JACKSONVILLE COMMUNITY COUNCIL, INC. 1045 Riverside Avenue - Suite 180 Jacksonville, Florida 32204 (904) 356-4136
A Report Prepared by the Study Committee on PUBLIC AUTHORITIES IN JACKSONVILLE
Rabbi Howard Greenstein, Chairman September, 1978
PUBLIC AUTHORITIES IN JACKSONVILLE
0,7
F
TABLE OF CONTENTS
..
-;
--
ITEM :;:
I. II.
PAGE PURPOSE. . . . . . . . . . . . . .4 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . FIND I NGS
A. B. C. D. E. F.
G.
............................................
Overv iew ........................................ General Characteristics History Public
of a Public
Authority...
................ ........ .................
of the Authority Concept Authorities A National Perspective..... Public Authorities A State Perspective Jacksonville Public Authorities
-
Higqlights
of
Local
Public
3. 4. 5. 6.
H.
Public
Chart Chart
I II
Chart
III
I.
Alternatives
J.
Areas
of
-
Board
Charts
and Limits
to
........ .....
Membership
........
.............
31
Facing
Rosters
Structure Local
Public
Autlillrities
l. Direct vs. Indirect Political Control....... 2. Public Credibility..........................
3. 4. 5. 6. 7.
City
Government
Central
Services
............
............................... ...................... ..................
Civil Service Authority Appointments Termination of Authorities P1ann ing
....................................
K. CONCLUSIONS ..................................... L. RECOMMENDA 1'1ONS................................. M.
:::.
Study
.....................
Committee Process
24 25 28 29
Powers
...0......................
to Authority Concern
-
Authorities
Powers Boards
2 5 7 9 10 14
16 17 18 20 22 23
Port Authority................. Electric Authority............. Jacksonville Transportation Authority....... Duval County Hospital Authority............. Beaches Hospital Authority.................. Downtown Development Authority..............
Jacksonville
2
Authorities
l. Jacksonville 2. Jacksonville
~.
1
35 35 37 38 40 41 42 45 49 52 55
N. JCcr MembershipRoster..........................
57
O.
About JCCI ......................................
58
P.
APPENDIX:
a.. Bibliography b. Dissenting Report c.
Jacksonville
DissentingReport - Duval
Transportation
Authority
County Hospital Authority
-
\~
'j
I.
'I'lli':
I'IIHI'OSi':
OF TilE
I'IIIII.IC
i\1)TII()I{ITII':~; ,
STIIDY
COMf-II'!'T!m:
. The purposes for this study
on public authorities were:
1.
2.
3.
-;, ,
To def ine the concept
of public
in clarifying
public
2.
3.
4.
understanding
and to assist of that concept.
To determine if the authority r.overnancemechanism is the most effective method of operatiun uf selected government functions in Jacksonville. Based on the conunittee findings, to draw conclusions and make recommendatiuns about public authorities for consideration by tlw public and apprupriate officials.
In carrying
1.
general
authorities
out these
purposes,
the cummittee
did
the following:
Reviewed the con~ept of authorities as a governance [rom a national, state and local perspective.
Explored alternati.ves to the public authority operating selccted gover.nment functions.
concept
mechanism
for
Reviewed tile generally accepted ~riteria for the use of authorities a:> a governance mechanism for public functions and determined the relevance of these criteria to local author it ies.
Reviewed the current structure and functions authorities and exph)red alternatives.
of local public
This study was not a management study of individual local authorities, but solely an analysis and evaluation of the authority concept as it relates to operational functions in the city of Jacksonville. This conunittee did not have a preconceived position as to the value the authority system. The members of this committee represented a variety of perspectives and perceptions relating to the nature and function of local authorities.
This committee has sought to provide an objective concept
of governance
and its application
-1~
analysis of this
in Jacksonviile.
of
~
ACTIV IT lES
-
AND MEMBlmSlIlI'
OF TIlE I'll ULlC AU,(,1101<lTlI~S STUDY COMMlTTI~E
':: ~
In June
1977,
authorized
the
a study
was selected a focus
scope
willingncl:il:i
from
national,
During
May, June
of
report,
the
thcir
materials
the
study.
1978,
the
statc
and July,
Rabbi
Team met in
full and
is
the
Community
authorities.
local
Fall
to
these
knowlcdg~,
resource
and
1977
to determine
met weekly.
on authorities
and
Fiudingl:i
and
from
persons
for
JCCI l:itaff
tim~.
Inc.
Greenstein
in a planning
committee data
Council,
Howard
late
to meet
study
grateful
cxpcrti:ic,
for
to reach
Jacksonville
They continued
The committee l:ihare
the
on public
study.
