History of the League

FLC services and influence grow through the years

by Sheryl S. Jackson, Florida League of Cities

Before 1921, Florida cities lobbied the Legislature on an individual and unstructured basis. In 1922, a statewide organization for cities, now the Florida League of Cities (FLC), changed that situation.

By 1928, the League incorporated and established its operations in the City of Jacksonville. Later, the League changed its location to the City of St. Petersburg and then returned to Jacksonville. For information on the first 25 years of the League, see p. 34.

The organization grew. A new state Constitution adopted in 1969 included several provisions that directly affected cities. It established Home Rule provisions, prohibited double taxation, granted collective bargaining to public employee unions, eliminated municipal courts and imposed a 10 mill cap on ad valorem taxes for cities and counties.

In 1971, the League’s headquarters moved to the City of Tallahassee to better lobby the Legislature. The ’70s and ’80s saw the beginning of new services offered to cities beginning with workers’ compensation:

▸ The Florida Municipal Self-Insurers Fund in 1977, now the Florida Municipal Insurance Trust (FMIT)

▸ The Florida Municipal Liability Self-Insurers Program in 1979

▸ The Florida Health Trust Fund, now the FMIT Group Health Program, in 1980

▸ The Florida Municipal Pension Trust Fund in 1983

▸ The Florida Municipal Loan Program, now the Florida Municipal Loan Council (FMLC), in 1985

▸ The Florida Municipal Property Self-Insurers Program (now part of the FMIT) in 1989.

The FMLC has issued more than $300 million in tax-exempt securities. This alternate short-term financing allows city and county governments to move forward with municipal projects. The Bond Issue Program can be used for purposes including capital improvements, renovations, fixed-asset additions or refinancing of existing debt.

As the number of services provided grew, so did the need for more space. In 1989, property in the City of Orlando was purchased to house the League’s Public Risk Services.

In 1990, the League supported a campaign to pass Amendment Three to limit unfunded mandates. The amendment passed.

The Florida League of Cities had a headquarters on Duval Street in Tallahassee until 1998.

Efforts to raise awareness of the importance of city governments and their service to their communities took a step forward in 1991. State leaders designated the first annual Florida City Government Week. Cities throughout the state continue to use how-to resources provided by the League and develop innovative ideas to showcase city services. This year, 48 cities participated. (See an overview of cities’ activities, p. 48.)

In 1992, the League and the John Scott Dailey Florida Institute of Government established the Institute for Elected Municipal Officials. The Institute was designed to help elected officials meet the requirements of an elected role by providing a thorough orientation to municipal government.

Although the primary focus of advocacy and government relations remained state-level lawmaking, federal issues that affected the state increased the need to expand advocacy efforts. The League’s Federal Action Strike Team (FAST) committee was created in 1995 to strengthen federal relations.

The Construction Committee posed for a photo at the 1995 groundbreaking for the new Tallahassee headquarters.

In 1999, the League established its Special Investigation Unit (SIU) so that participants of the Florida Municipal Insurance Trust could report suspected insurance fraud. Under the SIU, cities have received training, reduced fraud and reduced costs.

To recognize innovation and accomplishments by cities, the League established a city recognition program in 2003 that was later renamed the Florida Municipal Achievement Awards.

Throughout the years, members have stepped up to work side-by-side with League staff to protect their cities’ interests as well as their neighbors. Home Rule Heroes is a program that has been recognizing the extraordinary efforts of members since 2009. In 2021, there were 136 Home Rule Heroes, which is the highest number ever awarded.

In 2011, the Florida Local Government Coalition, whose members included local government associations, was organized for collaboration, resource-sharing, professional development and education on issues. The Center for Municipal Research and Innovation, now the Center for Municipal Research, was established to serve as the League’s central source of research. Also, the FLC University was created to coordinate training, design training and build training partnerships.

With the creation of the Youth Council Video Competition in 2011, leaders of tomorrow were given the opportunity to showcase their ideas, creativity and commitment to their communities.

P.C. Wu served as League President in 2013-2014.

The League continued to recognize achievements and contributions with the creation of The Raymond C. Sittig Distinguished Public Service Award in 2013 to honor a non-elected person who has made significant contributions to the welfare of Florida’s cities. Howard D. Tipton, who served 45 years in local government, was the first recipient, and Harry “Chip” Morrison Jr., Of Counsel for the League, was the recipient in 2019.

