JACKSONVILLE COMMUNITY COUNCIL, INC.1045 Riverside Avenue - Suite 180

Jacksonville, Florida 32204(904) 356-4136

A Report Prepared by the Study Committee onPUBLIC AUTHORITIES IN JACKSONVILLE

Rabbi Howard Greenstein, Chairman

September, 1978

PUBLIC AUTHORITIES

IN

JACKSONVILLE

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TABLE OF CONTENTS

PURPOSE. . . . . . . . . . . . . .4 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

FIND I NGS ............................................A.B.C.D.E.F.

Overv iew ........................................General Characteristics of a Public Authority...History of the Authority Concept ................Public Authorities - A National Perspective.....Public Authorities - A State Perspective ........Jacksonville Public Authorities .................

G. Higqlights of Local Public Authorities

l.2.3.4.5.6.

Jacksonville Port Authority.................Jacksonville Electric Authority.............Jacksonville Transportation Authority.......Duval County Hospital Authority.............Beaches Hospital Authority..................Downtown Development Authority..............

H. Jacksonville Public Authorities - Charts ........Chart I - Powers and Limits to Powers .....Chart II - Boards ...0......................Chart III - Board Membership Rosters ........

I. Alternatives to Authority Structure .............J. Areas of Concern Facing Local Public Autlillrities

l.2.3.4.5.6.7.

Direct vs. Indirect Political Control.......Public Credibility..........................City Government Central Services ............Civil Service ...............................Authority Appointments ......................Termination of Authorities ..................P1ann ing ....................................

K. CONCLUSIONS.....................................L. RECOMMENDA1'1ONS.................................

M. Study Committee Process .....................N. JCcr MembershipRoster..........................

O. About JCCI ......................................

P. APPENDIX:

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BibliographyDissenting Report - Jacksonville Transportation Authority

DissentingReport - Duval County Hospital Authorityc.

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'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. To def ine the concept of public authorities and to assist

in clarifying general public understanding of that concept.

2. To determine if the authority r.overnancemechanism is themost effective method of operatiun uf selected governmentfunctions in Jacksonville.

3. Based on the conunittee findings, to draw conclusions and

make recommendatiuns about public authorities for considerationby tlw public and apprupriate officials.

In carrying out these purposes, the cummittee did the following:

1. Reviewed the con~ept of authorities as a governance mechanism[rom a national, state and local perspective.

2. Explored alternati.ves to the public authority concept foroperating selccted gover.nment functions.

3. Reviewed tile generally accepted ~riteria for the use ofauthorities a:> a governance mechanism for public functionsand determined the relevance of these criteria to local

author it ies.

4. Reviewed the current structure and functions of local public

authorities and exph)red alternatives.

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 of

the authority system. The members of this committee represented a

variety of perspectives and perceptions relating to the nature andfunction of local authorities.

This committee has sought to provide an objective analysis of thisconcept of governance and its application in Jacksonviile.

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- ACTIV IT lES AND MEMBlmSlIlI' OF TIlE I'll ULlC AU,(,1101<lTlI~S STUDY COMMlTTI~E

'::In June 1977, the Board of Managers of the Jacksonville Community Council, Inc.~

authorized a study committee on public authorities.

was selected as Chairman.

Rabbi Howard Greenstein

a focus and scope for the study.

The Management Team met in late Fall 1977 to determine

steering capacity throughout the study.

They continued to meet in a planning and

From January through March 1978, the full study committee met weekly. Fiudingl:i

were developed from national, statc and local data on authorities and from

resource persons. The committee is grateful to these resource persons for their

willingncl:il:i to l:ihare thcir cxpcrti:ic, knowlcdg~, and tim~.

and provided materials for the committee.

JCCI l:itaff located

During May, June and July, 1978 the full committee met to review draft copies

of the report, to reach conclusions and makc recommendations.

This report reprel:ientsa total of 2UOO hours of time contributed by volunteers

over a seven month time period.

