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RESOLUTION
No. 78 --17
M;L
A RESOLUTION OF THE CITY COMMISSION OF THE
CITY OF CLEARWATER, FLORIDA, ENDORSING THE
FINAL REPORT OF THE CONSTITUTION REVISION
COMMITTEE OF THE FLORIDA LEAGUE OF CITIES
AND THE LEAGUE'S POSITION ON THE PROPOSALS
PRESENTED TO THE CONSTITUTION REVISION
COMMISSION,
WHEREAS, the Constitution Revision Commission has before it
many proposals; and
WHEREAS, the Constitutional Revision Committee of the Florida
League of Cities, Inc. has submitted its final report, and such report has
a.a
:T been accented by the League and adooted as its nasition nn thw nrnnnr,ala
' presently before the Constitution Revision Commission; and
WHEREAS, the City Commission desires to set forth its endorsement
?C•
' of the position of the Florida League of Citiea, Inc;
NOW, THEREFORE, BE IT RE-SOLVED BY THE CITY
;. COMMISSION OF THE CITY OF CLEARWATER, FLORIDA,
IN SESSION DULY AND REGULARLY ASSEMBLED, AS
FOLLOWS:
1. That the City Conurnission of the City of Clearwater wishes to
endorse the position of the Florida League of Cities, Isis. and supports the
final report of the Constitutional Revision Committee which Policy Statements
No. I through 16 are attached hereto, marked Exhibit A and made a part
hereof,
2. That a certified copy of this Resolution be foxwa•rded forthwith to
the Constitution Revision Commission.
PASSED AND ADOPTED this. 16th day of February, A. D. 1978,
Attes
ts
9?
t d
Clerk
Reno . #78-].7
Mayor-Commiesi r
$y,+"'1
N:,?; i?ti•i?'::'4?" •, ?`?" '1 ' •
i4;?'1•rt'Vh`t4?.'!"-.:)',??`_,'!i. ?3 i.'?,1» .. .1`. .•., .. . _. 1_1 i_..._?_. _ ,-?rrr .,
February 16, 1976
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FINAL REPORT ?....1 .t?'•
OF THE
,• ,:,, ?'-'. CONSTITUTIONAL REVISION COMMITTEE
OF THE :..:.; ?-
FLORIDA LEAGUE OF CITIES, INC.
!1ol s,1':$ SEPTEMBER, 1977
The Constitutional Revision Committee of the Florida Lague of Cities, Inc., was created on December 17, 1976
.,? ^ • •?? }' ` - ?' b FLC President Ames G. Richardson Jr. President Richardson appointed Gainesville Commissioner Joseph W. Little
. t, ?? ?irr.>:-' ?•.: c; ??;_'i, ' " ti's; rY
as Chairman, and the following municipal officials in Florida as members of the Committee: Paul S. Buchman, City
:?ti
Tom S. C•oldewey, Commissioner of Port St. Joe; James A. Drives, Mayor of Winter Park; Osee
Attorney of Plant City,
R Fagan, City Attorney of Gainesville; George F. Knox, City Attorney of Miami; John H, Land, Mayor of Apopka;
Carl T. Langford, Mayor of Orlando; William Madison, Office of General Counsel, Jacksonville (deceased, May, 1977);
Douglas H. Oswald, Mayor of Ocala; Jan K. Platt, Council Member of Tampa (resigned on July 11, 1977 upon
becoming a member of the Florida Constitution Revision Commission); Charles E. Schuh, Mayor of SL Petersburg
(retired as Mayor of St. Petersburg In March, 1977); E. Clay Shaw, Jr.. Mayor of Fort Lauderdale; Merritt Stlerheim,
r- County Manager of Metropolitan Dade County; Kenneth Thompson, City Manager of Sarasota; James La Watt, City
r;t. Attorney of West Palm Bach; and Allen Clements, Jr., Counsel for the Dade County League of Cities. Ex-Officlo
members appointed were: James G. Richardson, Jr.. President, FLC; Virginia S. Young, 1st Vice President, FLC; J. L.
Plummer, Jr., 2nd Vice President, FLC; Raymond C. Sittig, Executive Director of the FLC; Ralph A. Marsicano, Lague
-'s Counsel, FLC; and Burton M. Michaels, Staff Attorney, FLC.
Upon the retirement from office of President Richardson as Mayor-Commissioner of Gainesville In May, 1977,
First Vice President Virginia S. Young became Acting President of the Florida League of Cities, Inc. Prior-to the June 8,
1977, Meeting of the Committee, Acting President Young appointed Mayor Corinne Freeman of St. Petersburg to the
Committee to replace former Mayor Schuh of St. Petersburg, who had retired from office in March, 1977.
f. The organizational meeting of the Committee was held in Tampa on February 18, 1977, and the Committee held
other full Committee meetings on the following dates: March 4, 1977, in Jacksonville, and on April 29, June 8 and
re
:
August 2,1977, in Tampa.
: The Committee's work was developed through three (3) Subcommittees appointed on March 4, 1977, by
Committee Chairman Little:
' Subcommittee 1 - Finance and Revenue: Chairman - Paul S. Buchman; Members - Jahn H. Land, Douglas H.
Oswald, Jan K. Platt, Charles E, Schuh and Merritt Stierheim.
Subcommittee i i • Local Government Powers: Chairman - Allen Clements, Jr., Members - Osee R. Fagan, Carl T.
{ Langford, William Madison, Ralph A. Marsicano and Kenneth Thompson.
ts; Subcommittee III - Local Government Duties and Liabilities: Chairman • James L. Watt; Members - Torn S.
Ap
,S
Coldewey; James A. Driver, George F. KnoK and E. Clay Shaw.
d
GI<-.
