Emerald Trail: JTA and Groundwork Jacksonville pivot to local-option gas tax for two segments after federal grant loss

Greer Johnson Gillis, senior vice president and chief infrastructure and development officer for the Jacksonville Transportation Authority, and partners from Groundwork Jacksonville and the city presented an update on JTA-managed segments of the Emerald Trail on Oct. 7.

The presentation covered accomplishments in fiscal year 2025, a near-term delivery timeline, and funding strategies in light of a rescinded $147 million federal grant. JTA and partners said they will move forward with segments 3 (Riverside link) and 4 (S-Line connector) using proceeds from the local option gas tax (LOGT) and will pursue a combination of federal and state grants and potential federal loan programs for segments 6, 7 and 8.

Gillis said the program completed project development and environmental (PD&E) work and 30% design for segment 3, and kicked off PD&E and conceptual design for segments 4, 6, 7 and 8. She told the committee the agencies engaged stakeholders and over 300 residents through community meetings and walks during fiscal 2025.

"Considering the changes in funding with the rescission of the $147,000,000 federal grant, we have committed to moving forward with segment 3, the Riverside link, and segment 4, the S-Line connector using local option gas tax funding," Gillis said, noting those segments can be delivered by 2031 if LOGT proceeds are used for design, engineering and construction.

The presentation estimated the city will spend approximately $41,000,000 over the next five years to complete segments 3 and 4 using LOGT proceeds. JTA said LOGT proceeds were previously allocated by council in the amount of $132,000,000 for segments 3, 4, 6, 7 and 8; the allocation comes over a 30-year period, meaning JTA and the city are using available near-term proceeds to prioritize the two segments.

Gillis and partners outlined potential funding sources to accelerate segments 6–8, including discretionary federal grants (e.g., BUILD), federal loan programs referenced in the presentation as "TFEA" (a federal loan option described by presenters), and Florida Department of Transportation programs such as SunTrail and Safe Routes to School. Officials said JTA, the city and Groundwork Jacksonville will return to council with a refined funding strategy.

Kaye Yeehaus, chief executive officer of Groundwork Jacksonville, told the committee that the LaVilla link hosted more than 800 runners and walkers for a recent 5K race and that the LaVilla link is roughly 1.3 miles and connects to the southern S-Line to create longer continuous segments. She described efforts to mitigate displacement, including a home-repair program that has completed 39 homes in the McCoy's Creek neighborhoods and further partnerships with United Way, LISC and the Jacksonville Land Trust to keep homes affordable near the trail.

Council members focused questions on funding for segments 6–8, possible loan repayments and the broader economic and equity impacts of the trail. Councilman Jimmy Carlucci said segments 6–8 are particularly important for transforming the urban core and noted that Hogan's Creek/McCoy's Creek restoration work is linked to trail delivery and flood mitigation.

Groundwork indicated it is advancing Hogan's Creek restoration design, has brought nearly $9 million for design, and that a one-mile headwaters construction project will break ground in December. The presentation listed a construction cost need of approximately $143,000,000 for full Hogan's Creek restoration and noted the desire to pursue federal and state funds to augment LOGT proceeds.

Officials described a near-term schedule: segment 3 design procurement will be released in the current quarter with design beginning in calendar 2026 and construction likely beginning in 2027; segment 4 design procurement will be released in 2026 with construction anticipated in 2028. The schedule assumes environmental clearances and coordination with stakeholders including FDOT, JEA, CSX and Norfolk Southern — the latter noted as necessary for segment 4, which includes multiple railroad crossings.

Groundwork said it is developing a long-term maintenance and activation agreement with the city, targeting a 50/50 split between public and private funding for ongoing costs and aiming to staff maintenance with local residents where possible.

Committee members thanked presenters and asked for a future return with a finalized funding strategy for segments 6–8. No formal committee action was taken at the presentation; the briefing served as an update and a request for continued collaboration on funding and delivery.