Title: The District; Establishment and Functions, Organization and Finances
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 Material Information
Title: The District; Establishment and Functions, Organization and Finances
Physical Description: Book
Language: English
Publisher: Central and Southern Florida Flood Control District
 Subjects
Spatial Coverage: North America -- United States of America -- Florida
 Notes
Abstract: Richard Hamann's Collection - The District; Establishment and Functions, Organization and Finances
General Note: Box 12, Folder 1 ( Materials and Reports on Florida's Water Resources - 1945 - 1957 ), Item 35
Funding: Digitized by the Legal Technology Institute in the Levin College of Law at the University of Florida.
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Bibliographic ID: WL00002921
Volume ID: VID00001
Source Institution: Levin College of Law, University of Florida
Holding Location: Levin College of Law, University of Florida
Rights Management: All rights reserved by the source institution and holding location.

Full Text





II. THE DISTRICT


ESTABLISHMENT AND FUNCTIONS


Federal Ilfluence
on District
Functions


The State's Shore


The Central and Southern Florida Flood Control Dis-
trict was established in 1949 to comply with Federal re-
quirements for "a single local agency with which the Fed-
eral Government can deal on matters of local cooperation
on this project. It is set up under a five-member, non-
salaried Governing Board, with three-year overlapping
terms, and the Florida Legislature has given it sufficient
powers to cooperate with the Federal Government to pro-
tect local interests, and to proceed expeditiously to attack
the varied problems of the area it serves.

To a considerable degree, the nature and extent of
District responsibilities are determined by Congressional
action. In its early stages, its obligations were shaped by
provisions of House Document No. 643, 80th Congress.

House Document No. 643 was the Corps of Engineers
Survey Report on a system of control works estimated at
the time (1948) to cost $208 million to build and $3. 7
million annually to maintain. The first phase was esti-
mated to cost $70 million and involved "construction of the
principal structures required for protection of the east
coast area and principal works necessary to control lake
levels and reduce flood damage in the improved area south
of Lake Okeechobee."

Congress authorized the $70 million first phase of the
project "subject to conditions of local cooperation pre-
scribed therein, "

In brief, the "conditions of local cooperation" set forth
in House Document No. 643 required the State, represented
by the District, to accept responsibility for what has been
estimated to be 39% of the total cost of the project over an
assumed life-span of 50 years as then envisioned. The re-
quirements of local cooperation are:

a) 15% of estimated construction cost, to be paid in
advance of initiation of construction work, not to
exceed $29 million.

b) Acquisition of all lands and rights of way,

c) Relocation and alteration of all highways and pub-
lic utilities.


I











Cost Shoring on on
Interim Basis













Requirements of
Local Interests


Protective and
Preventive Works


Secondary
Systems


The Flood Control Act of 1954 indicated that some
changes in the conditions of local cooperation or parti-
cipation would be forthcoming, that the provisions es-
tablished in the 1948 Act would be firm only for the
first phase and that such new work outside of the first
phase as was undertaken would be subject to 1948 pro-
visions for local participation on an interim basis only.
Whatever modifications Congress may deem appropriate,
after receiving a report on which the Chief of Engineers
and Bureau of the Budget are now working, will be retro-
active on all new work for which costs are shared on such
interim basis.

Some functions of the District are not dictated by Fed-
eral directives, but arise from the requirements of local
interests on matters not covered in the Corps of Engineers
comprehensive plan. Financing of these activities is inde-
pendent of Federal aid. Such functions include:

a) Construction of works found necessary to protect
present land use and prevent damages.

In all instances, such works were either unau-
thorized by Congress at the time of construc-
':' tion or, although properly qualified by essential
primary character to be a part of project con-
struction, were not included by the Congress as
a project item.


b) Supplementary construction.


In addition to works which are part of the com-
prehensive plan as authorized, or which have
been found to be necessary amendments to the
planned primary system, there is need for a
supplementary system. This includes secon-
dary channels and levees connecting with the
major flood control works as may be necessary
to enable the Federal-State works to serve the
laterals, field ditches, dikes and pumping in-
stallations of the secondary system.

