ANNA MARIA ISLAND – Holmes Beach Mayor Judy Titsworth said she was told the city of Bradenton will be included in the Anna Maria Island consolidation study being conducted by the Florida Office of Program Policy Analysis and Government Accountability (OPPAGA).
On Nov. 8, Titsworth had her first study-related virtual meeting with OPPAGA representatives. Later that day, she contacted The Sun and said OPPAGA Staff Director of Government Operations Emily Leventhal told her the city of Bradenton will be included in the consolidation study and will be considered as one of several potential annexation options if the three Island cities and city governments are to be eliminated by the state.
Titsworth said she was told that Bradenton Mayor Gene Brown would soon receive a letter from OPPAGA informing him that the city of Bradenton will be included in the consolidation study and may be considered as an annexation option. Titsworth said there were two other witnesses in the room with her during her meeting with OPPAGA representatives.
The following day, Titsworth posted a lengthy consolidation study-related statement at the city of Holmes Beach’s Facebook page titled “The Future of Anna Maria Island: The Fate of Our Cities Are at Stake.”
“In continuing to keep our Holmes Beach residents, property owners and friends informed on issues facing our city, it is important to share with you updated information on the OPPAGA study initiated by our state leaders, and specifically what I learned during yesterday’s OPPAGA Entrance Conference,” Titsworth stated.
“Legislative leadership has tasked this research team, with the support of the entire Manatee Delegation, to conduct an immediate study and to review the potential benefits of consolidation of municipal services and/or government structures for Anna Maria Island.
“During the conference, it was revealed that the city of Bradenton and Manatee County are also included in this study, though they have not yet received correspondence from the research team. There will be large record requests starting next week that the cities will need to respond to, along with more tailored follow-up requests, interviews and potential site visits that will be conducted along the way.
“The research team is anticipating a completion date for July 2024 to present their results to legislative leadership. These recommendations will then be presented to the senior leadership person, most likely (state Representatives) Will Robinson or Jim Boyd. If leadership decides that the report should be published, it will then be available to the cities and the public. Otherwise, the findings and recommendations remain confidential and exempt from public disclosure. It is anticipated that the data gathered and analyzed will provide state leaders with the information needed to determine the fate of our cities,” Titsworth stated.
“The biggest concern I have with this study is that neither the residents nor city officials asked for it. They were not consulted about the development of the scope and remain unaware of the motivations behind this emboldened act of the Legislature. It is my understanding that we are the only coastal cities in Florida being threatened by consolidation, though we may not be the last as there have been more than 80 bills passed by the state Legislature in recent years that have greatly diluted home rule.
“It is unclear what the path forward looks like if state leaders move to consolidate, especially when it is an act not supported by the cities and citizens which are directly impacted. Is a referendum by the people even necessary when the decision is made at the state level? Is the governor tasked to appoint a board to write a new charter, zoning districts, comprehensive plan and land development codes? Is a new charter even needed, or will one city absorb the others; and if so, which city?
“Will the new board respect current density and height restrictions? If there is a new charter, are the grandfathered minimum length of stay restrictions for resort housing to be preserved or will they be removed, turning neighborhoods into motels?
“I urge all citizens to pay attention to decisions being made at the local and state level. Do these leaders have your best interests at heart? These decisions will have a profound effect on quality-of-life issues. Our unique small-town identities and a century of history could soon be lost to consolidation and to the neighboring city of Bradenton,” Titsworth stated.
Anna Maria Mayor Dan Murphy and City Commission Chair Mark Short participated in their first virtual meeting with OPPAGA representatives on Nov. 7.
When asked about that meeting later in the week, Murphy said, “Commissioner Mark Short and I did indeed meet with OPPAGA representatives this week. I feel obligated to first inform our city commissioners as to the status of the study. I will discuss what was covered at our next city commission meeting on Thursday, Nov. 16.”
Last week, Bradenton Beach Mayor John Chappie also participated in his first virtual meeting with OPPAGA representatives. As of Monday afternoon, Chappie had not responded to The Sun’s requests for comment on his meeting with OPPAGA officials.
Study requested
OPPAGA serves as the research and analysis arm of the Florida Legislature and supports the Legislature by providing data, evaluation, research and objective analyses used to make legislative decisions.
Since the AMI consolidation study was first requested in January by the Manatee County legislative delegation, the general assumption was if the cities of Anna Maria, Bradenton Beach and Holmes Beach were consolidated by the Florida Legislature, the three Island cities would either be consolidated into one Island city and city government, or the three cities would be annexed into Manatee County and the three existing city governments would be eliminated. The possibility of the three Island cities being annexed into the city of Bradenton adds a new twist to the ongoing consolidation discussions.
