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Ethics Training for Boards & Commissions

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Boards and Commissions Ethics Training Booklet

Boards and Commissions Ethics Training Instructions

Congratulations on your appointment to a City board or commission! You are now designated as a City Official. In this role, you are given roles and responsibilities as outlined by the Executive Order or Municipal Code provision establishing your board or commission.

To help you make the most of your service to our City and its residents, the Office of Ethics, Compliance and Oversight has developed this Boards and Commissions Manual to make sure you are aware of the rules that now apply to you as a City Official.

Before you discuss anything related to your board with any other member of your board, please complete the following:

Step 1: Study the Following Sections

  • State Sunshine Law and Public Records Law
  • State and Local Ethics Laws
  • Required Ethics Training

Step 2: Complete the Following

  • Complete the Self-Assessment for Conflicts of Interest in the Voting Conflicts section.
  • Complete the Financial Disclosure Self-Assessment.
  • Complete the Quasi-Judicial Self-Assessment, if applicable.
  • Return the completed Knowledge Check.

Step 3: Register for Ethics Training

Register for a 2026 ethics training session within six months of appointment to the board.

Send your completed Knowledge Check, the name of your board, and your preferred training date to Ethics@coj.net no later than 10:00 a.m. on your preferred training date.

Knowledge Check for Boards and Commissions

Please print out this two-page Knowledge Check prior to reviewing the material. We ask that you handwrite your answers and submit a scan or photo when completed.

In order to register for the live training date of your choice, please submit your completed Knowledge Check to Ethics@coj.net. Trainings do occasionally fill up, so it is best to submit the Knowledge Check as soon as possible. The deadline is no later than 10:00 a.m. on the day you wish to attend virtual live training.

Name and Board Information

Please list your name and the name of the City board or boards on which you serve:

Name: __________________________________________

Board or Boards: __________________________________________

Knowledge Check Questions

  1. Based on the State Sunshine Law and Public Records Law section, what is the purpose of the Sunshine and Public Records laws?

  2. Based on the State Sunshine Law and Public Records Law section, you have just been appointed to a City board and the chair invites you to lunch “to get to know each other better.” Can you go? If you go, are there any restrictions on topics you can discuss with the chair? Please explain.

  3. Based on the State Sunshine Law and Public Records Law section, how do you plan to preserve the documents you generate and receive related to your board’s business?

  4. Based on the State and Local Ethics Laws section, if you are offered tickets to a Jaguars game, including access to a private suite, name at least three questions you should ask yourself and/or the giver before accepting the gift.

  5. Based on the State and Local Ethics Laws section, if you were running late for a board meeting and got pulled over by a police officer, would it be okay to tell the officer that you are on a City board? Why or why not?

  6. Based on the State and Local Ethics Laws section, why do you think there are rules against campaigning for yourself or others during a public meeting? Please give three reasons.

  7. Based on the Voting Conflicts section, what is a voting conflict? How can a voting conflict be fixed?

  8. Based on the Voting Conflicts section, what causes a prohibited conflict of interest? How can a prohibited conflict of interest be fixed?

  9. Based on the Financial Disclosure Self-Assessment and Financial Disclosure Summary sections, are you required to file financial disclosures? If so, when are you required to file them?

  10. Based on the Required Ethics Training section, when are you required to complete ethics training?

When complete, send a picture or scanned image to Ethics@coj.net.

Table of Contents

Part I: Sunshine and Open Government

  • Summary: Sunshine Law and Public Records Law

Part II: Government Ethics

  • Summary: State and Local Ethics Laws
  • Self-Assessments for Conflicts of Interest
  • Self-Assessment for Financial Disclosure Filers

Part III: Board Governance

  • Summary: Local Code on Boards and Commissions
  • Summary: Required Ethics Training
  • Self-Assessment for Quasi-Judicial Action

Part IV: Resources

  • Legal Guide
  • Robert’s Rules of Order
  • ADA Compliance
  • City Contact List for When Questions Arise

Part I: Sunshine and Open Government

Summary: Sunshine Law and Public Records Law

Overview

Through the Government in the Sunshine and Public Records laws, the State of Florida leads the nation in government transparency. To build public trust, these laws establish the right of citizens to observe decision-making at the state and local government levels. In practice, this generally means that all communications and records related to City business are for the benefit of the public, and therefore must be accessible and/or made available upon request.

