CITIES IN THE CLASSROOM
Section II: Local Government
Lesson 3
The Legal Roles of Florida’s City, County and State Governments
SS.7.C.3.9 – Illustrate the law making process at the local, state, and federal levels.
SS.7.C.3.14 – Differentiate between local, state, and federal governments’ obligations and services.
LAFS.7.RI.4.10 – By the end of the year, read and comprehend literary nonfiction in the grades 6-8 text
complexity band proficiently, with scaffolding as needed at the high end of the range.
LAFS.7.SL.1.1 – Engage effectively in a range of collaborative discussions (one-on-one, in groups, and teacherled) with diverse partners on grade 7 topics, texts, and issues, building on others’ ideas and expressing their own
clearly.
Source
Adapted from: Florida League of Cities, Florida City and County Government: A Teacher Handbook
Overview
In learning about Florida’s city and county level governments it is important for students to become familiar
with the legal foundation under which governments operate and to understand their respective relationship
with state government and with each other. These legal roles and responsibilities are spelled out in the
Florida Constitution, the statutes, special acts and, in the case of cities, the local charter.
Objectives
 Students will be able to list at least five of the various legal roles and responsibilities established for
city governments in Florida.
 Students will be able to list at least five of the various legal roles and responsibilities established for
county governments in Florida.
 Students will be able to use correctly the following terms in class discussion and written assignments:
municipal government/municipality, county government, and intergovernmental relations.
 Students will be able to explain the relationship between city government and state government,
between county government and state government, and between city government and county
government.
***The terms municipal government/municipality, county government, and intergovernmental
relations (see Vocabulary) are introduced and stressed in this lesson. However, other terms used in this
lesson which it may be helpful to review include: ad valorem taxes, charter, consolidation, general law,
Home Rule, incorporation, mills (or millage rate), ordinance, sovereignty and special act.
Time
 One 50 minute class period
Vocabulary
 municipal government / municipality
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o In Florida, an incorporated city, town or village having powers of self-government provided
by charter. (For the purposes of this curriculum, the term "city" will be used interchangeably
to refer to all municipal governments in Florida.)
county government
o A political subdivision of the state established by the state Legislature to implement state
services at the local level.
intergovernmental relations
o The connection or involvement of one or more governments with each other; the relationship
possibilities take many forms, with both positive and negative results, and may include an
overlap of power or jurisdiction prescribed by law, an agreement to mutually share certain
services, a shared taxing source, land issues, one or more intergovernmental committees, a
cooperative partnership for a specific project and duplicative services, to name a few
examples.
ad valorem (property) tax
o A local government tax based on the value of real and personal property; the term "ad
valorem" means "according to the value of."
charter
o The basic law, or constitution, of a city or county government issued by the state Legislature
and usually approved by a vote of the citizens. The King (or Queen) of England during the
late Middle Ages also granted "charters" to citizens of a community, giving them the power to
promote local improvements and to regulate certain aspects of community life.
general law
o A legislative act, which is intended to have statewide application.
home rule
o Local self-government (self-rule) by the people with limited interference by another level of
government, within the parameters of the law.
incorporation
o The legal act taken when a community adopts a charter and becomes a municipality (in
Florida: a city, town or village, each having equal powers under state law).
mills/millage rate
o The rate of taxation as it applies to ad valorem property taxes; one mill is equivalent to $1 per
$1,000 of taxable value.
ordinance
o A law of a permanent nature passed by a city or county and enforceable within that
government's respective boundaries. (Note: Non-charter county government ordinances that
conflict with ordinances of a city within that county, are not effective within the boundaries of
that city to the extent of the conflict.)
sovereignty
o Supreme and independent power or authority.
special act
o A legislative act that applies to an area or group that is less than the total area or population of
the state
Strategies
 Guided independent activity
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Whole class discussion
Materials
 Copies of “The Legal Roles of State, County and City Government in Florida” Worksheets
 Answer key for Legal Roles Worksheet
 Whiteboard or flipchart and markers
Potential Roles of a Public Official
 Facilitate scenarios
 Serve as a content knowledge resource
 Provide real-world examples of public policy issues, ongoing city debates, and public v. private
interests
Activities
1. Hand out "The Legal Roles of State, County and City Government in Florida." Explain to students
that the handout contains a summary of some of the broad legal roles and responsibilities established
for state, county and city governments in Florida and that this information will assist them in
understanding the relationship between these various governmental levels.