The delegation consists of Sen. Jim Boyd (R-Bradenton), Rep. Will Robinson Jr. (R-Bradenton), Sen. Joe Gruters (R-Sarasota), State Rep. Tommy Gregory (R-Lakewood Ranch) and State Rep. Mike Beltran (R-Apollo Beach).
Touted in part as a means to reduce property taxes for Anna Maria Island property owners, the study pertains to the potential consolidation of the similar services currently provided separately by all three Island cities and/or the possible consolidation of the three cities or the elimination of the three cities and their respective city governments.
The delegation put the study request on temporary hold to provide the three Island mayors time to discuss and devise potential areas of consolidation services with potential cost savings to be identified with law enforcement, code enforcement, public works, building departments and permitting and other services currently provided by all three cities. Those mayoral consolidation discussions produced no tangible results.
On Aug. 21, Boyd and Robinson sent letters to three Island mayors informing them of the delegation’s renewed pursuit of the OPPAGA consolidation study.
On Oct. 31, Murphy and Short received a letter from OPPAGA Coordinator P.K. Jameson; Titsworth and Chappie received similar letters.
In her letter to Murphy and Short, Jameson wrote, “As directed by the Legislature, the Office of Program Policy Analysis and Government Accountability is reviewing the potential benefits of consolidating municipal services and government structures for Anna Maria Island.
“OPPAGA expects to begin this review immediately. To assure the least disruption to your agency, OPPAGA staff would like to meet with you or your representative to discuss the procedures for this review. Your office will be contacted in the near future to establish an appropriate time and place for the meeting. Thank you for your cooperation. If you have any questions, please contact Emily Leventhal.”
Additional responses
On Nov. 9, The Sun emailed Leventhal seeking confirmation that she told Titsworth the city of Bradenton would be included in the study and considered as a potential annexation option. That email also contained questions about the actual implementation of any consolidation or annexation actions.
Later that day, The Sun received a phone call from OPPAGA General Counsel Janet Tashner.
“Unfortunately, we’re not able to comment; and I can tell you it’s a little early for these questions. The study just began,” Tashner said.
Tashner was asked if she could at least confirm whether the city of Bradenton will be considered as one possible annexation option.
“They’re not going to know what those possibilities are until the study’s complete,” Tashner said.
On Nov. 9, The Sun emailed Bradenton Mayor Gene Brown and Public Information Officer Jeannie Roberts inquiring as to whether Brown had yet received any correspondence from OPPAGA, Boyd or Robinson regarding the consolidation study.
Roberts responded with an email that said, “The city of Bradenton is advising media to contact the offices of Rep. Will Robinson or Sen. Jim Boyd, as this is a state initiative.” The Sun again asked Roberts or Brown to provide a copy of any OPPAGA-related correspondence Brown received or receives.
On Monday morning, Bradenton Records Management Liaison Officer Bill Ackles acknowledged The Sun’s records request. As of Monday afternoon, no consolidation study-related correspondence was yet provided and Brown had not responded to The Sun’s inquiry.
On Nov. 9, The Sun emailed Boyd seeking his insight on the city of Bradenton being included in the consolidation study. As of Monday afternoon, Boyd had not responded.
Robinson response
On Nov. 9, The Sun emailed a similar inquiry to Robinson. On Nov. 10, Robinson called The Sun and spoke briefly about the consolidation study. He said the city of Bradenton is one of many possible consolidation/annexation options. The other options could also include no consolidation or annexation at all, consolidating the Anna Maria Island cities into one Island city or annexing the Island cities into Manatee County.
“To make the most complete decision, the delegation has asked that the OPPAGA study analyze each and every option, including doing nothing,” Robinson said later via text message.
On Nov. 10, Robinson provided The Sun with a lengthy written statement regarding the OPPAGA study and what prompted it.
“Growing up, my mom and dad would take me to Anna Maria Island a lot. We would visit for the day, go to the beach and bring a bagged lunch, as we didn’t have a lot of money. I still enjoy to this day going out there. It is paradise. My public battle on beach parking and access is solely focused on allowing all families the chance to enjoy our great beaches, including those that cannot afford to live on the Island or pay the high weekly vacation rental fee,” Robinson stated.
His statement addressed the state legislation adopted and approved by Gov. Ron DeSantis earlier this year which allows Manatee County to build a three-story parking garage at Manatee Beach in Holmes Beach despite the city’s continued opposition.
“Unfortunately, roadblock after roadblock was put up by the city of Holmes Beach to reasonably solve this issue and the Legislature was forced to act. That (parking garage) bill passed unanimously – all Republicans and all Democrats in both the House, 116-0, and the Senate, 39-0. The mayor of Holmes Beach blamed the Legislature for not understanding the issue. Believe me, they did.