The District's responsibility toward secondary
works is limited to guidance by the District's
3istaff engineers in the planning of such works.
In addition, rights of way for the construction
of secondary works which are public in nature
may in some cases be acquired by the District
and held in trust provided that such assistance









STAFF AND LINE ORGANIZATION


CENTRAL


AND SOUTHERN FLORIDA FLOOD CONTROL
WEST PALM BEACH FLORIDA


DISTRICT


APPROVED JANUARY 28, 1955


























Governing Board




Executive Director






Executive Staff



Divisions



Branches and
Sections


entails no cost nor financial obligation by
the District.

The full responsibility for the construction
maintenance and operation of secondary sys-
tems and for the financing of such work is
carried by sub-drainage districts, soil con-
servation districts and individual property
owners.



ORGANIZATION

The Governing Board, comprising of five members appoint-
ed by the Governor of the State, has full responsibility for the
District's activities and interests.

The District functions under what is known as the staff
and line form of organization. In this organization pattern,
the Executive Director is the representative of the Governing
Board and is responsible for all District activities in ac-
cordance with instructions from the Board and District policies.

The Executive Staff, of which the Executive Director is the
senior member, includes in its membership the heads of all
line divisions through which the activities of the District are
conducted. The over-all organization is thus divided by
functions to assure a smooth and efficient chain of command
reaching all levels and assuring the allocation to appropriate
units of responsibilities arising from the District's program.

The chart opposite page 8 gives the organization pattern
to the Division level. Each division is further subdivided into
Branches and Sections according to the functions and activities
for which it is responsible.




















Federal Financing








State and Tax
Income


Authorizations
vs.
Appropriations


FINANCES


a) Income

Because of the interdependence of Federal, State and
local funds in the financing of this project, a review of
District finances must be related to or start with a con-
sideration of Federal financing.

Money available to the Corps of Engineers for work on
the project comes from Congressional appropriations. In
addition to this Federal money, the Engineers also receive
the State's 15% payment on construction and, in one'recent
instance, the Corps was permitted by action of Congress to
receive advance payment, credited against the 15% require-
ment on future construction, to enable increased activity at
a time when appropriated Federal funds were not forthcoming.

Money directly available to the District comes from two
major sources:

(1) Biennial State appropriations to the Flood Control
Account, disbursed at the request of the District
upon. approval of the State Board of Conservation.

(2) An annual ad valorem tax, at a rate limited by
State law to one mill on the dollar, levied against
all real and personal property in the District sub-
ject to taxation for county purposes.

Federal financing is.characterized by the fact that Con-
gressional authorizations for appropriation do not make funds
immediately available for project ,use but set the stage for the
actual appropriation of funds by subsequent'action in amounts
which cannot exceed the existing balance of authorized funds.
Thus, although Federal authorizations for the project have now
reached a total of $43. 3 million, only $23 million of this amount
have been appropriated or made available, leaving a $20. 3
million balance of authorized but unappropriated funds as of
December 1954. Unexpended or unobligated balances of Feder-
al appropriations remaining at the end of the fiscal year of
appropriation are not withdrawn but remain available until ex-
pended. This Federal financing is shown on Figure 5, facing
page 10.


i r
















SUMMARY OF INCOME


(Figure 5)



CUMULATIVE FEDERAL AUTHORIZATIONS AND APPROPRIATIONS
FLOOD CONTROL PROJECT


FLOOD CONTROL
ACT
1948
1950



1954

TOTAL


AUTHORIZED FISCAL YEAR
$16,300,000 1950
20,000,000 1951
1952
1953
1954
7,000,000 1955

$43,300,000


APPROPRIATED
$ 1,500,000
6,300,000
6,000,000
4,974,000

4.250.000

$23,024,000


(Figure 6)



CUMULATIVE STATE APPROPRIATIONS AND AMOUNTS RELEASED
FLOOD CONTROL DISTRICT












MILLION AppROpIT AO
DOLLARS RfL

20




1955

0 1 952
S 19s 1951 FISCAL yEARS



FISCAL YEAR APPROPRIATED RELEASED
1950) $1,054,275
1951) 1,723,333
1952) 1,575,047
1953) 3,250,000 908,249
1954) 529.306
1955) 3250000 2,720.612*