'j.
} Each of these Subcommittees met independently of each other, and their recommendations as to policy
statements, amendments to the Constitution of Florida, and supporting commentaries were reported to the full
Committee. Each Subcommittee recommendation was thoroughly discussed, debated and voted upon at a meeting of
the full Committee, and Individual committee members were also afforded an opportunity to make individual
recommendations.
Subsequent to the last full Committee meeting an August 2, 1977, a draft of this Final Report was circulated to
Committee members for their review.
The following constitutes the recommendations of the Committee to the Florida Constitution Revision
Commission to be considered in their deliberations concerning the 1978 Revislod of the Constitution of Florida.
Respectfully submitted,
ltf
Joseph W. Little
Chairman
Reeo.. #78-P
•i
EXHIBIT A 2/16/78
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POLICY STATEMENT NO. i
THE FLORIDA LEAGUE OF CIrIES, INC,, SUPPORTS A CONSTITUTIONAL AMENDMENT CLARIFYING
CONST/TUTlONAL HOME RULE ieORMUNICIPALITIES. f,..r;..•?.,,.?
rspili}, ' s,
TEXT
ARTICLE Vlll
LOCALGOVERNMENT
SECTION 2. Municipalities.-
(b) POWERS. Municipalities shall have governmental, corporate and proprietary
powers to enable them to conduct municipal government, perform municipal functions
and render municipal services, and may exercise any power for municipal purposes
except as otherwise ptovided prohibited by rg2nera1 law. Each municipal legislative body
shall be clectiva,
COMMENTARY
The operation of laat government is strongly affected by the structural organization that is created under the
Constitution. important facets of this organization are home rule power, ability of the Legislature to control local
government, ability of local governments to finance themselves, and local control of the reorganization of local
government. While tho idea of home rule Is an old one and a strongly hold one, in most states of this country, it Is not
one that has been implemented historically. Instead, the general rule on home rule is expressed by the so-called Dillon's
Rule, That is, municipal governments have only the powers expressly authorized them by the Legislature, those
necessarily implied in the expressed power, and those essential to the carrying-out of authorized functions. When there
is anydoubt as to the existence of power, it should be decided against the municipality. In Florida, Villon's Rule has
been applied In the courts and has been extended to counties as well as cities.
The two basic modes of home rule have developed throughuut rite country. One is the so-called "imperium in
imperlo." The Imeerio rule implies that the home rule power is superior to the power of the legislature within the scope
of its operation. Specifically this scope is dellmlted by a tarn such as "for a municipal purpose." Owing to formulation
in this manner, it is the courts that ultimately decide whether state taw or municipal power prevails in the case of a
conflict. If the imperio•power is embedded In a constitution, then it is beyond the ability of the legislature to modify IL
Jefferson B. Fordham, formerly Dean of the University of Pennsylvania's law school, developed an alternative
home rule model Char is sometimes known as the National League of Cities' model, The National League of Cities'
model devolves upon home rule munIclpallties the authority to exercise any power for public purpose. On its face, this
appears to be a broader grant of authority than that provided by the Imperio mode. Receding from that broad grant,
however, is a limiting provision making the home rule power subject to state legislative control through general law,
Consequently, It Is the state legislature and not the courts that ultimately will determine the permissible scope of home
rule authority under the NLC model. Notwithstanding that, the NLC model does acknowledge that the structure and
organization of the charter (some rule government are not subject to legislative control by either general or speciat law.
Variation exists In the methods by which a local government may claim home rule power. First, there is a division
between constitutional home rule and legislative home rule, Constitutional home rule implies that the state constitution
sets forth the borne rule provision, putting the provision Itself beyond legislative control. By contrast, legislative home
rule Implies that the legislature has delegated some of its authority to the local government Home rule 6f this nature Is
tenuous, of course, because what has been given can always be retracted.
Even constitutional home rule can be effectuated In several ways, A constitutional provision could devolve directly
upon local governments the power"; that are given, or it could require that the home rule local governments claim the
home rule authority by adopting a chaster. The latter method of claiming home rule power implies a vote of the
electorate, It also implies the potentiality of local variability in the nature of the powers claimed. Even when the '
constitution does not require the adaptfen of a charter, the constitutional provision can still be construed to require
implementing legislation by the legislature. For example, the Supreme Court of Florida ruled In the Cit ofo_f_ Miami
Sugh,v- Flaetwnod Hotel, enc. 261 So2d 1301 (F1a.1972), that the Florida provision was not self•execu ng. IT n 1973,
the legislature enacted Chapter 166, Florida Statutes, to achleve this result, and the case of City of Miami Beach v.
FprteTowers. Inc. 305 5o.2d 764 (FIa.1975), upheld the validity of the Municlpal Home Rule Powen ACL
Rears, VD-17
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2/17/78
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Home rule provisions that comprehend continuing oversight by the legislature themselves allow for variability. If it
''° '('-'i2 ',•':' is desired that the logislature have the power to supervise local governments on an individual basis, then one would x; 5.1
allow controlling legislation by special law or simply by "law," as in Florida, On the other hind, if It Is desired that the
?, . ,,,'?;•,. legislature have general supervisory control over local governments but not have the power to intervene directly and w ,fir
Individually In the affairs of a specific locality, then one would allow controlling legislation by "general law," as In the y='
?•'?js=si•', ;;.,.,,, NLC model. Florida charter counties have an unusual variation of this in that such counties home rule powers can be
controlled either by general law or by special law approved by a local referendum.
The purpose of this policy is to produce true constitutional home rule for Florida's municipalities, subject to >'.