“Many members could not believe the restrictions put in place by Holmes Beach to take away parking that had existed for decades, with the goal of making it more difficult to allow anyone to visit the Island. In that battle, many residents on the Island reached out to ask that we look at the political structure of the Island. Because of the over-regulatory policies, traffic and ability to sell homes at a high price, residents are fleeing the Island.
“About a year ago, the Manatee County legislative delegation unanimously requested a study from OPPAGA to analyze all the political options for the Island. Senator Boyd and I met with the three Island mayors earlier this year and they asked for us to pause the OPPAGA study so they could work on coordinating services. The delegation paused the study, in good faith, to allow that important work to continue. Unfortunately, the mayor of Holmes Beach blocked any progress, fearing that would lead to consolidation. Senator Boyd and I sent another letter to the mayors asking them to work on coordination. Mayor Chappie outlined wonderful suggestions and Mayor Murphy committed to find ways to save taxpayer money. Unfortunately, the mayor of Holmes Beach once again offered no help or coordination. Left with no option, the independent state agency, OPPAGA, has begun work on the study. The Island cannot function long-term with residents fleeing, selling their homes and creating more vacation rentals, budgets souring with out-of-control regulation – like in Holmes Beach restricting reasonable beach parking.
“The study will look at all options available to make the Island stronger and more efficient. On a 7-mile stretch of land, do we really need three police departments? Do we need three building departments or public works departments all with different standards and ways of doing things? Do we need three city commissions and three mayors with never-ending rising revenues but a plummeting resident population?” Robinson stated.
“I don’t have all the answers to any of these questions because we don’t have the data, and I have not heard from all the residents. The OPPAGA study will look at all options, including doing nothing. The study will take several months to complete and it is my strong opinion that if a change is made, the (existing) building height on the Island should be 100% legally protected from going any higher, as that is critical to the charm and quality of life on the Island,” Robinson stated.
“Even though the mayor of Holmes Beach continues to block progress and any reasonable coordination, I urge the mayors to get back in a room and find ways to save taxpayer money. I am happy to play whatever role you need and offer any help. The Legislature is forced to proceed with this study because residents have asked us for help and some have told me they are scared to speak up for fear of repercussions from the city of Holmes Beach.
Robinson noted none of the 2023 city commission races on the Island were contested and all eight incumbent commissioners seeking reelection ran unopposed. He noted there hasn’t been a contested commission on the Island since 2021.
He noted that as of 2023, Bradenton Beach had 644 registered voters, Anna Maria had 925 and Holmes Beach had 2,638.
“As the voting population continues to dwindle, will there be enough eligible islanders to fill all of the mayor and commission seats? Overall, the Island has lost a significant amount of its voter population in 15 years, even as Florida has exploded in growth. Over the last 20 years, the Island has exploded in vacation rental growth, while the resident and voting population has plummeted. That trend does not seem to be ending. And, just to the north, the town of Longboat Key has more population than all three Island cities combined and is on a bigger island,” Robinson stated.
“Now, more than ever, we need to make the Island stronger and more efficient to bring down taxes, reduce unnecessary regulation and preserve our beautiful beaches for everyone. This study will provide invaluable data that will allow us to review every feasible option available for the Island. It is imperative the Island gets on a better path that reduces taxes, unnecessary and burdensome regulations and is more welcoming to all residents, most especially in greater Manatee County, who also pay taxes to support our beautiful beaches,” Robinson stated.
Titsworth has consistently maintained that her city government is not attempting to restrict parking.
Financial impacts
Consolidating the three Island cities into one Island city or annexing the three cities into the city of Bradenton or Manatee County would have significant financial impacts. If the three Island cities were consolidated into one Island city, the annual property tax revenues currently received by each respective city would be controlled by the Island’s newly-created governing body.
If the three cities were annexed into the city of Bradenton, that city would then receive those property tax revenues. If the three Island cities were annexed into Manatee County, the county would receive those property tax revenues.
For the current tax year, the taxable value of all properties in Holmes Beach is $3.14 billion. The total taxable value in Anna Maria is $2.03 billion and $981 million in Bradenton Beach.
A property owner’s tax bill is calculated using the annual millage rate established by each specific governing body. Anna Maria and Holmes Beach’s current 2.05 millage rates are the lowest in Manatee County. The millage rate in Bradenton Beach is 2.3329 mills. The millage rate in Bradenton is 5.8351 mills and Manatee County’s 2023-24 millage rate is 6.2326 mills.
One mill equals $1 in property taxes owed per $1,000 of assessed taxable property value.
The millage rate calculation formula is: Taxable value divided by 1,000 multiplied by the millage rate equals the property tax owed.