TOTAL $9,750,000 $8,510,822
Estimated



(Figure 8)



CUMULATIVE TOTAL RECEIPTS TO END OF FISCAL YEAR

FLOOD CONTROL DISTRICT AND PROJECT







FEDERAL



MILLION STAT
DOLLARS LOCT L
LOCAL
20






0 9595





FISCAL YEAR TOTAL
1950 $ 2,947.896
1951 9,010,433
1952 8,663,972
1953 7,370,679
1954 2,226,716
1955 9,058,953'

TOTAL $39,278,649
Estimated
NOTE: Only totals shown here. The breokdown appears In Figures 5, 6 ond 7.
4-'
CENTRAL AND SOUTHERN FLORIDA
FLOOD CONTROL DISTRICT
WEST PALM BEACH, FLORIDA


(Figure 7)



CUMULATIVE INCOME FROM LOCAL SOURCES
FLOOD CONTROL DISTRICT













MILLION
DOLLARS

20


10
9O4

0 19S2 E195S
91950 FISCA



FISCAL YEAR INCOME FROM LOCAL SOURCES
1950 $ 393,621
1951 987,100
1952 1,088,925
1953 1,488,430
1954 1,697,410
1955 2,088,341

TOTAL $7,743,827
Estimated




r I-




Ns Carry-Over of District financing through the State's Flood Control
SIat Appropiaetions Account differs from Federal practices with respect to the
carry-over of appropriated funds. At the end of the fiscal
biennium, appropriated funds remaining as an unobligated
balance revert to the State's general fund and are lost to the
District.

Since requests to the State Legislature for funds must be
related to estimates as to what the Federal Congress will
make available during the following two-year period, it has
happened consistently that reduction of actual Congressional
appropriations below the estimated level has reduced the
amount of construction which could be done and, as a result,
significant sums of Flood Control Account money intended
as the State's share of such work have reverted to the gener-
al fund. Since the project was started reverted funds have
totaled $1, 239, 178 the difference between appropriated and
released funds shown in Figure 6.

Money collected through the ad valorem tax, an import-
ant source of District income, is without time limitation.
These funds remain available until expended and may be used
for all District purposes.

Figures 5, 6, 7 and 8 facing page 10 give a graphic ex-
planation of the District's income. The history of the Feder-
al authorization of funds and actual appropriations is summa-
rized in Figure 5.

In Figure 6, the appropriations by the State to the District
are compared to the actual amounts released. Income from
local sources, principally taxes, is shown in Figure 7.

The cumulative total receipts of the District- $23, 024, 000
from the Federal Government; $8, 510, 822 from the State and
$7, 743, 847 from local sources are illustrated in Figure 8.


b) Disburseemnts

As in the case of income, discussion of District expendi-
tures becomes meaningful only in terms of the total Federal,
State and local picture.

Federal money appropriated by Congress is used for engi-
neering and construction. Under present arrangements, Feder-






























Land Acquisition
Policy






Local Taxes -
Prposess and
Advantages







Total Expenses to
End of 1954


al funds are used to pay 85% of construction costs. The r ,
mining 15% is paid by the District. o .-: .,-

State funds appropriated to the Flood Control Account
administered by the State Board of Conservatoixo for ad-
vancing the Central and Southern Florida Project are ex-
pended only for the following authorized purpose s aset forth
in Chapter 378, Florida Statutes, 1953:

1. To finance State's cash contribution to construc-
tion cost (exclusive of engineering coast paid sol-
ly by the Federal Government)

2. To pay for public relocations, such as highway
bridges (an item of construction costs allocated
to the District)

3. To purchase water storage area lands which iay
be required under the project

The pace of District spending forx construq#n from the
Flood Control Account is set largely by Fedexa:atpprop~ra-
tions. Land acquisition from this fund may hovW v, sra~.ed
independent of Federal appropriations. Well estabj
District policy requires the purchase of such lands as early
as possible. This is an economy measure, a4 4d as a
result of the rising values of Florida land.. .

