responsibilities and authority to appropriate levelsof government.Protect the natural environment by including assessment ofdevelopment impacts on the natural environment indecision making.Streamline and simplify the DRI process, transferring reviewauthority to the Regional Planning Councils.Encourage and fund coordinated efforts to revitalize olderneighborhoods. Develop and use a process to determine the full costs andbenefits of proposed developments, including tax-payer impacts and impacts on the natural environment.  Jacksonville Community Council Inc. Table Of ContentsMission Statement Jacksonville Community Council Inc. is a nonprofit, nonpartisan, broad-based civic organizationwhich seeks to improve the quality of life in Northeast Florida by positive change resulting frominformed participation of citizens in community life, through open dialogue, impartial research,and consensus building. FINDINGS 4 Introduction 4 Community goals 4 Impacts of growth on Duval County 5Population and economic growth5Factors affecting development patterns6Resulting development patterns7Resulting community impacts8 Transportation  8 Environmental impacts  8 Growth distribution  9 Growth management tools and theireffectiveness 9State regulation9 Areas of Critical State Concern  9 Developments of Regional Impact  10 Comprehensive Planning  10 Concurrency  10 Growth Management StudyCommission  11Local efforts11 Comprehensive Planning  11 Zoning  12 Land acquisition  13 Cover design and layout by Angela Edwards On the cover: Map of Duval County, Florida. See page 7 for legend. Infrastructure  13 Targeted economic incentives  13 Fair-share agreements  13 Downtown redevelopment  14 Neighborhood and sector plans  14 Brownfields  14 Visual environment  14 Historic preservation  14 Affordable housing  15 Regional coordination  15Approaches from other communities15 Indianapolis, Indiana  15 Portland, Oregon  16 Charlotte, North Carolina  16 Rhode Island  16 Maryland  16 CONCLUSIONS 17 RECOMMENDATIONS 19 RESOURCE PEOPLE 21 REFERENCES 22 COMMITTEE MEMBERS 233  Growth Management Revisited 2001 4 Findings INTRODUCTION The goal of growth management is to accommodate populationand economic growth while also maintaining or enhancing thecommunity’s quality of life, all without jeopardizing individualrights. Successful growth-management efforts result in a vibrantcommunity with a healthy environment, viable transportationchoices, and shared economic prosperity, without undue stresson taxpayers. Accomplishing these goals was already difficultbefore the release of JCCI’s 1984 Growth Management Study  ,and it will continue to be complex and difficult in the future.Growth management is a balancing act—balancing the right ofproperty owners to develop their properties as they wish withthe right of the community to influence the consequences ofdevelopment for overall community benefit. Growth manage-ment is often debated in terms of what others should do—ridethe bus, live in downtown apartments, or leave the land in itspristine natural condition—so that I can continue to enjoy useof my personal car and my house in the suburbs. Growthmanagement also concerns the rights of those who already livein a community to enjoy its quality of life, versus the rights ofothers to move in and join them.Balancing competing needs is an active process involvingtradeoffs, as this description demonstrates:Growth management is active and dynamic …; it seeks tomaintain an ongoing equilibrium between developmentand conservation, between various forms of developmentand concurrent provisions for infrastructure, between thedemands for public services generated by growth and thesupply of revenues to finance those demands, andbetween progress and equity. Douglas R. Porter, Managing Growth in America’s Communities, 1997  Finding the right balance and maintaining the quality of life,under the pressures of population and economic growthcurrently being experienced in Duval County and NortheastFlorida, requires revisiting JCCI’s 1984 study and efforts sincethen to discover solutions for tomorrow’s growth based on 17years of experience. The Florida legislative debate in 2000-2001 about the proper roles of state and local governments ingrowth management provided an even more urgent context fordetermining how Duval County can best improve implementationof its own growth-management efforts. While this study concentrates on Duval County and the c o n s o l i d a t e dJacksonville-Duval County government, growth and its impactsare occurring throughout the metropolitan region. Thereforethis study examines Duval County’s growth-management effortsin a regional context.This study defines growth management as programs and policiesintended to improve or maintain the quality of life by influencingthe rate, location, design, and quality of development, includingnew development and reuse of current assets. It is notsynonymous with stopping growth. COMMUNITYGOALS Concerns about the impacts of growth have spurred efforts overthe years to articulate community goals for growth managementin Duval County and Northeast Florida. These goals are remark-ably consistent in their visions of desired growth-managementoutcomes.Over the past quarter-century, a number of gatherings of citizens under public and private auspices have articulated goals andexpectations about the quality of life in Duval County andNortheast Florida. These statements have served as guidingprinciples to define desired outcomes of growth-managementefforts.ã The Amelia Island Conference of business and civic leadersin 1974 listed as a priority the adoption of a comprehensiveland-use plan with emphasis on recreation areas, conservation,and preservation, and establishment of standards for water-front development to ensure public access to the river andocean.ãJCCI’s Growth Management Study (1984) outlined communitygoals for growth management, including natural-resourceprotection and citizen involvement.ãT h e First Coast Planning Conference convened by theJacksonville Chamber of Commerce (1987) created a regionalvision for 2005, calling for development approaches that wouldpreserve the environment and enhance the quality of life.ã The City of Jacksonville 2010 Comprehensive Plan (developed in 1990) included over 1,200 goals, policies, and objectivestomanage growth. Its 1997 Evaluation and Appraisal Report confirmed the same goals, policies, and objectives, andnotedthe City’s progress in accomplishing them.ãJCCI’s Quality of Life Indicators Targets for 2000 (set inFindings represent the information received by the committee. They are derived from publishedmaterials, from facts reported by resource people, and from a consensus of the committee’sunderstanding of the opinions of resource people.
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