;'i" legislative overview by general law. POLICY STATEMENT NO.2
THE FLORIDA LEAGUE OF CITIES, INC., SUPPORTS A CONSTITUTIONAL PROVISION WHICH WOULD
PREVENT THE LEGISLATURE FROM ERODING MUNICIPAL AUTHORITY TO PROVIDE PROPRIETARY
SERVICES IN THE PUBLIC INTEREST.
TEXT
ARTICLE VII
FINANCE AND TAXATION
SECTION 9. Local Tones Finance and Taxation,-
c in the performance of ro rieta services counties and municipalities shall not
be prohibited from making a return thereon.
COMMENTARY
Provision for proprietary services has long been a part of municipal governments and a right to make a reasonable
rate of return qn the services provided has long been acknowledged, Indeed, the Florida Supreme Court has recently
reaffirmed that "Nothing prohibits a municipality's 'making a modest return of Its utilities operation or certain portions
thereof, providing the rate is not unreasonable' ". Contractors and Builders Assoc. Y. City of Dunedin, 329 So* 2d 314
(Fla,1976), fn, S at 318, citing earlier cases. Moreover, it has been observed that In one of Florida's depressions,
municipal governments were able to operate only because of the availability of profits earned by munlcicat utilities.
Hillhouse, Wall Street and the Securi Markets (1936), at 281. Reasonable return from proprietary services results In
reduction of the tpx burden or enables local governments to provide improved governmental services.
A recent effort In one Florida county to deprive local government of the power to make a return on proprietary
services by special law points out the perilous position In which municipalities find themselves in this respect in the
absence of any constitutional proscription upon the legislature's authority.
Other states have met this problem by setting forth protective provisions in their constitutions. For example, in
the New York "Bill of Rights for Lows Governments" is found the following provision:
"No local government shall be prohibited by the legislature (1) from making a fair return on the value of the
property used and useful In its operation of a gas, electric or water public utility service, over and above costs of
uperatlon and maintenance and necessary and proper reserves, In addition to an amount equivalent to taxes
which such service, if privately owned, would pay to such local government, or (2) from using such profits for
payment of refunds to consumers or for any other lawful purpose." Art_ 9, Section l(f), New York
Constitution.
Of a similar nature Is the following statement found in the Arizona Constitution:
-3-
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"Every municipal corporation within this state shall have the right to engage In business or enterprise which
may he engaged in by a person, firm or corporation by virtue of a franchisefrom said municipal corporation."
Art. 13, Section 5, Arizona Constitution.
While the express wording of the Arizona protective statement does not preclude legislative taking away of profit, cases
such as City of Phoenix v. State of Arizona, 53 Ariz. 28, 85 P.2d 56 (1938), imply this result and there appears never to
have been a challenge of it.
f
POLICY STATEMENT NO.3
THE FLORIDA LEAGUE OF CITIES, INC., SUPPORTS A CONSTITUTIONAL PROVISION THAT WOULD
PREVENT THE TRANSFER OF A MUNICIPALITYS POWERS TO A CHARTER COUNTY UNLESS THE
ELECTORS OF THATAIUNICIPALITYAPPROVE'SUCH TRANSFER.
1T=
'ARTICLE Vill
LOCAL GOVERNMENT
t SECTION I. Counties.- ,
(g) CHARTER GOVERNMENT. Counties operating under county charters shall
have all powers of local self-government not Inconsistent with general taw, or with
special law approved by vote of the electors. The governing body of a county operating
under a charter may enact county ordinances not inconsistent with general law. The
charter shall provide which shall prevall In the event of conflict between county and
COMMENTARY
This proposal seeks to protect the political autonomy of people living in municipalities. It would allow the citizens
r of each municipality to determine whether they wished to pay the extra costs, if any, of providing services In the
particlular municipality rather than join a larler countywide unit. A neytive vote by the people of a particular
municipality would not defeat such a plan, but would exclude Its operation as to thtt munlcipttity.
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POLICY STATEMENT NO, 4
THE FLORIDA LEAGUE OF CITIES, INC., SUPPORTS A CONSTITUTIONAL PROVISION THAT RESERVES TO
THE ELECTORS OF A MUNICIPALITY THE FINAL DECISION AS TO WHETHER OR NOT IT SHOULD BE
ABOLISHED.
TEXT
ARTICLE VIII
LOCAL GOVERNMENT
SECTION 2. Municipalities.-
{a) ESTABLISHMENT. Municipalities may be established or abolished and their
charters amended pursuant to general or special law. When any municipality is abolished,
prov[slon shall be made for the protection of its creditors. No municipality shall be
COMMENTARY
This proposal seeks to protect the political autonomy of people living In municipalities. It would require that any
municipa; abolition be preceded by an affirmative vote of the electors of the municipality.
POLICY STATEMENT NOS
THE FLORIDA LEAGUE OF CITIES, INC, SUPPORTS A CONSTITUTIONAL PROVISION WHICH WOULD LIMIT
THE CONSOLIDATION OFA COUNTY GOVERNMENT AND ANY MUNICIPAL GOVERNMENT ONLY If THE
ELECTORS OFTHAT MUNICIPAL17 YAPPROVESUCH CONSOLIDATION.
TEXT
ARTICLE VIII
LOCAL GOVERNMENT
SECTION 3. Consolidation.- The government of a county and the government of
one or more municipalities located thtteln may be consolidated Into a single government
which may exercise any and all powers of the county and the several municipalities. The
consolidation plan may be proposed only by special law, which shall become effective if
approved by vote of the electors of-the.coutstyr-" of the county and municipalities
affected, as may be provided In ilia plan. Consolidation shall not extend the territorial
scope of taxation for the payment of pre-existing debt except to areas whose residents
recelve a benefit from the facility or service for which the Indebtedness was Incurred.
