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"Independent, special purpose governmental units (other than school
districts) that exist as separate entities with substantial administrative
and fiscal independence from general-purpose governments" (U.S.
Census Bureau, 1994, p.23).
"Legally constituted governmental entities…that are neither
cities, counties, redevelopment agencies, or schools" (Office of the
California State Controller, 1994, p.2).
What does a special district do?
Special districts fulfill a needed function, as determined by a local
constituency. For example, the League of Women Voters identified the
following types of special districts: Airport districts, hospital
districts, levee districts, community service districts, municipal utility
districts, public utility districts, recreation and park districts,
utility districts, sanitary districts, water districts, resource
conservation districts, water storage districts.
Additionally, special districts are formed to provide the following
services: mosquito abatement, library services, road maintenance, drainage
functions, and fire services (emergency mitigation).
Are all special districts the same?
1. Dependent district- The district is governed by a city council or
county board of supervisors, directly or indirectly.
Joint Powers Authority or Joint Powers Agreement (JPA).
2. Independent district-The district is governed by an elected board.
Created by residents who see an unfilled need or service.
Independent special districts can determine its own budget, levy
taxes, collect charges, and issue debt.
3. Enterprise districts- These districts are able to charge fees for some
or all of their services, i.e. garbage sewer, water.
4. Nonenterprise districts- Generally do not charge for their services,
i.e. fire protection, libraries.
5. Combination districts-The preponderance of the fees charged does not
make a significant portion of the district's revenues.
6. Single purpose district-The district provides a single service or
function, i.e. street lighting.
7. Multipurpose district-The district provides at least two services, i.e.
fire districts provide fire suppression, EMS, hazardous materials
mitigation, technical rescue, fire prevention services, and arson
investigation.
How did special districts get their start?
Turnpike trusts in the United Kingdom in 1500 (Smith, 1974).
George Washington's secretary of the Treasury used "mixed
corporations" to finance banks, canals, turnpikes, and bridges.
During the 19th century American employed special transportation districts
for toll roads and canals.
In California the first two irrigation districts were formed in 1887 under
the Wright Act.
The Depression caused a dramatic increase in special districts so the
States could evade debt limitations, thus allowing them to participate in
national public works projects.
During WWII a scarcity of materials slowed special district growth, but
postwar development pressures stimulated the expansion of special
districts.
What are the principal types of special districts?
Fire protection - 18.1%
Housing and community development - 12.0%
Water - 11.4%
(1994)
How many special districts are there in California, compared to
other forms of government?
58 counties
470 cities
380 redevelopment agencies
1,100 school districts
4800 special districts
(1992)
What laws govern special districts?
All federal and state laws apply.
Additionally, the following laws are particularly important to special
districts.
Cortese-Knox Act
Brown Act
Bergeson Fire District law
What controversies surround the discussion of special districts?
Government accountability
Run away taxation
Uncoordinated government service delivery
Consolidation/merger/annexation
Hidden government
Responsiveness
How can I learn more about special districts?
Advisory Commission on Intergovernmental Relations. 1964. The Problem of
Special Districts in American Government. Washington DC: Government
Printing Office.
Bollens, John C. 1957. Special District Government in the United
States. Berkley: University of California Press.
Burns, Nancy. 1994. The Formation of American Local Governments:
Private values in public institutions. New York: Oxford University Press.
California Legislative Analysts Office Home page at http://www.lao.ca.gov/default.asp
Downing, Paul B., and Thomas J. DiLorenzo. 1987. "User charges and
special districts." In J. Richard Aronson and Eli Shawtz, eds.,
Management Policies in Local Government Finance. Washington, DC:
International City management Association.
Morgan, Stephen. 1996. The Impact of Special District Reorganization.
University of Southern California: Dissertation.
By A/C Dan M. Haverty,
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