Two ordinances to boost infill development of multifamily housing in Jacksonville are off the table, and provisions to increase stock of such “missing middle” properties have been removed from another piece of legislation.
After the City Council Land Use and Zoning Committee essentially hit the reset button on the missing middle proposals during its April 1 meeting, committee member Raul Arias and Mayor Donna Deegan’s office said in separate statements that they would continue to work on the issue.
“While there is a need to address the missing middle, this will take more time and dialogue from Council to address,” Arias said in a text message.
“The conversation has started, and I’ll be holding a meeting with the Planning and Development Department in two weeks to discuss how we can create a new category which will address missing middle in a way that encourages smart development with consideration of our neighbors and integrity of our neighborhoods.”
Deegan’s office reported that the Land Development Regulations Update Committee, a volunteer advisory committee that examined land use and zoning regulations, recently wrapped up its work. Missing middle housing was among the issues the committee studied.
“The LDR committee has been working for over a year to develop recommendations for smart development that preserves neighborhood character,” Phil Perry, the city’s chief communications officer, said in an emailed statement.
“They just completed their proposal and will be submitting it to the planning department and mayor’s office for review before it becomes legislation for the city council. These recommendations will consider existing infrastructure, density, flood maps, CRAs, and zoning overlays. There will be ample opportunities for the community to weigh in on this plan.”
At the April 1 meeting, the LUZ Committee approved the withdrawal of Ordinances 2024-0868 and 0869, which would have modified land use and zoning regulations to allow for the construction of duplexes, triplexes and quadplexes as infills in some areas, including established single-family neighborhoods.
Council member Rory Diamond, who introduced the ordinances, moved for their withdrawal without comment. The committee voted 7-0 to withdraw them.
In other action, the committee approved Ordinance 2025-0090, a larger land use and zoning bill, but with amendments by Arias and members Ken Amaro and Joe Carlucci that stripped out elements allowing for greater infill development of multifamily housing. With that vote, the ordinance is on track toward a full Council vote without the missing middle provisions.
All three ordinances drew opposition from residents and some Council members, who raised concerns that they would leave neighborhoods vulnerable to development that would be incompatible with its surroundings and would overtax infrastructure such as roads and drainage systems.
More than a dozen residents turned out in opposition to the missing middle legislation during the LUZ meeting, applauding when Diamond’s ordinances were withdrawn.
“You know, we usually don’t allow that, but I think this time it’s actually warranted,” said committee Chair Kevin Carrico, referring to Council rules that bar displays of support or opposition from the public.
During discussions of Diamond’s ordinances in earlier Council committee meetings, some District Council members said they would exempt their districts from being included in areas where restrictions on development of missing middle housing would be relaxed.
Among the Council members who expressed concern about the ordinances were Carrico, the Council’s vice president, Carlucci, Amaro and Arias.
Arias’ amendment on Ordinance 2025-0090 removed several policy statements that were added by city Planning and Development Department staff, including creating a “missing middle overlay area” in portions of the city, establishing a goal of doubling the amount of multifamily zoned land in the city, permitting corner-lot duplexes in all residential zoning districts and allowing low-density multifamily development in areas zoned Residential Low Density.
Diamond and other supporters of missing middle development say it is crucial to providing more housing options for Jacksonville’s growing population. Missing middle is described as housing types that fall between single-family homes and large apartment complexes.
Perry’s statement acknowledges the need for relief from rising housing costs in Jacksonville.
“Jacksonville is one of the fastest growing cities in the country, and we do not have the housing supply to support this incredible growth. If we don’t act now on providing housing density options, our young people will be stuck with high rent prices and will never be able to save for a down payment to buy their first home. And their parents and grandparents will not be able to one day sell their homes for the true value because young families won’t be able to afford it.”
Proponents also argue increasing the stock of multifamily residential properties will help keep the cost of housing in check. In addition, they say, higher-density infill development is needed to curb suburban sprawl and protect natural spaces within Duval County.
Diamond did not immediately respond when asked for comment on his ordinances.
As for Ordinance 2025-0090, it was deferred March 31 by the Council Neighborhoods, Community Service, Public Health and Safety Committee. The legislation would next go before that committee April 14 unless Council President Randy White discharges it from committee, in which case it could go before the full Council as soon as April 8.