Nembers of the Study Committee on Public Authorities

Rabbi lIoward Greenstein, Chairman

Management Team ...... *Dr. Joan Carver

*Dr. George Corrick

Committee Members .... Mrs. Roy Baker

*\-1. Ray Barbee*Gerald Bartels

Ronald BlooM

*Shep Bryan*William Caldwell

Bonnie Cole*Robert Davis

Clint Dawkins

* Also a member of JCCr

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*George Fisher~'<Narvin Ganson

*T. Lowell Dentl-like Dillin

Honey Donziger*James Farr*Jim Gilmore

*Anne Grimes

Dan HadwinFrances Lawrence

*Nadelyn Levin

*Dr. Daniel Lauray*Suzanne Schnabel

>'<Eddie Hae Steward

William Hazer*Ann HcIntosh*Joseph MikulasDiane S. Owen

~'<Jim Rinaman

l.Jilliam Schilling*I.H. Sulzbacher*Barbara Twine*Walter Williams

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Richard Bowers and Alice Coppock l:ierved al:i staff to the committee.

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A. OVERVIEW ,

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Public Authorities operate in a legal context which is the result of

change and experimentation. Their status in the framework of government

has not yet been definitely fixed and the legal framework for authority

operation is far from final. Literature and research on the subject of

public authorities are very limited.

Six public authorities are currently functioning in Jacksonville. No

two are exactly alike in structure or function but they all exist in the

interstice between government and private citizens and between city and

state.

With one exception, they are line agencies. They serve the public directly

through the construction of facilities and operation of services used by

the people of the city and surrounding areas. They make regulations govern

ing the use of these services and facilities.

The classic definition of a public authority is a governmental business

corporation set up outside the normal structure of traditional government

so that it can give continuity, business efficiency, and elastic management

to the construction or operation of a self-supporting or revenue producing

enterprise.

An authority, however, is an adaptable administrative dBvice and not a

single, unalterable, administrative form.

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'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

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policy anll pr.H.:tlt.:c, diffcr::> from the CJWiSj.C definitionanJ Is <10

follows:, <

A public Hutlw'rlty in Jacksonville is anappointed policy making body subrogate toelected officials, which serves a govern-mental administr.ative function, which isrequired to utilize basic core services oftrad itional novernment, to be financiallyaccountable to the city government* andseeks \.;1tl1in the statutory limitations todelivcr bervi.t.:<~s in un L~[ricient and timelymanner for the benefit of the general public.

The evolu tlonarypa ttern of local public authorities is cOllsisten t with

;j nat ional pa ttern rising out of a lack of conf idence in the administrat ivL'

capability of local government, the need for continuity of policy, con-

fidence in the abU ity of appointed citizens wIth a businessorientation

to conduct public business in a responsible manner, and frustration with

perceived bureaucratic inability to efficiently operate natural monopolies.

Authoriti~s .He administrativ~ arms of the parent (city) government. The

fact that they are granted independence, howeverlimited, and have a power

\)f independent decision making, to some extent, does not deny them their

guvernmental nature. Neither should they be treated as separate units of

guvernment.

Till-'Y have been created by the :Ict ion:,; l)[ governments whose officials haVl!

S0<'0 f it to have a particular functionperformed in a particularway.

* JTA is responsibleto th~ City Council for the mass transit budgetonly.

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They are, and should be, responsible to and controlled by their

parent government; though as this report will indicate, control~

should be in a manner which does not detract from their necessary

independence.

This report is directed at defining the concept of public

authorities in Jacksonville, reviewing their evolution, comparing

their scope and function against a "traditional" model, explorini~

the alternatives to the authorities, and understanding the

rationale for the current systems. This report includes findinp,s

of the study committee, conclusions based on those findings, and

recommendations for implementation.

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B. (;1~NEJ{1\L CII1\I{1\C'I'L';I\lS'I'ICS OF 1\ PUULlC 1\UTLlOIUTY-

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Thes.e general characteri::>tic:::; of public authorities are applicable in most

in:::;tance:::; to Jacksonville. Co~uent:::; specific to Jacksonville are included.

The 1\uthority 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 bureaucracy

The requirements for Council financial review and utili-

zation of Central Services and Civil Service of the cityplace the local authorities more within the basic structurethan is usually the case.

Subject to the review of elected officials, but in most cases

only inJirectly.

Able to reach across political boundaries

(JEA serves areas outside the city, as do the Port and

hospital authorities)

Limited to function, but unlimited as to method of operation

(For local authorities, some operational methodologyiH prescribed by st.:Jtute)

A performer of services of broad public concern which are natural

liIonopoljcs.