2. As a whole class, read through the handout. Ask students to read the descriptions of each government
listed under Step 1 of the handout and ask clarifying questions to check for their understanding.
Then, students should use this information to fill in the blanks for the 20 statements listed under Step
2 of the handout, indicating which government's legal role or function is being described. Be sure to
remind students to use the abbreviations for the various governments, as indicated in the "key," and
point out that a particular statement may apply to only one of the governments or may apply to two or
more of the governments. For those statements that apply to county governments, students should
circle their "C" if it is true for chartered counties only. A teacher key is provided.
3. While students are working on the activity, write on the chalkboard or flipchart the following three
headings: state government, county government, and city government. When students have had
sufficient time to complete their activity, review the 20 statements as a class. As students supply the
answers, write the role or responsibility under the appropriate heading, as in the example below.
(Optional: Assign one student to each heading and ask them to write the appropriate statements for
their respective government on the board.)
state government
county government
city government
 Is a taxer
 Is a taxer
 Is a taxer
 Has powers of self May annex property
government
 Has powers of self May enact up to 20 mills in
government
ad valorem property taxes
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4. Lead a discussion on these governmental roles and responsibilities asking students to offer their
respective ideas as to why these various roles and responsibilities developed as they did. Responses
might include: subdivision of the state into counties (to better provide state services at the local level),
checks and balances (sovereignty of state balanced by more local self-government, within the
parameters of the law), more participation at the local level and the need for basic services provided
in an organized fashion (establishment of municipalities by charter), and demand of local citizens
living in the unincorporated areas served by county government.
5. As a final exercise, define the term "intergovernmental relations" for the students (see Passport
Vocabulary). Using the three lists developed in the previous discussion ask students to identify
specific issues that point to an intergovernmental relationship between city government and state
government, between county government and state government, and between city and county
government. These ties may be identified on the list by using arrows. For example, state
government: through its legislative arm (the Legislature) may create or abolish counties and cities
and amend local charters; provides state services to all state citizens either directly or through its
agents, the county governments (thus, impacting activities even within municipal boundaries); has all
constitutional authority to tax (with the exception of ad valorem taxes), affecting all jurisdictions of
the state; and has a statewide court system (cities have no courts). County governments: are a
political subdivision of the state; provide state services to citizens throughout their respective county
jurisdiction, even within municipal boundaries; may levy up to 10 mills in ad valorem taxes within
their respective unincorporated areas (cannot tax within the city limits); and may enact county
ordinances which are in effect throughout the county unless in conflict with a municipal ordinance.
City governments: have self-government within the parameters of laws passed by the state; may
provide municipal-type services outside of their jurisdiction, thus impacting county government; may
annex property (thus taking in property previously on the county tax rolls); and may levy up to 10
mills in ad valorem property taxes, but only within their respective city limits.
Extension Suggestions
1. Invite a representative from city government and a representative from county government to address
the class, from their perspective, on the role played by their respective local governments in
relationship to citizens of the community, to the other's government and to state government.
2. Students may elect to interview representatives from city government, county government and even
state government, if available, on their government's participation in "intergovernmental relations."
3. Select a current "intergovernmental relations" topic that is in the local news. Have students research
the issue, using the media, talking to their parents and, if possible, interviewing the involved parties.
Hold a discussion on the merits of the issue. If controversial, select a panel of five students to
represent one side of the issue and a panel of five to represent the other side. Hold a brief debate,
allowing the class to vote on their preferred option. Follow through on the issue to see if it is resolved
and how the outcome compares with the students' vote.
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"The Legal Roles of State, County and City Government in Florida"
Name_____________________________________________ Date________________________
Step 1:
Read the information provided below on the legal roles and responsibilities established for state government, county
government and city government in Florida.
State Government
1. Has sovereignty (highest authority) over local government affairs, as defined by the United States federal system;
2. Is a provider of statewide governmental services, such as judicial, health, financial and transportation services,
either directly or through its agents, the county governments;
3. Is an economic and social equalizer (has the responsibility to provide for those in the state who cannot provide for
themselves);
4. Is a regulator in order to correct abuses that exist;
5. Is a taxer and has all constitutional authority to tax, except as provided for in general law (excludes ad valorem
property taxes, which are reserved for local governments by the Florida Constitution);
6. Has its supreme executive power vested in a Governor, elected by the people;
7. Has legislative power vested in a Legislature, consisting of the House and Senate, whose representatives are
elected by the people; and
8. Has a court system (Supreme Court, district courts of appeal, circuit courts and county courts) to interpret laws at
all levels (judicial).