March
to
provided
the
throughout
persons.
of
The Management
through
developed
resource
and
for
capacity
From January were
committee
as Chairman.
and
steering
of Managers
Board
their
located
committee.
1978
the
conclusions
full
committee
met
to
review
draft
copies
and makc recommendations.
This report reprel:ients a total of 2UOO hours of time contributed by volunteers over
a seven
month
time period.
Nembers
of the Study
Committee
on Public
Rabbi lIoward Greenstein, Management
Team
......
*Dr. Joan
Carver
* Also -.
-
Members
....
Chairman
*George Fisher ~'<Narvin Ganson
*Dr. Daniel Lauray *Suzanne Schnabel >'<Eddie Hae Steward
Mrs. Roy Baker *\-1. Ray Barbee *Gerald Bartels Ronald BlooM
*T. Lowell Dent l-like Dillin
*Shep Bryan *William Caldwell Bonnie Cole *Robert Davis Clint Dawkins
*Jim Gilmore *Anne Grimes Dan Hadwin Frances Lawrence
William Hazer *Ann HcIntosh *Joseph Mikulas Diane S. Owen ~'<Jim Rinaman l.Jilliam Schilling *I.H. Sulzbacher *Barbara Twine *Walter Williams
*Dr. George
Committee
Authorities
Corrick
Honey
Donziger
*James Farr
*Nadelyn
Levin
a member of JCCr
Richard Bowers and Alice Coppock l:ierved
al:i staff
to
the
committee.
.'
..
OVERVIEW
A.
,
.
Public
Authorities
operate
change
and experimentation.
in a legal Their
has not yet been definitely operation public
fixed
Six public
two are exactly interstice
are very
authorities alike
between
status
which
is the result
in the framework
and the legal
Literature
is far from final.
authorities
context
framework
and research
of
of government for authority
on the subject
of
limited.
are currently in structure
government
functioning
or function
and private
No
in Jacksonville. but they all exist
citizens
and between
in the
city and
state.
With one exception, through
they are line agencies.
the construction
the people
of facilities
of the city and surrounding
ing the use of these services
The classic
definition
corporation
set up outside
so that
it can give
to the construction
They
serve
and operation
the public
of services
used by
They make regulations
areas.
directly
govern
and facilities.
of a public
authority
the normal
continuity, or operation
is a governmental
structure
business
of traditional
efficiency,
of a self-supporting
business government
and elastic
management
or revenue
producing
enterprise.
An authority,
however,
is an adaptable
administrative
dBvice
and not a
single, unalterable, administrative form.
-
-2-
.
"
'I'll<'
dvl
i Iii l jUII
01
d
I'tdd
i,'
;tIlUH'&
i ty
i II .ldLk::iOIlVi.l.L~
iJa::>cu
UII
lut.:aJ
~
policy
anll
pr.H.:tlt.:c,
diffcr::>
from
the
definition anJ
CJWiSj.C
Is
<10
follows: , <
A public Hutlw'rlty in Jacksonville is an appointed policy making body subrogate to elected officials, which serves a governmental administr.ative function, which is required to utilize basic core services of trad itional novernment, to be financially accountable to the city government* and seeks \.;1tl1in the statutory limitations to delivcr bervi.t.:<~s in un L~[ricient and timely manner for the benefit of the general public.
The evolu tlonary pa ttern ;j nat
ional
pa ttern
capability
of
fidence
in
to conduct
rising
local
the
out
of
\)f
that
they
are
independent
inability
granted
decision
guvernmental
nature.
the
authorities
lack
of
need
conf
for
is
idence
cOllsisten
in
continuity
the
t with
administrat
of policy,
ivL'
con-
wIth a business orientation
citizens
in a responsible
Authoriti~s .He administrativ~ fact
a
appointed
business
bureaucratic
public
of
government,
abU ity
public
perceived
of local
manner,
to efficiently
and
operate
frustration natural
with monopolies.
The
arms of the parent (city) government.
however limited, and have a power
independence,
making, to some extent, does Neither
should
they
be treated
not
deny
as
separate
them
their
of
units
guvernment.
Till-'Y have S0<'0 f it
been to
have
created
by the
a particular
:Ict ion:,; l)[ governments
whose
officials
haVl!
functionperformed in a particularway.
* JTA is responsible to th~ City
Council
only.
-}-
for
the
mass
transit
budget
.'
.~
They are, and should parent
government;
should
be in a manner
be, responsible
though
to and controlled
as this report will
which
does not detract
by their
indicate, from
control~
their necessary
independence.
This report
is directed
authorities
in Jacksonville,
their scope
and function
the alternatives rationale
at defining
their
systems.
conclusions
of public
evolution,
a "traditional"
to the authorities,
committee,
recommendations
reviewing
against
for the current
of the study
the concept
model,
and understanding This based
for implementation.