In 2015, research and training services expanded. MuniMod, the only university-level civic tech competition in Florida to focus solely on solutions for cities, was created. The new FLC University Training Center opened in Orlando.

In 2017, the Youth Council Community Service Contest was launched.

In 2018, the League celebrated the 50th anniversary of Home Rule. The following year, the League prepared to kick off the next decade with a new logo and brand identity.

Gil Ziffer, League President in 2017-2018, led a rally celebrating the 50th year of Home Rule.

While a global pandemic in 2020 changed how many organizations operated, the League continued to move forward with many activities. These included publishing a children’s book, “The City That Talks,” launching FLCitiesStrong webinars and establishing the Field Advocacy and Federal Affairs Department to further coordinate and strengthen federal advocacy efforts. Also, for the first time in League history, the annual conference was held virtually. Mike Sittig retired as the longtime Executive Director, and Jeannie Garner became Executive Director/CEO.

Under Garner’s leadership, the League continues to expand its services. A new grants assistance program is being offered with eCivis. It provides free grant research, training opportunities, cost savings and assistance with application writing and grant management to all League members.

Sheryl S. Jackson is Writer/Editor with the Florida League of Cities.

THE FIRST 25 YEARS OF THE LEAGUE

by Lynn Tipton, Florida League of Cities

The Florida League of Municipalities, which was the early name of the Florida League of Cities, was a rather informal association before the 1928 incorporation. The only regular product was a newsletter that would later become the Florida Municipal Record and then Quality Cities magazine. The sale of newsletter advertisements made up the “salary” paid to the first Director/President of the League, A.W.D. Hall.

The Director/President kept the operation close to home in the City of St. Petersburg. Phone service was still spotty in many parts of Florida, so all efforts to grow the membership took place with old-fashioned letters through the 1920s and early 1930s.

Raymond Sittig, the League’s Executive Director from 1970 to 1995, was told some of the early stories about trying to gain membership through those letters and occasional in-person visits. At that time, Florida didn’t have any interstates. The few federal and state highways had two lanes, at best. Brick roads were the paths in rural areas. It was a lengthy drive from St. Petersburg to the City of Tallahassee on the Coastal Highway (later U.S. 98 and U.S. 19) to attend sessions of the Florida Legislature, held only in even years.

The League’s two missions, stated at the time of the 1922 meeting in Tampa, were to “be the united voice for Florida’s municipalities before the Florida Legislature and the U.S. Congress” as well as being a “forum at which all city leaders can gather to share information and knowledge.” The first 25 years for the League occurred under Dillon’s Law, wherein municipalities derived all authority through the Legislature and had to seek permission for any services through special act legislation individually or in municipal groups.

Two areas dominated the early League legislative efforts: ▸ Cities with electric utilities and their work to avoid takeovers or preemptive legislation by large power companies ▸ The need for vast infrastructure: large water, wastewater and public works projects all across the state. Tourists largely arrived by train, boat and auto.

There were discussions about the thousands of special acts filed each year by local governments to secure permission for services. The need for permission caused delays in setting up local water, wastewater, fire, police, public works and other services.

As the state entered the Great Depression in the 1920s, one unforeseen event was the dissolution of a dozen cities when residents moved out of state for better job opportunities. Cities were focused on survival between the late 1920s and the end of World War II.

When World War II broke out, many cities weren’t interested in a statewide association. The war effort saw many soldiers encamped around the state’s bases, training centers and ports for departure. Many city leaders led drives for metal (pots and pans, cans, old sheds, etc.) and war bonds. Enduring years of rationing also greatly limited what cities could do for their infrastructure.

Some states had started experiments with what would later become “Home Rule” as a concept, but as Sittig often said, Florida was busy dealing with mosquitos, air conditioning and roads. Home Rule might have been desired but was not truly discussed by the League until after World War II. Less than half of Florida cities were members of the League until the mid-1950s.

As phone service improved, more cities were called about League membership. It slowly started to grow. Rural areas weren’t experiencing municipal incorporations, as farming areas don’t usually benefit from the addition; however, more incorporations occurred around the military bases, fishing communities, ports and tourism areas.

While the League faced many significant challenges in its early years, the perseverance of its leaders and staff laid the groundwork for the organization to grow in numbers and influence in the years ahead. Today, the League supports Florida’s 411 cities with year-round efforts that include advocacy and education.

Lynn Tipton is the Director of FLC University at the Florida League of Cities.