COMMENTARY
This proposal reflects the view that people in municipal governments ought to enjoy autonomous self-determina-
tion in decisions that might abolish existing municipalities. The Proposat does not opposa consolidations, but requires
that the abolition of any rnunicipality'must be approved by the voters of that individual municipality. The rejection of
abolition by a municipality need not defeat a consolidation plan; however, for example, a plan could be proposed In a
county containinY three municipalities that would create a consolidated governmant to supplant the existing county
government and the governments of any of the municipalities in which the vote was favorable. Suppose when the vote
was taken a majority of all the voters in the county voted yes and a majority of the voters In City A and City 8 voted
yes, but a majority of the voters In City C voted no. In that case, the consolidation would take place with a
consolidated goverriment supplanting the former county government and the governments of City A and City B. City C
Wautd remain In existence, and would have a relationship to the consolidated government similar to the relationship
formerly existing between the county government and the municipal government.
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POLICY STATEMENT NO.6
THE FLORIDA LEAGUE OF CITIES, INC., SUPPORTS A CONSTITUTIONAL PROVISION WHICH PROSCRIBES y°
° ', ?' •::. '.. ' THE LEGISLATURE FROM MANDATING LOCAL GOVERNMENT COSTS AND/OR SERVICES WITHOUT'
PROVIDING FUNDING OR AUTHORITY FOR FUNDING.
TEXT
ARTICLE Vill
LOCAL GOVERNMENT
COMMENTARY
t Inherent in the home rule doctrine, Is the right of the taxpayers to be heard before their city councils on all
matters Involving priorities, budgeting and expenditure of coal funds. The legislature has articulated this right in its
enactment of Sections 286.011 and 200.065, F.S. This right of direct citizen participation is offended when the
+} legislature preempts the local decision making process, and mandates the expenditures of muntclpal funds. Locally
determined priorities are frustrated, and local budgetary processes are thwarted. If the legislature chooses to mandate
local costs and/or services, then the legislature must assume the remainder of the responsibility for funding such
mandated costs.
POLICY STATEMENT NO, 7
ENTITIES HAVING THE POWER OF EMINENT D041AIN SHOULD BE REQUIRED TO COMPENSATE THE
OWNER OF PUBLIC PROPER7'Y TAKEN BY EMINENT DOMAIN AS WELL AS THE OWNER OF PRIVATE
PROPERTY.
TEXT •'
ARTICLE X
MISCELLANEOUS
SECTION 6. Eminent domain. -
(a) (a) No private or ublic property shall be taken except for a public purpose and
with full compensation therefor paid-to each owner or secured by.deposit in the registry
of the court and available to the owner.
COMMENTARY
SECTION 6(a), Article X, Constitution of the State of Florida provides:
"(a) No privato property shall be taken except for a public purpose and with full compensation therefor paid to
each owner or secured by deposit in die registry of the court and available to the owner."
Frequently, one entity having the power of eminent domain his condemned property of another entity having the
power of eminent domain.
The right to take public Land by eminent domain is expressly authoriztd by statute In specific situations. Examples
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SECTION 2. Municipalities.--
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Include s.180.22, F.S. (municipal water and sewer systems); s. 338.04, F.S. (limited access facilities); s.'360.02, F.S.
(railroad and canal companies); s. 361.04, F.S. (private water companies); s. 361.05, F.S. (natural gas companies); s, '
361.06, F.S. (pipeline companies); s. 361,07, F.S. (private sewer systems), However, a county is expressly prohibited
from condemning state land for any county purpose (s.127.01, F.S.I.
In regard to private property, the power to condemn for a public use, is, of course, subject to the constitutional
„ y. .4 limitation that compensation must he paid Inr the property taken.
Some slates have held that public property, If held strictly for public use, may be condemned for some other
l ;;c y ; public use, without the consent of the city or town to which it belongs
and without compensation (see e.g.
In re
;1 "i, ,"if- ,
,
Condemnation of Land by Pennsylvania Turnpike Commission, 347 PA 643, 23 A.2d 910 (1943). Sometimes a
ntincuon r+ mace between property c t by a mumcipa ity or a governmental purpose and that held by it in Its
9 proprietary capacity, with compensation more likely to be given in the latter situation. Sec c.1t., 56 ALR 365. In
Florida, this question is not well-settled, although State Department of Transportation Y. Byrd, 273 So.2d 400,
suggests that a municipality is entitled to compensation for park langs. It is not clear w e er the State raised this
constitutional question in that lawsuit.
'. ? klf ri
rk".
The constitution should be amended to guarantee compensation to municipaiities for property taken by eminent
?f, ..'. domain.
POLICY STATEMENT NO.8
THE TORT LIABILITY OF THE STATE, STATE AGENCIES, STATE POLITICAL SUBDIVISIONS AND
MUNICIPALITIES SHOULD BE THE SAME IN REGARD TO SOVEREIGN IMMUNITY OR LIMITED SOVEREIGN
IMMUNITY.
TEXT
ARTICLE X
t= - MISCELLANEOUS
SECTION 13. Suits against the state, counties, school districts, municipalities,
special districts. and other ubiic encies.- ovision may be made by general law or
t bringing suit against the state, counties, school districts, municleallties, special districts,
and other public agencies, u to all liabilities now existini or hereafter orittinatina and
COMMENTARY
Section 13, Article X, Constitution of the State of Florida provides:
"Suits against the state.- Provision may be made by general law far bringing suit against the state as to all
liabilities now existing or hereafter originating."