-4-
report
comparing explorini~ the
includes
on those
findinp,s
findings,
and
'.
B.
-
(;1~NEJ{1\L CII1\I{1\C'I'L';I\lS'I'ICS OF 1\ PUULlC
1\UTLlOIUTY
,
Thes.e general
characteri::>tic:::;
of
in:::;tance:::; to Jacksonville.
The 1\uthority
public
authorities
Co~uent:::; specific
are
applicable
to Jacksonville
are
in most included.
is:
A corporation
with
corporate
powers
With the exception of the Downtown Development Authority, all local authorities were created and their powers were defined by acts of the state legislature.
A part of the Government
Outside
the
basic
slructuru of governmental
The requirements
for Council
financial
bureaucracy review
and utili-
zation of Central Services and Civil Service of the city place the local authorities more within the basic structure than is usually
the case.
Subject to the review only inJirectly.
Able
to reach across
(JEA serves hospital
areas
of elected
political outside
officials,
but in most
cases
boundaries
the city,
as do the Port and
authorities)
Limited to function, but
unlimited as to method of operation
(For local authorities, some operational methodology iH prescribed by st.:Jtute)
A performer of services of broad
public
liIonopoljcs.
Extensively
dependent
on technology
-58. ~
concern which are natural
J
.'
Generally
self-supportin~
The Beaches Hospital Authority, the Duval County Hospital Authority and the Downtown Development Authority receive an operational subsidy f:rom the city. The Jacksonville Transportation Authority receives an operational subsidy for the mass transit function. City Council is required by charter to provide a capital outlay subsidy [or the Jacksonville Port Authority - however in recent years this subsidy has been returned to the city. In need of imaginative enterprise Directed by an unpaid board of directors '.
a part of the debt of the sponsoring
CotldiliOlls
and paid
technical
manag~r~
Empowered to incur debt which is ~enerally not considered to be
undL:r
which
for public
Alithorilil!S
services
arl.!
which
government
parti.clIlar.ly
constitute
entity
lIs~fllj
a natural
monopoly
where the service can be self-supporting (non self-supporting authorities should possibly be open to more frequent governmen ta 1 rev iew) where there is a high degree of reliance on technology, imaginative enterprise and commercial elasticity where the service is easy to define but methods hard and evaluate because of technical and novel aspects
to define
where the stability of management policy is essential interlacing management controls of normal bureaucracy inappropriate and unnecessary
and the are
where daily required
integration
with
where existing debt limits new types of services where the area boundaries
other
government
and tax limits
to be served
extends
-6-
beyond
services
stand
is not
in the way of
existing
political
c. The origin::>of public public
authorities
Venice. provide
Because
authorities
were
go back
a continuity
of trading
public
in the city
the East l~dia Trading
Ages.
states
these authorities
The earliest
of Genoa
and
were developed
to
policy.
authorities
developed
in Great
Corporations, extended arms of royal power.
Crown
Company
were developed
Britain
The Hudson
to encourage
as Ed tis!!
Bay Company
trade
and
and settle-
in the ncw \"ol"ld.
ill the early activities
state ~overnJ!lents in the United States sponsored
HWO'::>,
to finance
and speculatively. guaranteed
banks,
railroads
The panic
As a result,
debts.
state
via constitutional
even until
Presently
today.
and canals.
of 1837 caused
on ::>tateborrowing
limi
to the Middle
port authorities
of poli tical unrest,
In the 17 th Century,
1Il,'nl
-----
III STORY OF TIII~ AIITIIUR LTY CONCI';I'T
only
They
widespread
legislatures limits.
eight
states
spent carelessly default
placed
These
on state
severe
restrictions
restrictions
extend
have no borrowing
power
t::>.
At the same hospitals
and schools
circumvent
finance
being
outside
secure. public
In general
limit
bond
enterprises
"int'"
thi~;
\.J,~re instituted,
to increase. problem.
financing
out of revenue
ten'1s, the history
rclpidly
limits
demands
The authority The revenue
of
allowed
of the modern
Ne\.J York
tim".
-7-
to
It was also viewed agency
to
by user charges.
day American
Authority
was a device
the borrowing
produced
for roads,
bond was seen by the
of the borrO\'/ing pO\"er limits.
Revenue
the creatJ-onof the Port -.;pread
debt
began
the state debt
courts as as being
time the state
in 1921.
authority Authorities
dates have
from
Several
programs
designed Public
created
by the federal
to spur the economy,
Works
Administration
large number influenced
also
and
Corporation
offered
stimulated
authority
the Federal
of other
loans
increased
The success
of authorities.
the creation
goverrunent after the number Housing
of authorities.