Extensively dependent on technology

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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 requiredby 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 and paid technical manag~r~

'. Empowered to incur debt which is ~enerally not considered to bea part of the debt of the sponsoring government entity

CotldiliOlls undL:r which Alithorilil!S arl.! parti.clIlar.ly lIs~fllj

for public services which constitute a natural monopoly

where the service can be self-supporting (non self-supporting

authorities should possibly be open to more frequent govern-men 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 to define

and evaluate because of technical and novel aspects

where the stability of management policy is essential and the

interlacing management controls of normal bureaucracy are

inappropriate and unnecessary

where daily integration with other government services is not

required

where existing debt limits and tax limits stand in the way of

new types of services

where the area to be served extends beyond existing politicalboundaries

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III STORY OF TIII~ AIITIIUR LTY CONCI';I'Tc. -----

The origin::>of public authorities go back to the Middle Ages. The earliest

public authorities were port authorities in the city states of Genoa and

Venice. Because of poli tical unrest, these authorities were developed to

provide a continuity of trading policy.

In the 17 th Century, public authorities developed in Great Britain as Ed tis!!

Crown Corporations, extended arms of royal power. The Hudson Bay Company and

the East l~dia Trading Company were developed to encourage trade and settle-

1Il,'nl in the ncw \"ol"ld.

illthe early HWO'::>, state ~overnJ!lentsin the United States sponsored

activities to finance banks, railroads and canals. They spent carelessly

and speculatively. The panic of 1837 caused widespread default on state

guaranteed debts. As a result, state legislatures placed severe restrictions

on ::>tateborrowing via constitutional limits. These restrictions extend

even until today. Presently only eight states have no borrowing power

limi t::>.

At the same time the state debt limits \.J,~reinstituted, demands for roads,

hospitals and schools began to increase. The authority was a device to

circumvent the state debt limit problem. The revenue bond was seen by the

courts as being outside of the borrO\'/ingpO\"er limits. It was also viewed

as being secure. Revenue bond financing allowed the borrowing agency to

finance public enterprises out of revenue produced by user charges.

In general ten'1s, the history of the modern day American authority dates from

the creatJ-onof the Port of Ne\.J York Authority in 1921. Authorities have

-.;pread rclpidly "int'" thi~; tim".

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Several programs created by the federal goverrunent after the Depression,- -

designed to spur the economy, also increased the number of authorities. The .~

Public Works Administration and the Federal Housing Administration created a

large number of authorities. The success of these authorities in turn

influenced the creation of other authorities. The Reconstruction Finance

Corporation offered loans for self-supporting projects and in effect also

stimulated authority growth.

During World War II there was a temporary halt to the growth of authorities.

Construction came to a standstill because of the lack of materials. Following

the war, however, the population expanded and placed a great demand on the

government for housing and roads.

Today, the growth of authorities is still stimulated by housing, airport

and hospital construction programs. Authorities are used to perform almost

every function that state and local governments perform. There is no accurate

counting of the number of authorities.

Local History

Authorities, prior to consolidation (1968), were political intrusions

on the local government system created by the legislature because it was

felt that the local people wanted them (included in this report are brief

histories of existing authorities). The reasons for the desire for authorities

included the need to provide services across political boundaries, lack of

popular trust in local government at that time, and a concern for

government's capability to administer services. They were considered

intrusions in that these authorities did not report to either the City or

County Commission."

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J.OC<.l) lIi~Lory (cont' d.)

At consolidation, authorities were established as part of the administrative

::: side of the consolidated government, responsible to the City Council in

finance and budgetary procedures and required, with some exceptions, tu uti-

lize the basic central services (personnel, purchasing, motor pool, legal) of

Lhe parent government.

Authorities were conceived to provide a maximum of business efficiency with a

minimum of day-to-day interference into operations by elected officials. While

emphasis wa~ placed on appointments and financial control because of the good

public image of the authorities coming out of the early 60's prior to consoli-

dation, apparently little thought was given to public relations or to the

possibil ily of a lack ur pllb1 il' coulJdl:IICl'in authoriLies.

D. PUBLIC AUTHORITIES - A CURRENTNATIONAL PERSPECTIVE

There are approximately 7,000 national, state and local public

authorit ies whose comhined budgetary expense exceeds $27 bi 11ion.

A recently completed five year study of Authoritiesl by Dr. Annmarie.