Sunshine Law

The Sunshine Law applies when two or more individuals on the same board discuss an issue that could come before their board. Under the Sunshine Law, any communication with another board member regarding issues that may come before your board must occur only at a meeting noticed to the public and press.

This means you and other board members cannot discuss outside of noticed meetings any issues your board may potentially consider. Thus, you should avoid discussing issues with fellow board members:

  • In the meeting room before or after a public meeting.
  • Via email, texts, social media, telephone, or letters.
  • During casual gatherings or chance encounters.
  • By using third-party liaisons to communicate between each other.

The Sunshine Law applies to all board meetings, including committees and subcommittees. Additionally, the Sunshine Law applies to a single board member when that member acts as the sole decision maker for the board as a whole, such as the negotiation of contract terms or vendor selection.

The Sunshine Law has three basic requirements:

  • Discussion must take place at meetings open to the public.
  • Reasonable notice of such meetings must be given.
  • Minutes must be taken and promptly recorded.

Part II: Government Ethics

Summary: State and Local Ethics Laws

Government ethics is distinct from personal ethics and relates primarily to the fairness and transparency of the institution rather than an understanding between right and wrong. The state and local Ethics Codes are designed to prevent even an appearance that public officials are using their government positions for their personal gain at the expense of the community as a whole.

In addition to Sunshine and Public Records Laws, the state and local Ethics Codes require that all board members follow a code of conduct for public officials. These codes cover varied topics, including acceptable gifts, conflicts of interest and bribes.

Below you will find a quick summary of the Ethics Codes danger areas most often encountered by board members. This list is meant to help you identify potential issues before they become problems for you or the City. If you have questions, you can reach out to our office or find links to the complete laws in the Legal Guide section.

Gifts

Gifts are a major danger area when it comes to government ethics for two reasons:

  1. Gifts are used to influence the decisions of public officials.
  2. Gifts can be difficult to identify because they come in many different forms.

A gift is broadly defined as anything given to you, done for you, or given to someone else on your behalf. However, gifts do not include things given by relatives or the salary, benefits, fees, commissions, gifts, or expenses related to your employment or business.

Gifts do not need to be connected to or given as a result of your City board position to qualify as a gift under the Ethics Codes. The best policy is to not accept any gifts.

  • Do not accept gifts in excess of $100 at a time, or $250 in a year, from anyone lobbying or doing business with your board. If you receive this kind of gift, you have 90 days to return it or pay down the value to $100.
  • Travel or expenses for conferences related to your board and paid on your behalf by anyone outside the City are gifts.
  • Do not ask anyone lobbying or doing business with your board for anything, including favors or gifts, for you or your family.
  • Do not accept a gift with the understanding that it will influence your board decisions, such as “I will do this if you give me that.”
  • Members of boards listed in the Financial Disclosure Self-Assessment section may be required to file gift disclosures.
  • Read more in the Legal Guide section.

Self-Assessments for Conflicts of Interest

Voting Conflicts

Voting Conflicts, or “Little Conflicts,” arise when you, your relatives, employer, clients or other business associates might have a financial interest or loss in relation to a vote your board is taking. This can be cured by declaring your voting conflict, abstaining from voting and filing a completed Form 8B Voting Conflict Disclosure.

To determine if you may have a voting conflict, please answer the following questions:

  • Is your board voting on an issue that could result in a special benefit or loss to you, your relatives, business/employer, clients or clients of your employer, or business associates?
  • Is the benefit or loss economic in nature?
  • Is the benefit or loss affecting a small number of individuals or businesses?

