Duval County voters soon could decide on a proposed half-cent sales tax to pay for the estimated $1.95 billion school district leaders say is needed to replace, repair and renovate the county's aging public schools.

School Board members agreed by consensus Tuesday to hold a special election — tentatively set for Nov. 5 — for the sales tax referendum recommended by Superintendent Diana Greene.

A key question must be answered before the referendum can be finalized: What role does the Jacksonville City Council play in the issue?

Before it can be placed on the ballot, the referendum resolution first must go to the City Council. It was unclear Tuesday whether the council's authority is ministerial — an administrative function that is part of the procedure to put it on the ballot — or does the council have the option to deny or revise the resolution before it goes to voters.

Karen Chastain, board attorney, said the city's Office of General Counsel is researching that issue but as yet not issued an opinion.

The board hopes to vote on the resolution May 7 at its regular meeting. The Tuesday session was a workshop focused on its funding options, wording of the resolution and how best to make the public aware of the need for the sales tax.

The half-cent sales tax — which can only be used to pay for capital improvements — is one of the few funding options available to the district to replace and repair schools.

If voters approve the half-cent sales tax, it would generate a conservative $1.3 billion over 15 years. Chastain said the sales tax would go into effect Jan. 1, 2020.

Board members agreed that a portion of that revenue should be shared with charter schools in the district although a formula would have to be worked out by district leaders.

"I believe the district is at a crossroads," Superintendent Diana Greene said. "We've utilized every opportunity for other ways of getting additional revenue such as bonding. … We are at a point where the age of our facilities are at a level that with our current funding source we're just being reactive at this point."

Duval is the only one of 67 Florida counties that doesn’t collect impact fees or any kind of sales surtax. The district only has property tax revenue and an annually diminishing amount of state maintenance funding to take care of its schools.



Many Florida school districts have imposed impact fees on development or raised sales taxes to generate revenue. Others have raised property tax rates.

Greene said the district has met its maximum capability of bonding to pay for capital improvements. The district has about $300 million in bonds it is paying off in debt service.

"We are no longer in that capability of just going out to get bonds," Greene said.

The district has two funding options to take to voters: approve a half-cent sales tax or raise the district's property tax rate. However, the board hasn't considered a property tax increase because that revenue can only be used for operating expenses.

Along with the sales tax, Greene recommends creation of an independent citizens committee to monitor and hold the district accountable for the use of the money raised from that sales tax.

Duval schools are the oldest in Florida. At least 65 percent of the district’s 157 schools are 50 years or older. At least 56 — or 30 percent — are identified as being in poor or very poor condition, or need to be replaced, an engineering consultant’s study for the district showed.

The district's proposed draft master facilities plan calls for $1.95 billion in projects. That includes $1.03 billion in new construction expenses and $922 million for improvements, renovations and additions to schools. The plan would eliminate at least $1 billion in current backlogged repairs, district leaders say.

Greene is expected to submit her recommendations to replace, consolidate and renovate the district's schools to the board in July. The board is expected to vote on those recommendations in August. But without funding, the projects can't go forward.

Board member Ashley Smith Juarez noted the district's need is only growing in terms of technology, security and other needs for Duval students. She and other board members said they've heard positive and encouraging responses from the public about what the board is trying to do to improve schools.

Board member Elizabeth Andersen said she supports moving forward with the sales tax referendum but she has some concerns regarding the timeline.

"It certainly is not my intention to rush this process through. … I am worried that we are in a position where we are forced to put the cart before the horse," Andersen said. "And with that being said, we don't have the flexibility to get this money from other sources. I just don't know where it would come from."

Board member Charlotte Joyce urged caution in how the district presents the plan to the public. It's about continuing to ensure the Duval taxpayers that the board has credibility and there is transparency, and accountability in all that they are doing regarding the plan, Joyce said.

Board Chairwoman Lori Hershey said the current board is in a situation not of its own making. Past boards for whatever reason failed to address the issues that have resulted in the current situation with the aging schools.

"This is one of the first times that we've had a board that would dare to tackle this," Hershey said. "I think we're at the right time, the right place to more forward, and that's exciting. I believe we have a strong board, who is here to lead and willing to make hard decision to move education forward for the children."

Teresa Stepzinski: (904) 359-4075