County Government
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
Is a political subdivision of the state;
Carries out state services on a local basis;
May be created, abolished or changed by laws of the state Legislature;
Has a county seat designated by general law where the principal offices and permanent records of all county
officers are located;
Except when otherwise provided by county charter, is governed by a Board of County Commissioners (legislative
and some executive) composed of five to seven members who are elected by the people to serve staggered fouryear terms;
Has five constitutional officers (executive in their respective areas) elected by the people of each county (the
Sheriff, Tax Collector, Property Appraiser, Supervisor of Elections and Clerk of the Circuit Court);
Has powers of self-government (Home Rule) as provided by general or special law (non-chartered counties) or not
inconsistent with general law or with special laws approved by a vote of the people (chartered counties);
May enact county ordinances or laws not inconsistent with general law;
May enact up to 10 mills in property taxes (ad valorem taxes) on a countywide basis and may levy up to an
additional 10 mills in all or part of the unincorporated area of the county for municipal purposes (may exceed 10
mill cap for up to a two-year period, if authorized by the voters); and
Provides facilities for state courts and oversees its county courts (judicial), which are part of the state court system.
5
City Government
1. Is legally established through the act of incorporation, which includes adoption of a charter prepared by citizens
residing in the affected area; the charter must be subsequently authorized by special act of the Legislature
(generally these special acts contain a referendum requirement, i.e., a vote of the people).
2. May be established or abolished and its charter amended per general or special law approved by the state
Legislature;
3. Provides municipal-type services required by the people, including, but not limited to, police services, fire
protection, garbage collection, traffic control, street lighting, sewage treatment and drinking water;
4. Has governmental, corporate and proprietary powers to enable it to conduct municipal government, perform
municipal functions and render municipal services, and may exercise any power for municipal purposes except as
otherwise provided by law (Home Rule or self-government);
5. Has a municipal legislative body elected by the people and provided for by charter;
6. May enact municipal ordinances not inconsistent with state laws or county charter;
7. May annex property (annexation is the process available to expand the boundaries of a city), as provided by
general or special law; and
8. May enact up to 10 mills in property taxes (ad valorem taxes) within the incorporated boundaries of the city (may
exceed 10 mill cap for up to a two-year period, if authorized by the voters of the city).
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Step 2:
Fill in the blank before each of the statements that follow, indicating which government (or governments) is described
by the respective statement. Use the appropriate abbreviation for the governments, as indicated in the "key." Note that
a statement may refer to more than one type of government.
Key
M = city (municipal) government
C = county government
S = state government
________
1.
May enact ordinances not in conflict with general law
________
2.
Legislative body is elected by the people
________
3.
May annex property
________
4.
Is responsible for one or more courts (judicial)
________
5.
May levy ad valorem (property) taxes
________
6.
Has legislative power vested in two houses
________
7.
May adopt a charter
________
8.
Is a taxer
________
9.
Has sovereignty over local government affairs
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________
10.
Is legally established through the act of incorporation and adoption of a charter
________
11.
Has a Sheriff, Tax Collector, Property Appraiser, Supervisor of Elections and Clerk of the
Circuit Court elected by the people
________
12.
Has powers of self-government (Home Rule)
________
13.
Is a political subdivision of the state
________
14.
An ordinance enacted by this government which is in conflict with an ordinance of a city
within its jurisdiction is not effective within the boundaries of the city
________
15.
Provider of state services on a local basis
________
16.
Governing body is composed of five to seven members serving staggered four-year terms
________
17.
May be created or abolished by state law
________
18.
May enact up to 10 mills in ad valorem (property) taxes
________
19.
Elected body is composed of an odd number of voting members of 3 or more; terms may be
staggered or co-terminous
________
20.
Adopts ordinances (laws) and resolutions (opinion of the elected body at that time) for its
respective jurisdiction
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Teacher Key, Activity Sheet #1, Step 2
1.
C, M
2.
S, C and M
3.
M
4.
S, C
5.
C, M
6.
S
7.
C, M (note: counties may adopt a charter, cities must adopt a charter, so answers may
vary)
8.
S, C and M
9.
S
10.
M
11.
C
12.
C, M
13.
C
14.
C
15.
C
16.
C
17.
C, M
18.
C, M
19.
M
20.
C, M
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