Walsh reported these facts and others with some relevance to authorities

in Jacksonville.

Only two of the fifty states (New York and Pennsylvania) have current

data on the authorities operating within their boundaries.

The majority of authority board members are businessmen.

Dr. Walsh proposes the following actions - to make authorities

more concerned about the impact of their operations and more responsible

to br.oader soe ia 1 nl~~ds:

Annmarie Hauck Halsh, The Public's nusiness: The Politics ahd Practices of

Government Corporations (CaI!lbridge,I.Iass:The HIT Press, 1978)

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Public debate and statutory definition of the goalsof public enterprises~

Broadening the boards of directors of authorities to

include representatives of various constituencies

affected by authority operations.

Establishment of public investment banking institutionsas an alternative to private money markets for the

financing of public enterprises.

California, Oregon and Washington have developed state controls over

authorities, primarily through reporting mechanisms.

E. PUBLIC AUTHORITIES - A FLORIDA. PERSPECTIVE

Local public authorities are categorized from a state perspective

as special districts.

The definition of a special district is one that generates its own

revenue and has a board that is elected separately from the city

commission. Special districts include not only local authorities

but also special taxing districts such as sewer or water districts.

The following information on special districts must be qualified in

that there is not a separation of local authorities and special

taxing districts.

The most recent information available on the state level is for the

fiscal year 1975-1976. In this year, 17% of all local government

revenue was generated through special districts. Bonded indebtedness

of special districts was $1,000,000,000, which is equal to the bonded

indebtedness of the counties of Florida.

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Special Ji~trict~ i~~ue 22~ ot all bonds and collected 4~% of all

user char~es in the state.,

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One of the reasons for the creation of special districts was political

constraints on existing government including financial limitations and

state constitutional debt limits on local governments.

Another reason for the ~pecial district creation is limitations on

local .government power. Although this is not necessarily as true in

Florida as other places, the usual rule (the Dillon H.ule) is that a

city only has those powers expressly delegated. In Florida, cities

huve power to do unything tlwy wish so long a~ this has not been

pre-empted by 'the Legislature. Special districts (authorities)

\...erecreated because of problems with municipal annexation and other

constraints on the power of local government. (i.e. a water district

that reaches across several geographic and political boundaries.)

Special districts were also created because of a need for sound

busine~s management procedures.

Traditionally, statewide special districts (authorities) have been

generally accepted by the public.

The problems of special districts (authorities) in Florida include:

1. Special ~istricts are by their indepeI~ent nature isolatedand not visible to the general public. Therefo::e,they aresometimes 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.

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J. The absencl' 01 IInifol-nl operational r~quireml~ntt) damages the -ability ot citizens LeS get involved since citizensdonIt know where'

and how to get involved .i.nthe 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 statedoes 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 havea social conscience).

6. Special districts can place an unequal burden especially if thereis overlapping of taxing districts on the citizens.

7. Representation - it is possible that special districts do not. represent all elements of the community on the basis of oneman, one vote.

An additional limitation to Ijpl.'cial district::; I::; they may have tu

pay a high 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 by special districts are not credited to a

county as taxes there may be a direct loss of revenue sharing funds

from the federal government. (Revenue sharing funds are based in part

upon a formula that includes local taxing as a factor.)

Over the past few year::;, concern about ::;pecial districts (authorities)

has been growing on a state level. The Florida House of Representatives

Committee on Community Affair::;has initiated and is concluding a study

of the entire area of special districts.

A bill to be introduced will require all special districts to report

financing and their plan of operation and if under a requirement to

ter~inate, their plan of termination to the circuit court clerk.

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There i::;no mechani::;mcurrently to require ::;pecia1di::;tricts to

report. There are no penilties for not reporting. This bill will

give some consideration to the possibility for the dissolution of an

authority that does not report and is apparently defunct.

There is an additional legislative move to consolidate all laws regarding

special districts into one chapter in the state statutes. There is

apparently little opposition to this move in the legislature.

Floridahas very little inror-mation ,)[1independent authorities.

There is practically nothing available at the state level. The

Local Covernment Commission in 1973 did an inventory on independent

authori ties. They deten'1ined that there wer-e some 350 independent

districts. The Federal Bureau of Census (1972) estimated that there

are 340 independE'l1tand special districts in the Slate' of Florid;l.

