As Jacksonville advances plans for a University of Florida graduate campus in LaVilla, a proposed land swap involving Riverfront Plaza has ignited fierce debate—pitting visions of downtown revitalization against calls for transparency, community-oriented design, and long-term public benefit.

At the heart of the controversy lies a decision facing the City Council: whether to purchase the Interline Brands building outright for up to $8 million or exchange a key slice of Riverfront Plaza in a deal with private developer Gateway Jax, who bought the Interline site in late 2024. In return, Gateway Jax promises to build a 17-story tower with a hotel, condos, restaurants, and public amenities on a 1.26-acre pad at the northeast corner of the riverfront park.

A Plaza Shaped by Politics and Process

Riverfront Plaza, the former site of the Jacksonville Landing, has long been a symbol of the city’s struggle to balance public interest and private development. After demolishing the Landing in 2019, the city initiated a design competition in early 2021 under then-DIA CEO Lori Boyer. The competition was narrowly administered by Boyer and Parks Director Daryl Joseph, with Perkins & Will ultimately selected for a park plan that included two “required” private development pads.

Though public input played a role early in the process, critics say there was little transparency after the design firm was selected. One development pad was later moved closer to the river to accommodate a proposed waterside restaurant—an expensive and controversial shift made without a DIA Board vote. Similarly, public amenities such as the now-absent LERP sculpture, and playgrounds were reconfigured or eliminated with little explanation.

Despite these changes, Phase I of the park proceeded and is currently under construction. Phase II, which includes the northeast development pad, remains unfunded and its future uncertain.

The Interline Deal: Vision or Giveaway?

Proponents of the land swap say it represents a win-win: unlocking the Interline property for UF’s fast-tracked plans while catalyzing private investment on underutilized riverfront land. Gateway Jax, a prominent player in downtown redevelopment with ambitions to reshape 32 acres across 25 city blocks, has offered to sell the Interline site for $6.95 million or accept the swap in return for the prime parcel at Riverfront Plaza.

But former Downtown Investment Authority chair Jim Citrano Jr. and the civic group Riverfront Parks Now are pushing back—urging the city to reject the land swap and purchase the Interline building outright.

In a detailed May 27 letter to Council members and DIA officials, Citrano cited major concerns over the cost and feasibility of Gateway Jax’s proposed tower. He warned that developing on the Riverfront Plaza pad would be unusually complicated—requiring utility relocation, coordination with an unfunded park phase, and grappling with tight site constraints near the Main Street Bridge. A prior RFP for the same parcel received only one response—from New York’s American Lions, who ultimately walked away citing infeasibility.

“The parcel’s development is highly complicated,” wrote Citrano. “‘Complicated’ often translates to ‘expensive.’” He questioned whether $20 million in capped incentives would be enough to deliver the promised tower without overruns that fall on taxpayers.

Citrano also revealed that the DIA had previously hired a consultant to explore alternative or interim uses for the plaza site—an effort he says was quietly abandoned in favor of the swap.

A Park-First Alternative

Echoing Citrano’s concerns, Riverfront Parks Now proposed an alternative vision: a low-rise riverfront complex akin to Tampa’s Armature Works or Sparkman Wharf. In an email to Council and the Mayor’s Office, the group suggested a multilevel restaurant and retail space that could be city-owned and leased to private operators—preserving parkland while offering dining, tax revenue, and minimal incentive costs.

“This type of structure could allow the City to retain long-term control and ownership of the land while providing leased space that integrates seamlessly into the park,” the group wrote.

They also pointed to The HUB Brooklyn, a new mixed-use venue under construction on Riverside Avenue, as a model for lower-impact development that enhances public space without dominating it.

Underlying Tensions: Who’s Driving the Vision?

The broader debate touches a nerve in Jacksonville’s development politics—particularly the blurred lines between the DIA’s autonomy and mayoral control. DIA CEO Lori Boyer has frequently made significant decisions without board votes, operating in what she terms an “economic development role” for the Mayor. Her decisions on design modifications, developer solicitations, and incentive strategies have repeatedly drawn criticism for bypassing public accountability.

Critics say the current DIA Board—largely composed of new members unfamiliar with prior processes—has inherited a flawed framework. With stakes as high as riverfront land ownership and public funding commitments to UF, the debate over this land swap may define not only the next phase of downtown’s evolution but also the city’s willingness to prioritize long-term civic interest over short-term deals.

What’s Next

As the clock ticks, City Council continues to weigh its options while community voices grow louder—some calling for urgency and bold transformation, others urging caution, transparency, and long-term public interest.