Administration
of these authorities
authorities.
projects
and in effect
Construction
came
of the lack of materials.
Today,
and hospital every
the population
because expanded
of authorities
is still
and placed
a great
stimulated
Authorities
programs.
that state and local
of the number
to the growth
of authorities. Following
demand
on the
and roads.
construction
function
counting
to a standstill
for housing
the growth
also
growth.
halt
government
a
Finance
War II there was a temporary
however,
.~
in turn
During World
the war,
The
created
The Reconstruction
for self-supporting
- -
the Depression,
governments
by housing,
are used perform.
airport
to perform There
almost
is no accurate
of authorities.
Local History
Authorities,
prior
to consolidation
on the local government
system
felt that the local people histories included popular
of existing the need
trust
government's intrusions County
capability
created
wanted
them
authorities).
to provide
in local
(1968), were
services
government
by the legislature
in that these authorities
intrusions because
it was
(included
in this report
are brief
The reasons
for the desire
for authorities
across
political
at that time,
to administer
political
services.
and a concern They were
did not report
Commission.
boundaries,
lack of
for
considered
to either
the City or "
-8-
J.OC<.l) lIi~Lory
At consolidation, :::
d.)
(cont'
authorities
side of the consolidated finance lize Lhe
and budgetary
the basic central
established
government,
procedures
as part of the administrative
responsible
and required,
services
(personnel,
to the City Council with some
purchasing,
exceptions, motor
in tu uti-
pool, legal)
of
parent government.
Authorities minimum
public
were
conceived
of day-to-day
emphasis
wa~ placed
to provide
interference
apparently
possibil
ily
of
a
little lack
a maximum
and financial
coming
thought
of business
into operations
on appointments
image of the authorities
dation,
D.
were
by elected control
out of the early
was given
efficiency
to public
with a
While
officials.
because
of the good
60's prior
relations
to consoli-
or to the
pllb1 il' coulJdl:IICl' in authoriLies.
ur
PUBLIC AUTHORITIES - A CURRENT NATIONAL PERSPECTIVE
There are approximately authorit ies whose
comhined
A recently completed five Walsh
reported
7,000 national,
these
budgetary
state
expense
year study of
facts and others
and local exceeds
public
$27 bi 11ion.
Authoritiesl by Dr. Annmarie.
with
some relevance
to authorities
in Jacksonville.
Only
two of the fifty states
data on the authorities
The majority
Dr. Walsh more
proposes
concerned
to br.oader
Annmarie Government
of authority
(New York and Pennsylvania)
operating
board
members
the following
about
the impact
within
actions of their
have current
their boundaries.
are businessmen.
- to make authorities operations
and more
responsible
soe ia 1 nl~~ds:
Hauck Halsh, Corporations
The Public's nusiness: The Politics ahd Practices (CaI!lbridge,I.Iass:The HIT Press, 1978)
-9-
of
Public debate and statutory of public enterprises~
definition
of the goals
Broadening the boards of directors include representatives of various affected by authority operations.
of authorities constituencies
Establishment of public investment as an alternative to private money financing of public enterprises.
banking markets
California,
Oregon
and Washington
to
institutions for the
have developed
state
controls
over
authorities, primarily through reporting mechanisms.
E.
PUBLIC
AUTHORITIES
Local public as special
authorities
are categorized
from a state
perspective
districts.
The definition revenue
- A FLORIDA. PERSPECTIVE
of a special
and has a board
commission.
Special
but also special
The following
district
that is elected
districts
taxing
is one that generates
include
districts
information
not only
from the city
local
authorities
such as sewer or water
on special
that there is not a separation
separately
districts
must
of local authorities
its own
districts.
be qualified
in
and special
taxing districts.
The most
recent
fiscal year revenue
information
1975-1976.
was generated
of special indebtedness
districts
available
In this year, through
was
special
on the state
17% of all local districts.
$1,000,000,000,
of the counties
level
which
government
Bonded is equal
is for the
indebtedness to the bonded
of Florida. -c
-10-
'F ..
Special
Ji~trict~
user char~es
i~~ue 22~ ot all bonds and collected
4~% of all
in the state.,
:.:
One of the reasons for the creation of special districts was political constraints on existing government including financial limitations and state constitutional
Another
reason
debt
limits
for the ~pecial
on local governments.
district
local .government power.
Although
Florida
the usual
as other
city only
huve
places,
has those powers
pre-empted
constraints
because
that reaches
across
of local
several
(the Dillon
as true in
H.ule) is that a
In Florida,
delegated.
Special
of problems
on the power
rule
on
cities
wish so long a~ this has not been
by 'the Legislature.