Tips on Handling a Voting Conflict

If your board is preparing to take a vote on an issue and you, your relatives, business/employer, clients or business associates have a connection to the entity or person that will be impacted by the vote, you need to take the following steps:

  1. Call the Ethics Office or Office of General Counsel attorney for your board.
  2. Complete the Form 8B Voting Conflict memo for each vote that will take place related to the conflict.
  3. File the Form 8B before the meeting with the person who takes the minutes and ensure the person taking minutes distributes your Form 8B to your board immediately.
  4. Ensure your Form 8B is read at the meeting before the vote.
  5. Prior to participating in any discussion on the issue, declare the nature of the voting conflict by advising of your relationship to the entity or person that will be impacted by the vote.
  6. Abstain from voting.

To assist you in properly declaring a voting conflict, here is an example:

I need to declare a voting conflict on ________ because [explain relationship to entity/person impacted by vote], who/which will receive an economic benefit or loss from this vote. I am abstaining from voting and I have filed my 8B Voting Conflict form with ____________________, who is taking the minutes of the meeting.

Note: If the voting conflict is unknown prior to your board meeting, follow steps 5 and 6, modify the sample declaration above to indicate you will file Form 8B, and then be sure to file the Form 8B within 15 days of the meeting.

Self-Assessment for Financial Disclosure Filers

Florida Statutes sections 112.3145 and 112.3148 require members of specific City boards to file an annual disclosure statement of their financial interests, Form 1, and a quarterly gift disclosure, Form 9, for any acceptable gifts received in the prior calendar quarter.

Are You a Member of One of the Following Boards?

  • Building Codes Adjustment Board
  • City of Jacksonville Retirement System Pension Board of Trustees
  • Downtown Investment Authority
  • Jacksonville Aviation Authority
  • Jacksonville Electric Authority
  • Jacksonville Ethics Commission
  • Jacksonville Health Facilities Authority
  • Jacksonville Housing Authority
  • Jacksonville Police & Fire Pension Fund Board of Trustees
  • Jacksonville Port Authority
  • Jacksonville Transportation Authority
  • Planning Commission
  • Public Nuisance Abatement Board

If yes, you are a financial filer and should continue to the Financial Disclosure Summary section.

If no, you do not need to file financial or gift disclosures at this time. However, additional boards may occasionally be added to the list. The Ethics Office or your City staff may share updated information regarding the filing of financial disclosures from time to time.

Financial Disclosure Summary

If you are a financial disclosure filer, you are required to file the following three forms:

  1. Form 1
  2. Form 1F
  3. Form 9
Form 1: Financial Disclosure Form

Form 1 requires sources of income, not actual amounts. It must be filed on the following dates with the Florida Commission on Ethics:

  • Within 30 days of initial appointment, generally the date you are confirmed by City Council. File for the entire prior calendar year, like taxes.
  • July 1 of each year. File for the entire prior calendar year, like taxes.
Form 1F: Final Financial Disclosure Form

Form 1F must be filed within 60 days of leaving your board. File Form 1F to cover the time served in the current calendar year.

Note: The State Ethics Commission imposes significant fines and penalties for failing to file timely and accurate financial disclosures.

Form 9: Gift Disclosure Form

If you are required to file state financial disclosure forms, you are also required by state law to file a quarterly Gift Disclosure, Form 9, detailing gifts you received from allowable sources that are valued over $100.

Please note the following:

  • Gifts from relatives are acceptable regardless of the value, even if the relative is a lobbyist. These gifts are not reported on a Form 9.
  • Gifts related to your employment are acceptable and not reported on a Form 9.
  • Gifts over $100 from lobbyists, vendors and entities doing business with your board are illegal and are not reported on a Form 9. If you accept this kind of gift, you have 90 days to return it or pay down the value to $100.
  • All other gifts over $100, regardless of who they come from or whether they are unrelated to your City board position, must be disclosed on a Form 9. This could include holiday gifts from neighbors or shared vacations with family friends.
  • You are not required to file a Form 9 gift disclosure if you do not receive any acceptable gifts over $100 during the prior quarter.

