1No development, as defined in Section 7380.04, F.S., 9shall be undertaken on a project seeking designation as an FQD prior to the issuance of an FQD development order except as authorized by a Preliminary Development Agreement (PDA) as provided in Section 42380.06(8), F.S., 44Rule 4573C-4046.0185, F.A.C., or as otherwise authorized by Chapter 380, F.S.