The project, put forward by developer Gateway Jax, would bring a grocery store, high-density housing and retail space to the area near Beaver Street. Gateway Jax estimates the development would generate more than $330 million in property tax revenue over 30 years, but says the project cannot move forward without a public-private partnership that includes the incentive package.

Council member Michael Boylan said he is inclined to support the proposal unless he hears a compelling reason to oppose it. Council President Nick Howland has signaled he will vote against the package.

Boylan said the prospect of future incentive packages winning approval is increasingly uncertain, pointing to possible changes in property taxes that could reduce city revenue.

"I think that the prospect of them happening anytime in the near future is very, very dim," Boylan said.

The vote follows a deadlock in committee last week that sent the measure to the full council without a recommendation.

Public incentives have become a familiar tool for downtown development in Jacksonville. The city has committed roughly $136 million to Shad Khan's Four Seasons hotel project, and the Downtown Investment Authority has recommended $49 million for the Fleet Landing Northbank retirement community and $59 million for the Gateway Riverfront Plaza hotel.

Boylan said shrinking revenue could also ripple into other city priorities, including support for nonprofits and funding for public works, libraries and parks. He said city leaders may need to consider raising the millage rate or finding other ways to cover those needs.

Supporters of the Publix project argue the grocery store would fill a long-standing gap in downtown services and help attract residents to the urban core. Critics of large incentive packages have questioned whether the public return justifies the upfront cost, particularly as the city faces budget pressure.

The council's decision Tuesday will determine whether the project advances with city backing or stalls.