The COMmunity Affairs Staff CorrU'1itteenow estimates that there are

hSO indl~pend\;'nt SIK:cLiI districts.

The Florida House of Representatives has asked all county clerks

to provide basic information on special districts currently operable

within their counties. House members would like to repeal all inactive

special districts in the states.

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I,'. .JACI\Sl!~V I I. I.E I'U HI.II; i\U 111\11\IT LES

The six local public authorities are:- .

Jacksonville Electric Authority (JEA)Jacksonville Port. Authority (JPA)Jacksonville Transportation AuthorityDuval County Hospital AuthorityBeaches Hospital BoardDowntown Development Authority (DDA)

(JTA)

Included in this study are brief histories of these authorities

and comparison charts on their powers, duties, and boards. His-

torically, authorities have been developed to operate a proprietary

><function of government. Only three 0 f the six local authorities

do so (JEA, JPA, and JTA) - the other authorities are not self-

support ing and depend upon suhsidy from the cen tral government. .ITA

also depends on a subsidy for mass transit. The city operates one pro-

prietary function, Radio Station WJAX, as a city line division,part of

the Departmentof Recreationand Public Affairs.

The state statutes still include a .Jacksonville Vocational Authority

which has been defunct for several years and operated for only

approximately 18 months.

The last major citizens group to study authorities was the Local

Government Study Commission prior to consolidation (1966). Authorities

made a very positive impression on the commission. However, the Com-

mission did recommend the dissolution of the Hospital Authority

believing that authorities work best for proprietary operations.

As has been noted, prior to consolidation, authorities did not report

to the local (city or county) government.

* A prf\pr ietary function of governrlent is.a funetion of business ornatural servicemonopolyoperated by an arm of governJ!lentthat isrevenue pruducing and/or self-supporting.

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- Jacksonvi.lle Public AutllOrll:l.cs (co1\L'd.)

:; One concept developed by the Local Government Study Conunission and

adopted in the charter was that there should be a single legislative

body (City Council) to r~view all finances.

Authority budgets are required to go to the legislative body (City

Council) . The JTA highway budget is exempt from this requirement

since this function of the Transportation Authority is not backed by

city funds. However, the highway budget is submitted to the City

Council as a courtesy.

One governmental reality that can be a constraint is that ongoing

political bodies (city councils, legislators) tend to look at

problems in terms of length of office. It is hard for an elected

political body to have vision - they tend to neglect infrastructure -

for example, capital expenditures. This was true for both the old

City Conunission and City Council. They had the responsibility for

the port functions and generation of electricity, and seriously

neglected both in construction and maintenance.

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c. lllCIJLlCllTS ()Jo' I.OCAI. l'UHLl.C AUTlJOIUTLE:; :

- .1. JACKSONVILLEPORT AUTHORITY

The Jacksonville Port Authority was created by the state legislature'

in 1963 to manage the Jacksonville municipal docks. Jacksonville

at that time was far behind other southern ports, as the city govern-

ment had neglected dock facilities. The JPA was charged with

improving the port facilities and making them competitive with other

ports.

The Port Authority has the power to own, maintain, and operate

facilities for the operation of seaports and airports in Jackson-

ville. Its jurisdiction is limited to those properties which it

owns. It has no jurisdiction over privately owned properties.

In 1965, a $25,000,000 p,eneral obligation bond issue was passed by

the citizens of Jacksonville to improve the Talleyrand docks and

terminals.

In 1968 the Jacksonville Port Authority took over the management of

the airport and now is in charge of all three municipally owned

airports. The City of Jacksonville is required by law to contribute

not less than $800,000 to the JPA annually. For the past three years

the .IPA has elected to return this money to the city.

There are seven members on the authority board, four of which are

appointed by the governor and confirmed by the Florida Senate and

three by the mayor, confirmed by City Council.

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,J iH': ,,'" U .. v ~,.!-.!-L j V. L "L' L,,~. ~ L..L ,- - .. - ".,

The JPA directly or indirectly employs approximately 10% of the

-total work force in Jacksonville. It has trade development offices

in New York and Chicago in addition to the office here.,'.

2. JACKSONVILLE ELECTRIC AUTIIORITY

The city of Jacksonville constructed an electric plant on Main Street

in 1895. In 1912, the Talleyrand Generating Plant (now 'the J. .