\...ere created
is limitations
this is not necessarily
expressly
power to do unything tlwy
creation
districts
with municipal government.
geographic
(authorities) annexation
and other
(i.e. a water
and political
district
boundaries.)
Special districts were also created because of a need for sound busine~s
management
Traditionally, generally
statewide
accepted
The problems
procedures.
special
districts
(authorities)
have been
by the public.
of special
districts
(authorities)
in Florida
include:
1.
Special ~istricts are by their indepeI~ent nature isolated and not visible to the general public. Therefo::e, they are sometimes perceived by citizens as lacking in accountability.
2.
As numbers of special districts are created, political power is fragmented and limitations are placed upon the actions of local ~overnment.
-1.1-
J.
-
The absencl' 01 IInifol-nl operational r~quireml~ntt) damages the ability ot citizens LeS get involved since citizens don I t know where' and how to get involved .i.n the decision-making of public authorit).cs:-
4.
The state is blamed for problems of special districts in that many are the creations of the state legislature yet the state does not oversee their operation.
5.
Some critics believe there is a lack of flexibility on the part of the districts to respond to changing needs (special districts' primary concern is to payoff bonds, not necessarily to have a social conscience).
6.
Special districts can place an unequal burden especially is overlapping of taxing districts on the citizens.
7. .
if there
Representation - it is possible that special districts do not represent all elements of the community on the basis of one man, one vote.
An additional pay
a high
limitation
to
Ijpl.'cial
district::; I::; they
may have
tu
interest rate on the bonds that they issue since they are
not generally
backed
by ad valorem
taxes
but are
in most
cases
revenue
bonds.
Since
the fees collected
county from
as taxes
there may
the federal
upon a formula
that
has been growing
of the entire
A bill
area
financing ter~inate,
and
about
level.
::;pecial
will
sharing
districts
The Florida
Affair::;has initiated
of special
to be introduced
loss of revenue
to a funds
taxing as a factor.)
local
concern
on a state
are not credited
(Revenue sharing funds are based in part
includes
on Community
districts
be a direct
government.
Over the past few year::;,
Committee
by special
(authorities)
House
of Representatives
and is concluding
a study
districts.
require
all special
their plan of operation
their plan of termination
districts
and if under to the circuit
-12-
to report
a requirement court
clerk.
to
i::;no mechani::;m currently
There
There are no penilties
report. give
some consideration
authority
There
::;pecia1di::;tricts to
apparently
little
legislative
move
into one chapter opposition
in the state
Florida has very little inror-mation
all laws regarding There
statutes.
authori
ties.
districts.
Commission
,)[1independent
authorities.
in 1973 did an inventory
They deten'1ined that
The
COMmunity
hSO
indl~pend\;'nt SIK:cLiI
to provide within special
there wer-e some
The
on independent
350 independent
The Federal Bureau of Census (1972) estimated that there
are 340 independE'l1t and special
The Florida
is
in the legislature.
There is practically nothing available at the state level. Local Covernment
of an
defunct.
to consolidate
to this move
bill will
for the dissolution
that does not report and is apparently
districts
This
for not reporting.
to the possibility
is an additional
special
to require
Affairs
Staff
districts
CorrU'1itteenow estimates
information
their counties. districts
that there are
districts.
House of Representatives basic
in the Slate' of Florid;l.
has asked
on special
House members
districts
would
in the states.
-1.]-
all county
like
currently to repeal
clerks operable all inactive
.
I,'
The six
local
public
.JACI\Sl!~V I I. I.E I'U HI.II;
authorities
-.
are:
Jacksonville Electric Authority (JEA) Jacksonville Port. Authority (JPA) Jacksonville Transportation Authority Duval County Hospital Authority Beaches Hospital Board Downtown Development Authority (DDA)
Included
in
this
and comparison torically,
are
charts
>< of
do so
(JEA,
support
ing
and
depends
prietary
have
and
been
-
JTA)
upon
depend
on
a subsidy
function,
Radio
of
statutes
which
been
has
approximately
made
to the local
* A
prf\pr
group
positive
ietary
local
authorities
are
cen tral
as a city
not
self-
government.
.ITA
operates
one
pro-
line division,part of
Affairs.
Vocational
Authority
and operated for only
noted,
to study
to consolidation
on the commission.
the dissolution
prior
authorities
work best
and/or
However,
authorities
Authorities the Com-
Authority operations.
did not report
government.
function of governrlent is.a
pruducing
the Local
(1966).
for proprietary
to consolidation,
(city or county)
was
of the Hospital
funetion of business
natural service monopoly operated by an arm of revenue
a proprietary
The city
years
prior
impression
that authorities
As has been
six
a .Jacksonville
several
Commission
did recommend
believing
for
citizens
Study
a very
mission
defunct
include
His-
18 months.