For many years the rule in Florida was that municipal tort liability was determined by whether the act that caused
the Injury was done in the performance of a governmental or a proprietary functlon. This distinction was specifically
abolished by Hargrove v. Cocoa Beach., 96 So.2d 130 (FIa.1957). Generally speaking, a municipality is liable for an
Injury proximately cause byte negligence of a municipal employee if the act that causes the injufy Is not done in the
performance of a legislative, judicial, quasi-legislative or quasi-judicial functlon, and the person Injured was owed a duty
of care more specific than the duty owed to the public at large.
Effective January 1, 1975, Section 768.28, F.S., was amended so as to grant limited sovereign Immunity to
municipalities. Commonly referred to is the "waiver of sovereign immunity statute", it purports to limit the liability of
municipalltles to $50,000.00 per person and 1100,000,00 per occurrence. Nevertheless, the Attorney General, In AGO
076-41, cut doubt upon the application of Section 768.28, F.S., to questions of municipal liability by stating that with
-7r-
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ReEto: 478-17 2/16J?8
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the exception of Immunity in the exercise of legislative, judicial, da legislative and
g quasi•Judicial functions,
municipalities possess no aspect of the State's sovereign Immunity from tort liability upon which the State's waiver of
'''''a sovereign immunity contained in Section 768.28, F.S., could operate. Consequently, municipalities arc In doubt as to ; a
whether reliance can be given to Section 768.28, F.S., or any other immunity statute, and to what degree, if any, they
;?c.'?• ;;;rt ;`;:• have sovereign immunity. Furthermore, the difference between the state, counties and municipalities in regard to tort 'r
p ' :":'' `l'<:•=f liability is artificial. The right of citizens to sue governmental agencies should not turn on the criterion of whether the
tort was committed by a municipality, a cnunty or the State itself. Accordingly, tjte proposed suttment should be
adopted, equating the immunity of all governmental agencies to that of the State and authorizing the legislature to :y
waive immunity to the extent It chooses, so long as the equality among governmental agencies remains. Noticing in this r.
ri- <; ~, 4i ;= r .+• provision would prevent the leglslature's passing special relief bills it deems appropriate.
POLICY STATEMENT No, 9
THE FLORIDA CONSTITUTION SHOULD PERMIT THE ISSUANCE OF REVENUE BONGS FOR THE
DEVELOPMENT OF RECREATIONAL FACILITIES WHICH ARE DESIGNED 7'Q ATTRACT TOURISTS TO THE
STATE AND ITS MUNICIPALITIES.
TEXT
ARTICLE VII
FINANCE AND TAXATION
SECTION 10, Pledging crediir'- Neither the state nor any county, school district,
municipality, special district, or agency of any of them, shall become a joint owner with,
or stockholder of, or give, lend or use its taxing power orcredit to aid any corporation,
association, partnership or person; but this shall not prohibit laws authorizing:
(a) the investment of public trust funds;
(b) the Investment of other public funds In obligations of, or insured by, the United
States or any of its instrumentalities;
(c) the Issuance and sale by any county, municipality, special district or other local
governmental body of (1) revenue bonds to finance or refinance the cost of capital
projects for airports,-w port facilities or recreational facilities, or (2) revenue bonds to
finance or refinance the cost of capitaprojects or n ustr at or manufacturing plants to
the extent that the interest thereon Is exempt from income taxes under the then existing
laws of the United States, when, in either case, the revenue bonds are payable solely
from revenue derived from the sale, operation or leasing of the projects. If any project so
financed, or any put thereof, is occupied or operated by any private corporation,
association, partnership or person pursuant to contract or lease with the issuing body,
the property Interest crested by such contractor lease shall be subject to taxation to the
same extent as outer privately owned property,
(d) a municipality, county, special, district, or agency of any of them, beinga joint
owner of, giving, or lending or using Its taxing power or credit for the joint ownership,
construction and operation of electrical energy generating or transmission facilities with
any corporation, association, partnership or person.
COMMENTARY
The Constitution of the State of Flwlda, at Article Vil, Section 10, provides that neither the state or any county,
school district, municipality, special district or agency, or any of them, shalt become a joint owner with a stockholder
of, or give, lend or use Its tasting power or credit to aid any corporation, association, partnership or person, but this
(1 178-17 I-OR
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shall not prohihit laws authorizing the issuance of revenue bonds to finance or refinance the costs of capital projects for
:;. ?,.?N,r:.: ns'f'..;=' • airports or part facilities. Because Section 31 S,02(6), F,S„ defines port facilities to include harbor, shipping and port `esr:•,y, a,, •r't? ?:i.,.
tr: r• - ? ..":' '', facilities 'and improvements of every kind, nature a'ndescrtptton, including parks, recreational ffrcilitles u lie ? -"??•'- ?''a:?:.a,?'?^"+'
buildings and plazas, and any and all property and facilities necessary or useful in connection with the foregoing, it r^ n • , Z zr;?' ;
would appear tonsistent to authorize these activities In the Constitution and thereby, resolve doubts as to whether *•'ri ; "Y '
;? t;?: r'; • : tourist related activities may be financed through the issuance of revenue bonds. il.j'r`4: wt
The central question concerning this proposal is whether or not the purposes to be served by the development of = z ,? i' ?1;
the leased property arc primarily public or private in nature. Universally, it is held that development of recreational .,,•,.,,"s,;'.,:r,?jln.,???.'<'.