Dillon Kennedy Plant) was built. The Jacksonville Electric Authority . ,";

was established in 1968 to replace the City Utility Commission. At

this time the assets and debts of the electric company were transferred

to the J.E.A.

In 1971 restrictions by the Environmental Protection Agency required

that the JEA burn more expensive, less polluting fuel oil. A fuel oil

adjustment charge was added to consumer bills to cover the increased

cost of fuel oil. In 1973 the ~id-east OPEC oil crisis escalated the

price of fuel oil. Electric rates increased correspondingly. Public

resentment a~out the cost of electricity began at this time.

The Jacksonville Electric Authority is governed by an authority board

of seven members who are appointed by mayor and confirmed by City Council.

These members serve staggered four year terms. The JEA is the fourth

largest utility in Florida.

JEA makes a signifi<;:ant contribution to the general fund of the city

by payment in "lieu of taxes". This money is utilized for the operation

of general government. The formula to determine the contribution of

JEA to the city was changed in June, 1978 and is now 4.5 mills per 1,000

kilowatts of generated power based on the previous year's power production.

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JackBonville Electric 1\uthoriLy (cont'd.)

; The JEA operates the J. Dillon Kennedy Generating Station, the South-

side Generating Station and the Northside Generating Station. Plans

have been initiated for two 600 megawatt coal-fired generating plants

in a joint venture with Florida Power and Light Company. The feasi-

bility of using nuclear energy as a power source has also been explored.

3. JACKSONVILLE TRANSPORT1\TION 1\UTIIORITY

The Federal Highway Act of 1944 known as the Interregional Highway

System and now known as the National System of Interstate and Defense

Highways, was the basis for the conception of the interstate highway

system through Jacksonville. Plans for the proposed system of roads,

bridges and interchanges were presented under the guidance of the

Highway Committee of the Jacksonville Chamber of Commerce to civic

organizations for public acceptance. The Matthews Bridge, the Fuller

Warren Bridge, and a few sections of the expressway were completed.

When it became apparent that the expressway system was slated to be

completed on a piecemeal basis and no definite time frame would be set,

the citizens of Duval County pushed for a method of obtaining an

expressway system which was not dependent upon the whims of each

succeeding state administration. As ~ result the Jacksonville Express-

way Authority was created by the state legislature of Florida on June

23, 1955 under the sponsorship of Duval County legislators, Senator

Fletcher Morgan, and Representative William H. Maness, Lacy Mahon, and

Harry Westberry.

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.J,lckSlJI1ViJ.J.L' 'l'l',IIl::>pOrulljoll ,\uLllorily (CUlll'd.)

The purpose of the authority W;IS to finance ano complete the construc-:

tion of the Jacksonville Expressway System. The membership of the

authority was to consist of three members appointed by the Governor,

two ex-offi.ci.o memher.sconsisting or the Chainllanof the BO;lI-dof

Commissioners 0 f Duval County, and the S tate Road Department member. repr.c-

sentin~ District No.2.

With the passageof Article 8, Section 349.01 - 349.17 iri 1968 the

Jacksonville Expressway Authority became an independent agency of the

state. This \vas part of the ler,isl.:1tionest"!» ishing the new consol i-

dated goverrunent. The mel'1hershipof the authority was altered by this

legislat ion. Three board members were to be appointed by the governor,

three by the mayor, and one member \Vas to be the District Two Engineer

or the Dcpartlllcnl of 'J'ritIlSpOl:t;lt LOll. 1n 1')7 J the Jacksonv illc ExpreSS\v;iy

Author ity becar.1C the JacksonvUle Transportation Authori ty. The JTA was

ch;lrgcd wilh ilc«lIirillg ilild o\Il'riltillg a mass transit system at thal tilill'.

Since th'ell tile .ITA has buill 132 miles of freeway and four lane highways.

It purchased the bus company in 1972. Ridership on this mass transit

has increasedby 50% since that lime. Presently the Authority is

working towards the establishment of the proposed Downtown People ~lover

system.

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II . IJI)VAI. C(JlJNTY JJlI~)I'J 11\1. Ill' I 11'"\1 II

The County Commissioners of Duval County in the early 1900's built

a hospital for indigent care. It operated on donations and a small

amount of local taxes until 1923.