Part III: Board Governance

Summary: Local Code on Boards and Commissions

Chapter 50 of the Jacksonville Ordinance Code applies to all boards, commissions and councils created by ordinance. While this section is not related to Ethics, we include an overview in this manual and in our ethics training for boards for your convenience.

Individual Requirements

Chapter 50 sets forth the following requirements that apply to board members individually.

Terms

You:

  • Remain a member of the board until a new person is approved to take your place or you officially resign, even if your position has an established time frame.
  • Cannot serve more than two consecutive full terms on your board.
  • Must resign from the board within 24 hours if you seek employment or a paid position with the department or agency that your board oversees.
Residency Matters

You:

  • Must maintain Duval County residency or substantial business ties throughout your term.
  • Will automatically be removed as a board member if residency or substantial business ties are not maintained throughout the term.
Attendance Matters

You:

  • May be removed from the board position if you miss two out of three consecutive meetings of the board without cause and approval from the board chair.
  • Must maintain 75% or greater attendance at board meetings to avoid appearing before City Council for reappointment. Committee meetings do not count toward the attendance record.
Ethics Training Required

You:

  • Must be trained within six months of appointment and every four years after initial training. See the Required Ethics Training section for further details.
  • Must acknowledge receipt of information regarding laws applicable to board members and an understanding of the legal requirements for board members. See the Acknowledgement of Duties section.

Summary: Required Ethics Training

To educate and assist City board members regarding the ethical responsibilities they have as City Officials, the City requires all board members to complete ethics training required by the Ethics Office.

Per Jacksonville Code section 50.109, every board member has to complete an ethics training session within six months of appointment. Training must be completed again every four years following the initial training to refresh education.

Ethics training lasts approximately one hour. Training topics may include, but are not limited to:

  • Ethics in government
  • ADA compliance
  • Chapter 50, Boards and Commissions, of the Ordinance Code
  • Chapter 58, Advisory Boards and Commissions, of the Ordinance Code
  • Public Records and Sunshine Law
  • Methods for elimination of discriminatory practices

Ethics training typically occurs in person on a bi-monthly rotation in the Lynwood Roberts Room at City Hall. However, when in-person training is interrupted, the Ethics Office may provide digital training to assist you in satisfying the requirement.

To receive information on how to complete the training, please RSVP by email with your name and the name of your board to the Ethics Training Coordinator at Ethics@coj.net.

If you would like to request any accommodations for ethics training pursuant to the Americans with Disabilities Act, please allow one to two business days to process the request. Last-minute requests will be accepted but may not be possible to fulfill.

Please contact the Disabled Services Division at:

Self-Assessment for Quasi-Judicial Action

If you are on one of the City boards listed in this section, you may occasionally take quasi-judicial action, and you should keep reading.

If you are not on one of these boards, continue to the Legal Guide section.

Part IV: Resources

Legal Guide

The laws that apply to you as a City Official and board member are summarized in this manual. If you have questions, you can reach out to the Ethics Office at Ethics@coj.net or you can find the laws and resources in full below.

State Sunshine Law and Public Records Law

This topic is summarized in the State Sunshine Law and Public Records Law section.

The Attorney General enforces state laws and has ultimate authority to interpret the Sunshine and Public Records statutes.

State and Local Ethics Laws

This topic is summarized in the State and Local Ethics Laws section.

Local Boards and Commissions Governance Laws

This topic is summarized in the Board Governance and Required Ethics Training sections.

Local Laws Related to Purpose and Duties of Each Board and Commission

If you have questions about the Executive Orders regarding your board, contact the Mayor’s Office or City staff to your board.

Robert’s Rules of Order

The Basics

All City boards are required by their by-laws or the Jacksonville Code to use Robert’s Rules of Order to facilitate public meetings. Although this is not an ethics issue, we have provided a brief overview below for your convenience.

Purpose of Robert’s Rules of Order

The purpose of Robert’s Rules of Order includes the following:

  • Ensure majority rule.
  • Protect the rights of the minority, the absentees and individual members.
  • Provide order, fairness and decorum.
  • Facilitate the transaction of business and expedite meetings.