The last major Government
still
operate
the
the Departmentof Recreationand Public
The state
to
transit.
WJAX,
authorities
and boards.
authorities
from
mass
Station
0 f the
other
suhsidy
these
duties,
developed
three
the
for
(JTA)
histories powers,
Only
government.
JPA,
brief
on their
authorities
function
also
study
i\U 111\11\ IT LES
self-supporting.
-14-
or
governJ!lentthat is
-;
-
:;
Jacksonvi.lle
Public
One concept adopted body
(City Council)
Council)
city
developed
budgets
funds.
that
to r~view
there should
budget
the highway
political
(city councils,
bodies
for example,
budget
from
legislative
body
(City
this requirement
Authority
is not backed
is submitted
capital
functions
legislators)
of office.
vision
-
they
expenditures.
City Conunission and City Council. and generation
both in construction
tend
by
to the City
They
for an elected
to neglect infrastructure true for both
the old
had the responsibility
of electricity,
and maintenance.
-15-
is that ongoing
tend to look at
It is hard
This was
.
I ~
be a single
that can be a constraint
in terms of length
political body to have
neglected
Conunission and
as a courtesy.
reality
the port
is exempt
of the Transportation
However,
Study
to go to the legislative
One governmental
problems
Government
all finances.
are required
this function
Council
was
The JTA highway
.
(co1\L'd.)
by the Local
in the charter
Authority
since
AutllOrll:l.cs
and seriously
for
""lllCIJLlCllTS
c.
1.
()Jo' I.OCAI. l'UHLl.C AUTlJOIUTLE:;
:
-. JACKSONVILLEPORT The Jacksonville
Port
in 1963
to manage
at
time
that
ment
AUTHORITY
the
the
behind dock
port
was created
Jacksonville
was far
had neglected
improving
Authority
municipal
other
state
ports,
legislature'
Jacksonville
docks.
southern
facilities.
facilities
by the
as
the
city
The JPA was charged
and making
govern-
with
them competitive
with
other
ports.
The Port
Authority
facilities
for
ville.
Its
owns.
It
the
the
the
of
is
to own,
over
p,eneral
of Jacksonville
maintain,
seaports
limited
no jurisdiction
a $25,000,000
citizens
power
operation
jurisdiction has
In 1965,
has
to
and
airports
those
owned
bond
to improve
in Jackson-
properties
privately
obligation
and operate
the
which
it
properties.
issue
was passed
Talleyrand
docks
by
and
terminals.
In 1968 the
the
airport
and now is
airports.
The City
not
less
the
.IPA has
There
are
appointed three
Jacksonville
than
seven by the
by the
in
charge
to
the
to return
members governor
mayor,
Authority
on the and
confirmed
took
of all
of Jacksonville
$800,000 elected
Port
is
three
money
the
by law For
the
to the
city.
authority
board,
four
confirmed
by the
by City
-16-
Council.
management
municipally
required
JPA annually. this
over
Florida
of
owned to contribute
past
three
of which Senate
years
are and
,J iH':
The
,,'" U .. v ~,.!-.!-L j V. L "L' L,,~. ~ L..L ,- - .. -
".,
directly or indirectly employs approximately 10% of the
JPA
It has trade development
total work force in Jacksonville. in New York and Chicago
2.
JACKSONVILLE
ELECTRIC
in addition
In 1912,
Dillon Kennedy
constructed
the Talleyrand
Plant)
was established
an electric
Generating
plant on Main Street
Plant
(now 'the J. .
The Jacksonville
was built.
in 1968 to replace
this time the assets
,'.
here.
AUTIIORITY
The city of Jacksonville
in 1895.
to the office
offices
Electric
the City Utility
and debts of the electric
Authority
At
Commission.
company
were
transferred
to the J.E.A.
In 1971 restrictions
by the Environmental
that the JEA burn more expensive, adjustment
charge
was added
cost of fuel oil.
In 1973
price of fuel oil. resentment
a~out
the ~id-east rates
Electric
of seven members
who are appointed
largest
serve
utility
JEA makes
Authority
staggered
the increased
OPEC oil crisis
escalated
correspondingly.
in "lieu of taxes".
of general
government.
, ,-""
-."
Public
by an authority
and confirmed
board
by City Council.
The JEA is the fourth
terms.
This money
The formula
of generated
to the general
in June,
fund of the city
is utilized
to determine
for the operation
the contribution
1978 and is now 4.5 mills
power based on the previous
year's
-17., ""-""""'>'-'~-"'"
the
began at this time.
by mayor
a signifi<;:ant contribution
JEA to the city was changed
',.,r
required A fuel oil
fuel oil.
to cover
is governed
four year
Agency
in Florida.
by payment
kilowatts
bills
increased
the cost of electricity
The Jacksonville
These members
less polluting
to consumer
Electric
Protection
'".