At that time the state legislature passed Chapter 9274, No. 156 which

was sponsoredby Mr. R. P. Daniel. This act created a County W~lfare

Board for all counties with a population over 100,000. The board

which consisted of nine members appointed by the governor was charged

with providing temporary food, shelter, and medical care for the poor.

Under the leadership of the Duval County Welfare Board, the old Duval

Medical Center (Boyd-McGinnis Unit and Daniel Unit) was constructed.

The Memorial Unit for psychiatric patients was built in 1947 and the

Nursing School Building constructed in 1955. The number of persons

receiving care increased greatly during the depression.

In 1959 the legislature passed chapter 59-542 which changed the welfare

board to a hospital board. In 1963 the Duval legislative delegation

created the Duval County Hospital Authority. This new authority was

to have seven appointed board members and was given the power to issue

bonds with I he approval of the freeholders of Duval County.

In 1964 an initial $20,000,000 bond issue passed by more than a two

to one majority. Consultants and architects were hired to plan Univer-

sity Hospital which was constructed and dedicated in 1971.

In 1968 the law establishing the Duval County Hospital Authority,

chapter 63-1305, was incorporated as a special chapter in the consoli-

dated government of Jacksonville. The new legislation required nine

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Duval County lIospital Author-ity (cont'd.)

board members to be appointed by the mayor with the approval of

City Council. The number of physicians serving on the board at

one time was limited to two. The authority was required to use the

central services department of the city and have its budget approved

by City Council.

The authority is dependent upon the city for tax funds. The major

thrust of the Duval County Hospital Authority's responsibility is to

provide care and treatment of the medically indigent who are estimated

by the Hospital Authority to comprise 25% of the Jacksonville population.

To accomplish this they offer a wide range .of inpatient, outpatient, and

emergency services. They also provide training for undergraduate

medical students, practical and registered nursing students, paramedics,

and medical and radiologic technology students through their affiliation

with major universities, Florida Junior College, and the Duval County

schuol system.

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5. BEACHES HOSPITAL AlJTHOHTTY ~.~

In 1959 the state legislature created a special tax district which

included the area bounded by Mayport, the St. Johns County line,

and the Inland Waterway on the west, to provide medical care for the

citizens of this area. This district was governed by a five person

board appointed by the governor. It was empowered to levy 5 mills.

A 25-bed hospital was opened in 1961. In 1967 an addition to the

hospital was constructed which increased the number of beds to 75.

The passage of the Jacksonville consolidated government changed the

special tax district to an independl!nt authority. This legislation

created a seven member authority appointed by the mayor and subject to

confirmation by City Council. Two board members must be residents of

the City of Jacksonville Beach, two residents of the City of Neptune

Beach and two residents of the City of Atlantic Beach. One member

must be a resident of the hospital district at large. The number of

physicians who can serve on the board at one time is limited to two.

The bonded indebtedness of the authority is taxed against the citizens

of the beaches urban service districts. The general operating funds are

provided by an allocation from the City Council. In 1973 an emergency

room and critical care unit \oJereadded to the hospital.

There are 35 active members on the medical staff at the Beaches Hospital

presently. The authority is required to use the central services and

the legal staff of the city, but not the Civil Service.

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6. DOWNTOWNDEVELOPMENTAUTHORITY

The Downtown Development Authority was created in 1971 to implement

the downtown development plan prepared by the Planning Board and

adopted by City Council. .Since then the authority has updated this

plan and coordinated tl~ engineering and architectural planning neces-

sary to accomplish this plan. The Downtown Development Authority did

the revenue bond feasibility studies for parking facilities on the

river, preliminary studies for the second-level walkway system in the

downtown plan, engineering plans for the Main Street improvement, and

landscaping plans for the downtown area. The Downtown Development

Authority coordinates with the Department of Transportation the

downtown street system. It serves on the transportation policy com-

mittee. It has the power of eminent domain, may own and manage

property, and may sell bonds.

It set up a task force composed of both private and public utilities

to work with private developers to preclude problems which may occur

because of a lack of information about regulations and legal require-

ments.

The Downtown Development Authority charts the economic growth of the

dO~ltOwn area by keeping a current account of the downtown tax base's

growth and its contribution to the city's total ad valorem tax income.

It serves as a communication link between the public and private sectors

in their efforts to rebuild downtown Jacksonville. The authority consists

of seven members who are appointed by the mayor and confirmed by City

Council.

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