1978 Study: Public Authorities

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-

.

"

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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