,,.,, ^ ;.'. •. ' facilities satisfies a public purpose. Hence, one must determine whether the public is primarily or Incidentally
` benefltted by the facility. Additionally, one mint decide whether or not the privately owned and operated facilities are n': t'r3 cw
,`•,?-,;, ;:,,:,, •... '- a necessary adjunct to the successful operation of the main enterprk, namely the creation of a rccrortional facility,
?=•'`??: ?•'-' ' ?.'.`•??'; and whether or not the operation of the private enterprise is required to Ensure its success. The court, In State vv,
r r,?c•;1;;,:r'. •- Daytona Beath Facing and Recreational Facilities District, 84 5o.2d 34 (1956), stated that tourism, both as between
the areas o our state and betviten the other stateT cisa competitive business. The sun and sand and the water are not ail : r: 4
,1'5.rdr, sufficient to attract those seeking a vacation and recreation. Entertainment must he offered. Under these circumstances, l; ?.?;-,t• ?.? -'??u
the public purpose was determined to predominate and the private benefit and gain was Incidental thereto.
Owing to the importance of public recreation to the economic and social health of this State, this provision should
be added to the Constitution,
POLICY STATEMENT NO. 10
THE FLORIDA LCAGUE OF CITIES, INC., SUPPORTS A CONSTITUTIONAL PROVISION WHICH WOULD
EXEMPT MUNICIPAL PROPERTY OUTSIDE OF THE MUNICIPALITY FROM AD VALOREM TAXATION 70
THE SAME EXTENT SUCH PROPERTY WOULD BE EXEMPT 1F LOCATED WITHIN THE MUNICIPALITY, AND
FURTHER THAT MUNICIPAL PROPERTY SHOULD BE EXEINPT WHETHER USED OR HELD FOR MUNICIPAL
OR PUBLIC PURPOSES.
TEXT
ARTICLE VII
FINANCE AND TAXATION
SEMON 3, Taxes; exemption.-
(a) All property owned by a municipality and held or used exclusively by it for
municipal or public purposes shall be exempt from taxation, A•-mufl4&4Ni4tyr4wA0ft
the-tax•irq-mit-+ . Such paftions of property as are used
predominantly far educational, literary, scientific, religious or charitable purposes may
be exempted by general law from taxation.
COMMENTARY
The policy of the State as expressed in the Local Government Comprehensive Planning Act and other statutes Is
that the growth and development of Florida be planned carefully. Optitttal planning often requires municipal
governments to acquire parcels of land within and without municipal boundaries that cannot be developed immediately
for uses ultimately intended. The alternative is to be unable to implement such plans or to do so only at greatly Inflated
costs. When property is required for such municipal or public purposes, municipalities ought not be fearful of incurring
tax obligations to other governmental agencies of superior taxing authority. Accordingly, this provision is proposed.
-9-
Ream. #78-17
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POLICY STATEMENT No. tt ?? ;"• ,ski k°,
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THE FLORIDA LEAGUE OF CITIESr INC. SUPPORTS A CONSTITUTIONAL PROVISION WINCH WILL CLARIFY
i THE RESTRAINT AGAINST DOUBLE TAXrI TiON IN THE CONSTITUTION OF 1968,
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ARTICLE VIII
{' ( LOCAL GOVERNMENT
;''r;?=r sus
?'a{y:i1?,^,I v? 53:i ?;?s;r3'• i'?.?r't ?.?k"t'$)C fr,.
r- SECTION I. Counties.
t J .r ,'l1 •r, ?'' ah
,try',; (InYll ; , <. (h) TAXES; LIMITATION. Property situate within municipalities shall not be lnr
subject to taxation for services rendered by the county 4xctuaiue4y for the benefit or-the
property or residents in unincorporated areas where such services are only of incldenta!
benefit to propcrty and residents within the mun cipal tes.
"I?gf' COMMENTARY
r f ? r ??`.; t . ? t?f
a4The problem of double taxation was recognized in the Constitution of 1968. The people sought to restrain the
practice of using taxes collected within municipalities to provide municipal services to unincorporated areas. Counties .'
are authorized to levy municipal mtllage for such service„ but have not customarily done so. This evasion of county
t y "? responsibility threatens a mass of litigation throughout the state. The recent case, _ Alsdarf v. Flroward County 333 E
So.1d 457 (Fia.1976), substantiates the right Prf people in municipalities to have their relief through the courts If
tz ,. -. • -, , , , r'??4'????'?- - necessary. The text of this provision is directed toward needed clarification and strengthening of the people's mandate.
POLICY STATEMENT No. 12
MUNICIPAL GOVERNMENT OUGHT TO HAVE POWER TO ADOPT EFFECTIVE PLANS FOR URBAN
REDEVELOPMENT, INCLUDING AS A PART OFAN IMPROVED PLAN THEPOWER TO CONDEMN PRIVATE
PROPERTY THAT WILL BE RESOLD TO PRIVATE BUYERS.
TEXT
ARTICLE X
MISCELLANEOUS
SECTION 6. Eminent domain.-
COMMENTARY
like proceedings, of pri
h_e_ ill health, safety
Rtdevt lopmcnt of urban areas requires assembling contiguous parcels of property into a whole that is•large enough
for large-scale redevelopment. Successful redevelopment projects usually include a plan that makes use of a portion of
the property for public purposes and the remainder for private purposes, such as housing, Industry and commerce,
Existing Florida law greatly restrains the powers of municipal governments to redevelop urban areas because of certain
restrictions In the Constitution. Article X Subsection 6(a), states that "No private property shall be taken except for
public purpose... " In cons"Ing what a "public purpose" is, the Florida Supreme Court has said that a plan that
includes resale of property that was formerly in a "slum" area is such a public purpose but that resale of land taken In a
"blighted area" is not. See Grubstein v Urban Renewal Agency of City of Tampa, IIS Sor2d 745 (174.19S9). Because
an effective redevelopment plan will almost certainly include lands that are not defined as slums under the Grubst igt
criteria, urban redevelopment In Florida is virtually impossible.