.0.,..-,-."".,
",
"
,,,-,
"0'
'n'~',_""-"
-
, ,...
,
,_.'
power
of
per 1,000 production.
. ,"
;
B ~
JackBonville Electric 1\uthoriLy
The JEA operates
;
side Generating have been
the J. Dillon Station
initiated
3.
with
Florida
Highway
Power
energy
Station,
Generating coal-fired
and Light
as a power
the South-
Station.
Plans
generating
plants
The feasi-
Company.
source
has also
been explored.
1\UTIIORITY
TRANSPORT1\TION
The Federal
Generating
and the Northside
of using nuclear
JACKSONVILLE
Kennedy
for two 600 megawatt
in a joint venture bility
(cont'd.)
Act of 1944 known as the
Interregional
Highway
System and now known as the National System of Interstate and Defense Highways, system
was
the basis
through
Jacksonville.
bridges
and
Highway
Committee
interchanges
organizations Warren
When
apparent
of Duval
the guidance
The Matthews
acceptance.
of the expressway
that the expressway basis
County
system which
of roads, of the
succeeding
state administration. was created
the sponsorship
upon
As ~ result
by the state of Duval
were
completed.
slated
of obtaining
the whims
to be be set,
an
of each
the Jacksonville
legislature County
the Fuller
time frame would
for a method
was not dependent
Bridge,
system was
and no definite
pushed
expressway
23, 1955 under
under
system
highway
of the Jacksonville Chamber of Commerce to civic
on a piecemeal
way Authority
of the interstate
for the proposed
presented
and a few sections
it became
the citizens
Plans
were
for public
Bridge,
completed
for the conception
of Florida
legislators,
Expresson June
Senator
Fletcher Morgan, and Representative William H. Maness, Lacy Mahon, and Harry Westberry.
-18-
.J,lckSlJI1ViJ.J.L'
The
'l'l',IIl::>pOrulljoll
,\uLllorily
of the authority
purpose
W;IS
(CUlll'd.)
finance ano complete
to
construc-
the
: tion of the Jacksonville
Expressway
authority
of three
was
to consist
two ex-offi.ci.o
The membership of the
System.
members appointed by the Governor,
memher.sconsisting or the Chainllanof the BO;lI-d of
Commissioners
0 f Duval
County,
member. repr.c-
and the S tate Road Department
sentin~ District No.2.
With the passage of Article 8, Section 349.01 Expressway
state. This
\vas part of the ler,isl.:1tionest"!Âť ishing
Three
legisla t ion.
board
three by the mayor,
or the Author
ity
ch;lrgcd
Since
Dcpartlllcnl
of
becar.1C wilh
th'ell
It purchased
the
tile
'J'ritIlSpOl:t;lt
ilild
1n 1')7 J
LOll.
was altered
by this
the
the bus company
132
miles
of
Jacksonv
Authori
illc
ExpreSS\v;iy
The JTA was
ty.
lime.
freeway
and
four
on this mass
Presently
the Authority
working towards the establishment of the proposed Downtown system.
-19-
thal
tilill'.
lane highways.
Ridership
in 1972. that
Two Engineer
a mass transit system at
o\Il'riltillg
buill
has increased by 50% since
of the
the new consol i-
\Vas to be the District
JacksonvUle Transportation
.ITA has
agency
the
members were to be appointed by the governor,
and one member
ilcÂŤlIirillg
iri 1968
an independent
mel'1hership of the authority
The
goverrunent.
became
349.17
Jacksonville
dated
Authority
-
transit is
People
~lover
II
.
IJI)VAI.
The
C(JlJNTY
JJlI~)I'J
11\1.
Ill' I 11'"\1
County Commissioners
a hospital amount
of Duval County in the early 1900's built
for indigent
of local
II
It operated
care.
taxes until
At that time the state
for all counties
legislature
passed
Chapter
providing
with a population
Under
the leadership
Medical
Center
The Memorial Nursing
In 1959
over
Unit
Unit and Daniel
increased
the legislature
the Duval
constructed greatly
passed
board.
County
chapter
In 1963
Hospital
W~lfare
The board
care
Board,
Unit)
for the poor.
the old Duval
was constructed.
was built
in 1955.
during
a County
governor was charged
the
Welfare
patients
No. 156 which
100,000.
and medical
County
for psychiatric
Building
care
shelter,
of the Duval
to a hospital
created
food,
(Boyd-McGinnis
School
receiving
board
temporary
9274,
This act created
which consisted of nine members appointed by with
and a small
1923.
was sponsored by Mr. R. P. Daniel. Board
on donations
in 1947 and the
The number
of persons
the depression.