Basic Principles

  • All members have equal rights, privileges and obligations.
  • Full and free discussion of every motion is a basic right.
  • Only one question at a time may be considered, and only one person may have the floor at any one time.
  • Members have a right to know what the immediately pending question is and to have it restated before a vote is taken.
  • No person can speak until recognized by the chair.
  • Personal remarks are always out of order.
  • A majority decides a question except when basic rights of members are involved.
  • Silence gives consent. Those who do not vote allow the decision to be made by those who do vote.

Role of the Presiding Officer

  • The chair should remain impartial and only insert their opinion into the debate after everyone else has had a chance to speak.
  • Introduce business in proper order.
  • Recognize speakers.
  • Determine if a motion is in order.
  • Keep discussion germane to the pending motion and maintain order.
  • Put motions to a vote and announce results.

ADA Compliance

As part of making meetings open to the public under the Sunshine Law, they must be accessible to individuals with disabilities. The City’s Disabled Services Division provides numerous services, including braille transcribing, that can make your meetings and handouts more accessible.

They also recommend preparing large-font copies of handouts and using people-first language when communicating with people with disabilities.

People-First Language

Use the following terms:

  • People with disabilities.
  • He has a cognitive disability or diagnosis.
  • She has autism, or a diagnosis of autism.
  • He has Down syndrome.
  • She has a learning disability or diagnosis.
  • He has a physical disability or diagnosis.
  • She’s a little person.
  • He has a mental health condition.
  • She uses a wheelchair or mobility chair.
  • He receives special education services.
  • She has a developmental delay.
  • Children without disabilities.
  • Communicates with her eyes or device.
  • Congenital disability.
  • Brain injury.
  • Accessible parking, hotel room, etc.
  • She needs, or she uses.

Avoid the following terms:

  • The handicapped or disabled.
  • He’s mentally retarded.
  • She’s autistic.
  • He’s Down’s; a mongoloid.
  • She’s learning disabled.
  • He’s a quadriplegic or is crippled.
  • She’s a dwarf or midget.
  • He’s emotionally disturbed or mentally ill.
  • She’s confined to a wheelchair or is wheelchair bound.
  • He’s in special ed.
  • She’s developmentally delayed.
  • Normal or healthy kids.
  • Is non-verbal.
  • Birth defect.
  • Brain damaged.
  • Handicapped parking, hotel room, etc.
  • She has problems with.

Excerpted from Kathie’s People First Language article, available at www.disabilityisnatural.com.

City Contact List for When Questions Arise

We have done our best in Parts I through III above to address the most common questions that arise, but you may have more questions after reviewing this manual. Please find a list of helpful individuals below, along with a brief overview of their expertise.

Questions Related to Sunshine, Public Records, and State and Local Ethics Laws

Kirby G. Oberdorfer, Director
Andrea B. Myers, Training Manager
Office of Ethics, Compliance and Oversight
Email: ethics@coj.net
Office: 255-5510
Hotline: 630-1015

Questions Related to Fraud, Waste and Abuse

Inspector General
Office of Inspector General
Email: inspectorgeneral@coj.net
Phone: 630-8000

Questions Related to Accessibility and ADA Inclusivity

Kara Tucker, Chief
Disabled Services Division
Email: KaraT@coj.net
Phone: 255-5466

Questions Related to Human Rights and Inclusivity

Rudy Jamison, Director
Jacksonville Human Rights Commission
Email: rjamison@coj.net

All Other City Issues

Contact the City’s helpline.
Email: myjax@custhelp.com
Phone: 630-CITY (2489)

Florida Sunshine Law

Sunshine Laws in a Nutshell For Government Boards and Commissions

Overview

Through the Government in the Sunshine and Public Records laws, the State of Florida leads the nation in government transparency. To build public trust, these laws establish the right of citizens to observe decision-making at the state and local government levels. In practice, this generally means that all communications and records related to City business are for the benefit of the public, and therefore must be accessible and/or made available upon request.