I: Rt~so: #78-17
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It should also be noted that Article 7, Section 10 of the Constitution which states that: "Neither the state nor
any county, school district, municipality, special district, or agency of any of them, shall become a joint owner with, or
` ?s ,5•;:.; ,.° stock holder of, or give, lend or use its taxing power or credit to aid any corporation, associatlan, partnership or person.
'r•y :;:.•' can also'be used to Impede urban redevelopment. Using the condemnation power of state to facilitate a
redevelopment plan that includes resale of condemned lands to private persons has been viewed by the Florida Supreme --L
Court as an unconstitutional lending of credit to the private buyers. See State .v Cotney, 104 So.2d 346 (Fla.1958). In
?% `?•'i?'?'= sum. these two provisions together Dose an almost insuocrabie barrier to urban redevelooment in this state. eJ.
a ' The 1976 Florida Legislature passed a resolution placing a constitutional amendment an the ballot that, If passed,
would have made it• possible to condemn property as a part of an urban redevelopment plan that included resale of
lands to private owners. That provision was not approved by the voters. They should be given another opportunity to
approve a helot plan that can be accepted by and approved by the people.
POLICY STATEMENT NO. 13
THE FLORIDA LEAGUE OF CITIES, INC, SUPPORTS A CONSTITUTIONAL PROVISION WHICH WOULD
PROMOTE LOCAL GOVERNMENT AUTHORITY FOR TAX ABATEMENT OR RELIEF WITH PROPER
CONTROLS AS INCENTIVES FOR ELIMINATION OF BLIGHTED AREAS AND THE REDEVELOPMENT
7WEREOF.
TEXT
ARTICLE VII
FINANCE AND TAXATION
SECTION 4. Taxation; assessments.-
to real prooUtY resulting from
COMMENTARY
It Is recogntied that one of the contributing causes of blighted neighborhoods is the counter-productive effect of
incrtased taxes on redevelopment and rehabilitation. This has been a factor In the decline of central business districts
and the concomitant decline of the ad valorem tax base. Too many cities throughout the nation have experienced
owner abandonment of property in blighted areas. The 1978 Constitution must address this problem if our cities and
counties are to preserve our urban communities. The proposed text will permit the legislature to authorize tax
abatement or relief with proper controls as incentives for elimination and redevelopment of blighted areas.
THE FLORIDA LEAGUE OF C
THE FLORIDA LEGISLATURE
CREAT10"F-SUZUJXV
I
ONLY A PORTION OF A MI
C TA1
--11-
Re 00. 478-17 2/16/78
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A CONSTITUTIONAL PROVISION REQUIRING THAT
LiTY IN ANY LEGISLATIVE DISTRICT WHICH IS NOT WHOLLY
'
POLICY STATEMENT NO. 14
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TEXT
t ? :4 : >r3: •s.:: ?' a is ;:,' , ARTICLE Ili , r
LEGISLATURE
? is ,?,? >r, ?r ?;;; , • ?, ;,". , . _ SECTION 16. Legislative apportiLmmcnt.-- {{r:::•.:?
a) SENATORIAL AND REPRESENTATIVE DISTRICTS. The legislature at Its
W. C1?:Fis (
u q t a regular session In the second year following each decennial census by joint resolution
shall apportion the state in accordance with the constitution of the state and of the
fr5;r ry: n , ,>,,..;?_•; t*t?.'>` ' United States into not less than thirty not more than forty sin lc•membcr, consecutively
y:: • Jam, C. -F tC'..,',:'{. r'"`''' T^' .9,d?r:{?
?:a h• ?-' ?+ ?=L x'°:.,s':;.=?:-ti•i°a;;; numbered senatorial districts of eitlm contiguous; breriappm?eriderrttca! territory, and
,:? %is ;•.;'?. ., ;+; into not less than eighty nor more than one hundred twenty single-member .;
a,,, ? r;=i,,,, ?•ui.???.r,r;r; consecutively numbered representative districts of eitfm contiguous
,-breNtpptng-er
Mentfeal territory. In any such apportionment) every reasonable effort shall be made to It
} 'rJ:;'; L•z r' -
Zvoid In ludtng only a portion _of -.;I mur%.P__ alit Y L any senatorial or rcprtsentztive
_-
"' tA4.;' :_: Y'^t district which is not wholly contained within that municlpaiity. Should that sessionf
adjourn without adopting such joint resolution, the governor by proclamation shall ??-w-?'•:?
?3 1'7>:`'r'' `'•' reconvene the legislature within thirty days in special apportionment session which shall
';?? r?+1.'?a:t"?•%'`:"'?it'j"'spiel"`' a
=i,' i L •• f„ a' i„ }^r,: not exceed thirty consecutive days, during which no other business shall be transacted
and It shall be the mandatory duty of the legislature to adopt a juint resolution of ?Y
{ ,; ?ai:a,'`"^,•s?''°" apportionment.
COMMENTARY iw r KK.
•' LY 4 L J. tZy •Y}Y?. 4?4?1Y i?' ' f,
`Y•'{, b.t .tt,.,,. r,.,,.• °r? The effect of multi-member legislative districts is to create legislative districts of large geographic area frequently
s.,• ! tY= , including several counties and large numbers of municipalities. As a consequence, municipal governments not { 4,x
r? xn. t
.' ,. . , `•l? •,?' ?„,?,a:;,a . infrequently have no member of the legislature who is personally acquainted with the background and needs of {' 't.•X.y(! i' t?,;?};Ji};'> ?;i• individual municipalities, in many instances this is true even of relatively populous municipalities whose urban ?,',s''•rid
SL• f.>x' i- ,'t• problems simply do'not receive adequate legislative attention an this account. `y^ Y ;
V l s': rd,
r N,;'O?i Implementing single member districts will not be a cure-all to this problem; but It will help, especially for larger, .
tI`fl y# fast-growing municipalities. The State desperately needs greater legislative attention given to the capability of local
governments to respond satisfactorily to demands imposed upon them by urban growth, inflation and other sources ofi
= F" r?;`?tt additional responsibility.