59-542
which
the Duval
changed
legislative
Authority.
the welfare
delegation
This new authority
was
to have seven appointed board members and was given the power to issue bonds
with
approval of the freeholders of Duval County.
I he
In 1964 an initial to one majority. sity Hospital
$20,000,000 Consultants
which
was
the law establishing
chapter
63-1305,
dated
government
issue
passed
and architects
constructed
In 1968
was
bond
and dedicated
the Duval
incorporated
of Jacksonville.
were
County
as a special The new
-20-
by
more
hired
than a two to plan Univer-
in 1971.
Hospital chapter
legislation
Authority, in the consolirequired
nine
Duval
County lIospital
board members
to be appointed
City Council. one time was central
Author-ity
The number limited
services
(cont'd.)
by the mayor
of physicians
to two.
department
with
the approval
of
serving
on the board
at
The authority
was required
of the city and have
to use the
its budget
approved
by City Council.
The authority
is dependent
thrust of the Duval provide
To accomplish emergency
Authority
students,
with major
the city for tax funds.
Hospital
Authority's
of the medically to comprise
this they offer
services.
and medical
schuol
County
care and treatment
by the Hospital
medical
upon
a wide
and radiologic universities,
indigent
technology
is to
who are estimated
range .of inpatient, training
and registered
Florida
responsibility
25% of the Jacksonville
They also provide
practical
The major
Junior
-21-
students,
through
College,
system.
outpatient,
and
for undergraduate
nursing
students
population.
their
paramedics, affiliation
and the Duval
County
5.
BEACHES
HOSPITAL
In 1959
the state
included
AlJTHOHTTY
the area
~
.~
legislature bounded
created
by Mayport,
and the Inland Waterway
on the west,
citizens
This district
of this area.
board appointed
hospital
hospital
was
The passage
was opened
constructed
tax district
created
a seven member
confirmation
the City of Jacksonville Beach and two residents must be a resident
Beach,
to 75.
changed
the
This
legislation
by the mayor
and subject
members
must
be residents
to of
of the City of Neptune
of the City of Atlantic district
for the
to the
of beds
government
two residents
of the hospital
care
to levy 5 mills.
the number
appointed
Two board
by City Council.
line,
In 1967 an addition
to an independl!nt authority.
which
by a five person
empowered
consolidated
authority
County
medical
was governed
increased
of the Jacksonville
special
to provide
in 1961.
which
tax district
the St. Johns
It was
by the governor.
A 25-bed
a special
One member
Beach.
The number
at large.
of
physicians who can serve on the board at one time is limited to two.
The bonded
indebtedness
of the beaches provided
urban
of the authority
service districts.
by an allocation
room and critical
presently.
members
The authority
the legal staff
of the city,
the citizens
operating
funds are
In 1973 an emergency
to the hospital.
on the medical is required
against
The general
from the City Council.
care unit \oJereadded
There are 35 active
is taxed
staff
at the Beaches
to use the central
but not the Civil
-22-
Service.
Hospital
services
and
6.
DOWNTOWNDEVELOPMENTAUTHORITY
The Downtown
Development
Authority
the
development
plan
downtown
adopted
by City
and coordinated
sary
to accomplish
the
revenue
river,
bond
plan,
landscaping
this
for
downtown
street
system.
mittee.
It
the
It
set
and
to work with because
It
power
may sell
up a task
private
the
serves
facilities
of eminent
walkway
on
in
improvement,
the and
Development the
transportation
domain,
did the
system
of Transportation
on the
neces-
Authority
The Downtown
Department
this
planning
Main Street
area.
and
updated
Development
second-level for
composed
of both
developers of
Board
has
parking
implement
policy
com-
may own and manage
bonds.
force
of a lack
the
to
Planning
authority
for
downtown
with
1971
and architectural
the
plans
the
coordinates
property,
for
engineering
has
the
studies
studies
in
by the
The Downtown
plan.
feasibility
plans
Authority
then
tl~ engineering
preliminary
downtown
prepared
.Since
Council.
plan
was created
private
to preclude
information
about
and
public
problems
regulations
which and
utilities may occur
legal
require-
ments.
The Downtown dO~ltOwn
growth
Development
Authority
charts
area by keeping
a current
account
and
its as
contribution
It
serves
in
their
efforts
to rebuild
of
seven
members
who are
to
a communication
the
link
of
city's
total
between
the
downtown appointed
the
economic the
downtown
ad valorem public
Jacksonville. by the
Council.
-23-
growth
mayor
of
tax
base's
tax
income.
and private The authority
and
confirmed
the
sectors consists by City