Sunshine Law

The Sunshine Law applies when two or more individuals on the same board discuss an issue that could come before their board. Under the Sunshine Law, any communication with another board member regarding issues that may come before your board must occur only at a meeting noticed to the public and press. This means you and other board members cannot discuss outside of noticed meetings any issues your board may potentially consider.

Thus, you should avoid discussing issues with fellow board members:

  1. In the meeting room before or after a public meeting.
  2. Via email, texts, social media, telephone, or letters.
  3. During casual gatherings or chance encounters.
  4. By using third-party liaisons to communicate between each other.

The Sunshine Law applies to all board meetings, including committees and subcommittees. Additionally, the Sunshine Law applies to a single board member when that member acts as the sole decision maker for the board as a whole, such as the negotiation of contract terms or vendor selection.

The Sunshine Law has three basic requirements:

  1. Discussion must take place at meetings open to the public.
  2. Reasonable notice of such meetings must be given.
  3. Minutes must be taken and promptly recorded.

Highlights

  • Only discuss issues at publicly noticed meetings.
  • Ask thoughtful questions during public meetings before voting to avoid the appearance that things have already been decided and to let citizens see your thought process.
  • Avoid sidebar conversations during a meeting.
  • Avoid conversation while entering and exiting the board meeting, even if you have already voted on an issue.
  • Individual board members can discuss issues with employees of the City and other agencies.
  • Individual board members can share relevant information with other board members between meetings. Ask your board staff to send a one-way email.
  • Two or more board members can attend and speak at a publicly noticed meeting held by a different board, but they cannot engage with each other.

Meeting Notices and Minutes

You are responsible for ensuring that public meetings for your board comply with the Sunshine Law, including the posting and distribution of meeting notices in a reasonable time prior to meetings and taking written minutes at all meetings.

City staff assigned to your board typically handle the posting and distribution of meeting notices and the taking of minutes. However, you are responsible for confirming this is occurring. If no City staff is at your public meeting, you must take minutes yourself.

Requirements for notices and minutes:

  1. Notices should be posted seven days before a regular meeting, and at least 24 hours before a special or emergency meeting.
  2. Notices must include a date, start time, and location of the meeting. When possible, notices should also include an agenda or list of topics to be addressed at the meeting.
  3. Written minutes must be recorded and available for inspection.

The Sunshine Law also requires that the public has an opportunity to comment before any final action is taken by your board.

Violating the Sunshine Law could result in fines up to $500, 60 days in jail, and civil suits that may invalidate board decisions and an award of attorney’s fees.

Public Records

All records related to the transaction of government business are public records and must be made available to the public upon request. This includes all emails, text messages, social media postings, documents, papers, letters, maps, books, tapes, photographs, films, sound recordings, and handwritten notes related to your board business, regardless of whether they are in their final form and regardless of where they are kept.

Even personal notes and draft documents intended for personal use become public records if they are communicated to anyone else.

To help preserve records related to your board, you should keep a binder of all board records to provide to the City at the end of your board service. You should also forward all emails regarding board business to the City staff that supports your board. If you receive any request for records related to your board, immediately forward the request to the board staff so the request can be handled correctly and in a timely fashion.

Penalties for destroying or failing to maintain public records can include a maximum of one year in jail and criminal fines, as well as civil penalties, including a $500 fine.

Public Meeting Reminders

  • Do not prevent the public from attending public meetings.
  • Do not ask anyone to leave a public meeting.
  • Do not begin the meeting early, not even by one minute.
  • Ask the Ethics Office if you are not sure.

Requirements

  • Provide notice seven days in advance whenever possible.
  • Public meetings must be in buildings that are accessible to all members of the public, including persons with disabilities.
  • Allow public comment before final action is taken.

Public Records Reminders

  • Do not destroy or delete records related to City business.
  • Any records related to City business that are located in personal email accounts or on personal devices, including cell phones, are public records. This includes text messages and emails.
  • Create a system to store your public records so they can be easily retrieved, such as scanning documents and saving texts.
  • Be prepared to respond to requests for public records.