District money from ad valorem taxes is used for main-
tenance, operation and administration, for land acquis.i ~a
for relocations and for any other District purpWau. t
language of the law setting up the District an4p pvlda slip-
port for these activities from local taxes is broad eizath to
permit rapid and flexible operation in em agencies whi"
could not have been met effectively under rigid Aederal pro-
cedures nor under the restrictions of the law concerning the
Flood Control Account.

As of December 31, 1954, cumulative JTeldal, State
and local disbursements since the District was established
total slightly over 32 million dollars as shown in detail on
the chart, Figure 9, facing page 12. This. tedtincludes
Federal disbursements of $191981,546. It .z of inter-
est to note that total Federal appropriations to the end of
fiscal year 1955 of $23, 024, 000, shown M Figure 5 opposite
page 10, exceed disbursements as of lPDeceqwi, ds.31 1954 by
$3, 043,454. This amount or balance of appropriated ft~ds


II















TOTAL EXPENSE


START OF PROJECT TO DECEMBER 31, 1954


CENTRAL AND SOUTHERN FLORIDA
FLOOD CONTROL DISTRICT
WEST PALM BEACH,FLORIDA


(Figure 9)

TOTAL DISBURSEMENTS BY AGENCY

MILLION
DOLLARS

25





20
FEDERAL
($19,981,546)





STATE
($8,208,568)
10 -


LOCAL
($3,946,201)






0
TOTAL $32,136,315










will be disbursed during the remaining six months of fiscal
year 1955 as construction progresses.

Of the $32 million dollars disbursed to December 31,
1954, over 28 million dollars have actually been expended on
the project. The breakdown of total expenditures by purpose
is shown in Figure 10. Expenditures from both the State
Flood Control Account and from local taxes are shown by
purpose in Figure 11.

The difference between the total disbursements shown in
Figure 9 and the total expenditures in Figure 10 represents
funds disbursed but not expended. The funds which have been
received by or disbursed to the Flood Control Project from
the Federal Government, the State of Florida and the Counties
within the District are shown in Figure 9 as disbursements.
As these funds become available, they are allocated to a
specific purpose, such as construction, land acquisition, or
relocations. The expenditures necessary to attain the indi-
cated purposes are illustrated in Figure 10. The remaining
difference or balance amounting to $3, 587, 143 is an unex-
pended disbursement.

Of total expenditures, construction accounted for 83%,
land acquisition for 9%, maintenance and operation for 5%
and relocations for 3%.


c) A Financial Summary

The balance sheet on page 14 is a detailed statement of
receipts and disbursements by Federal, State and local in-
terests. The figures show actual receipts and disbursements
to December 31, 1954, and do not include estimated amounts
for the remainder of the fiscal year 1955.


I __ ~~___ ____~_~_ _i~ ______ ___ ~__~_ ~_~ ~___~_ __








RECEIPTS AND EXPENDITURES
From Start of Project to December 31, 1954


LOCAL INTERESTS


Receipts
State Flood Control Account
Flood Control District


Expenditures
State Flood Control Account
Construction
Land Acquisition
Relocations


Flood Control District
Construction
Land Acquisition
Relocation
Maintenance and Operation




Balances
State Flood Control Account
Flood Control District


CORPS OF ENGINEERS


Receipts
Federal Appropriation
State Funds Contributed
Flood Control District Funds Contributed


r oo0%
-. '-J rI'uq


$6,325,335 aba
1,456, 187 ,
427,048 "v '" -tr..

da

$ 879,272 rti' -
993,904 '" ''o ,
600,324 ""r b aJL *
1,472,791 9 -

1 ra !0 .a r


.,z* ., .an< .


A'-
4+,


di ~qi-3aomr


1 u r Ml I,:*
6MI~gl~+i


$29,63285


$M2719,738


Disbursements
Engineering and Construction


Balance
Obligated
Unobligated


$ 4,473.693
2,1649,14


$ 6,643,547


'1


ti


_


BY~


i




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