POLICY STATEMENT NOAS
LOCAL GOVERNMENT OFFICIALS MUST RETAIN THE RIGHT TO ADOPT BUDGE75, FIX MILLAGE RATES
AND DETERMINE SALARIES FOR PUBLIC EMPLOYEES. THEREFORE, BINDING ARBITRATION IN THE
COLLEC77VE BARGAINING PROCESS MUST BE PROHIRITED.
TEXT
ARTICLE 1
DECLARATION OF RIGHTS
SECTION 6. Right to work.- The right of persons to work shall not be denied or
abridged on account of membership or non-membership In any labor union or labor
organization. The right of employees, by and through a labor organization, to bargain
collectively shall not be denied or abridged. Public employees shall not have the right to
strike. Thera shall be no binding_arbitration in regard to any matter concerning the
collective bar ainingl2rocess between public employees and public employees.
COMMENTARY
An Increasing number of jurisdictions has enacted compulsory binding arbitration statutes for settling disputes In
tho public employee collective bargaining process. This places In the hands of a private person not answerable to the
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voters the ultimate authority to set tax rates, or to foree'elected officials to reduce services or reallocate spending
priorities in means they believe not to be in the best interest of the public. Thus, compulsory binding arbfvation usurps ? ;.?':? ; ;?•.r
the legislative prerogative, diminishes accountability to the voters and erodes the value of the voting franchise.
.'.;', To transfer even a portion of this IegWalive function to an arbitrator transfers responsibility to an individual, no
matter how well qualified, who is not accountable to the taxpayers. Moreover, some commentators believe that
compulsory binding arbitration provides unions with a no-risk or low-risk alternative! This has the potential of
,?• ; e. VA•. ,; '.,, :;.,,;:. discouraging honest, good faith bargaining by unions because the additional step of compulsory arbitration is available. ,.-: •i,?;?:?
This Is advantageous to them because of the tendency of arbitrators to strike a compromise in awards, which further
qi'` <•? `",'" -°,' ; encourages unions to hold back in the bargaining process.
':ta
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'••° fz1'r= r,U Furthermore, compulsory binding arbitration is an expensive addition to the collective bargaining process.
Arbitrators and expert witnesses must be paid and these costs ire rising. Generally, if one side spends money in'
preparation, the other side feels compelled to do likewise. r ?.."' • i
Yri .si % ?'' ??L3r?
Finally, there are constitutional questions where compulsory binding arbitration is enacted by statute, in a report
by the Labor-Aanagement Relations Service, Vol. 8, No. 4, April 1977, the statement is made lhat out of 12 cases
decided by state supreme courts, nine found such statutes constitutional, two divided evenly and three recent decisions
found them unconstitutional. The Colorado Supreme Court stated: "A contrary holding, In our view would seriously
conflict with haste tenets of representative government. Fundamental among these tenets is the precept that officials
engaged in governmental decislon•making (e.g., setting budgets, salaries and other terms and conditions of employment)
must be accountable to the citizens they represent. Binding arbitration removes these decisions from the aegis of
elected representatives, placing them to the hands of an outside person who has no accountability to the public..."
Rather than force public agencies and public employee unions w spend vast sums of money litigating this issue to
Florida, the Constitution should be amended as proposed.
POLICY STATEMENT NO. 16
THE FLORIDA LEAGUE OF CITIES, INC, SUPPORTS THE REMOVAL FROM THE CONSTITUTION OF
FLORIDA OF FREEHOLDER REQUIREMENTS TO PARTICIPATE IN ELECTIONS WHERE SUCH REQUIRE-
MENTS ARE IN CONFLICT WITH THE CONSTITUTION OF THE UNITED STA TES.
TEXT
ARTICLE VII
FINANCE AND TAXATION
SECTION 9. Local Taxes.-
(a) Co6ties, school districts, and municipalities shall, and special districts may, be
authorized by law to levy ad valorem taxes and may be authorized by gcaerat law to levy
other taxes, for their respective purposes, except ad valorem taxes on intangible personal
property and taxes prohibited by this constitution.
(b) Ad valorem taxes, exclusive of taxes levied for the payment of bonds and taxes
levied for periods not longer than two years when authorized by vote of the electors4whe
am !ire-owners e€-t5?ec??a?dy-lirere t Pram-t& atiersr shall not be levied
in excess of the following millages upon the assessed value of real estate and tangible
personal property: for all county purposes, ten mills; for all municipal purposes, ten
mills; for all school purposes, tan 'mills; for water management purposes for the
northwest portion of the state lying west of the line between ranges two and three east,
O.OS mill; for water management purposes for the remaining portions of the state, 1.0
mill; and for all other special districts a mlllage authorized by law approved by vote
of the electors who am anne!36F at lion. A
county furnishing municipal services may, to the extent authorized by law, levy
additional taxes within the limits fixed for municipal purposes-
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SECTION 12. Local bonds,- Counties, school districts, municipalities, special
districts and local governmental bodies with taxing powers may issue bands, certificates
of indebtedness or any form of tax anticipatlon certificates, payable from ad valorem
° taxation and maturing more than twelve months after issuance only:
n•:I'r•,:
(a) to finance or refinance capital projects authorized by law and only when
° approved by rote of the electors ho
from"taxstion; or
r (b) to refund outstanding bonds and,interest and redemption premium thereon at a
Lw lower net average Interest cost rate,
COMMENTARY
'w This is a housekeeping Item to conform the Constitution to mandates of Federal law,
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