Senate Bill sb2580c1

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    Florida Senate - 2003                           CS for SB 2580

    By the Committee on Transportation; and Senator Sebesta





    306-2414-03

  1                      A bill to be entitled

  2         An act relating to roads; amending s. 334.30,

  3         F.S.; providing for public-private partnership

  4         agreements for transportation facilities

  5         without prior legislative approval; authorizing

  6         the department to adopt rules; providing

  7         requirements for projects advanced by a

  8         public-private partnership or private entity;

  9         authorizing the department to request

10         proposals; requiring notice; providing

11         requirements for ranking proposals; authorizing

12         the Department of Transportation to create

13         certain corporations; authorizing such

14         corporations to issue bonds; authorizing the

15         department to lend certain funds to such

16         corporations; authorizing the department to

17         adopt rules; repealing s. 348.0004(2)(m), F.S.,

18         relating to private entity proposals for

19         transportation projects; amending s. 348.0004,

20         F.S.; establishing a process enabling certain

21         expressway authorities to participate in

22         public-private partnerships to build, operate,

23         own, or finance certain transportation

24         facilities; specifying the expressway

25         authority's role in such projects and providing

26         rulemaking authority; providing for a selection

27         process; providing for the assessment of tolls;

28         providing for creation of certain tax-exempt

29         public-purpose corporations; authorizing such

30         corporations to issue bonds; creating s.

31         348.9801, F.S.; providing for the "Expressway

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    Florida Senate - 2003                           CS for SB 2580
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 1         Authority Public Private Partnership Agreement

 2         Law"; creating s. 348.9802, F.S.; providing

 3         legislative intent; creating s. 348.9803, F.S.;

 4         authorizing expressway authorities to enter

 5         into public-private partnerships; creating s.

 6         348.9804, F.S.; providing for a proposal

 7         process and notification; creating s. 348.9805,

 8         F.S.; providing facility requirements; creating

 9         s. 348.9806, F.S.; providing expressway

10         authorities' powers; creating s. 348.9807,

11         F.S.; providing that the act is not intended to

12         restrict local entities; creating s. 348.9808,

13         F.S.; providing for the creation of certain

14         tax-exempt public-purpose corporations;

15         authorizing such corporations to issue bonds;

16         providing an effective date.

17  

18  Be It Enacted by the Legislature of the State of Florida:

19  

20         Section 1.  Section 334.30, Florida Statutes, is

21  amended to read:

22         334.30  Private transportation facilities.--The

23  Legislature hereby finds and declares that there is a public

24  need for rapid construction of safe and efficient

25  transportation facilities for the purpose of travel within the

26  state, and that it is in the public's interest to provide for

27  public-private partnership agreements to effectuate the

28  construction of additional safe, convenient, and economical

29  transportation facilities.

30         (1)  The department may receive or solicit proposals

31  and, with legislative approval by a separate bill for each

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    Florida Senate - 2003                           CS for SB 2580
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 1  facility, enter into agreements with private entities, or

 2  consortia thereof, for the building, operation, ownership, or

 3  financing of transportation facilities as provided in

 4  subsection (2). The department may adopt rules to implement

 5  this section and shall by rule establish an application fee

 6  for the submission of proposals under this section.  The fee

 7  must be sufficient to pay the costs of evaluating the

 8  proposals.  The department may engage the services of private

 9  consultants to assist in the evaluation. Before seeking

10  legislative approval, The department must determine that the

11  proposed project:

12         (a)  Is in the public's best interest.;

13         (b)  Complies with the provisions of subsection (2).

14  Would not require state funds to be used unless there is an

15  overriding state interest; and

16         (c)  Would have adequate safeguards in place to ensure

17  that no additional costs or service disruptions would be

18  realized by the traveling public and citizens of the state in

19  the event of default or cancellation of the agreement by the

20  department.

21  

22  The department shall ensure that all reasonable costs to the

23  state related to transportation facilities that are not part

24  of the State Highway System are borne by the public-private

25  entity. The department shall also ensure that all reasonable

26  costs to the state and substantially affected local

27  governments and utilities, related to the private

28  transportation facility, are borne by the public-private

29  private entity for transportation facilities that are owned by

30  private entities.

31  

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 1         (2)(a)  Public-private partnerships or private entities

 2  may advance projects programmed in the first 3 years of the

 3  adopted work program to be reimbursed from department funds

 4  for the project as programmed in the adopted work program.

 5         (b)  Public-private partnerships or private entities

 6  may advance projects programmed in the 4th and 5th years of

 7  the adopted work program to be reimbursed from department

 8  funds for the project as programmed in the adopted work

 9  program. The total capital costs to the department for all

10  projects advanced under this paragraph may not exceed $50

11  million without specific project approval by the Legislature.

12         (c)  Public-private partnerships or private entities

13  may advance projects on the Florida Intrastate Highway System

14  programmed in the adopted 5-year work program to be reimbursed

15  from department funds for the project as programmed in the

16  adopted work program.

17         (d)  Public-private partnerships or private entities

18  may advance projects that are not programmed in the adopted

19  5-year work program but are on the State Highway System and

20  included in the local metropolitan planning organization's or

21  the department's long-range transportation plans, to be

22  reimbursed from department funds beyond the adopted 5-year

23  work program. The total capital costs to the department for

24  all projects advanced under this paragraph may not exceed $50

25  million without specific project approval by the Legislature.

26         (3)  The department may request proposals from

27  public-private transportation projects or, if the department

28  receives an unsolicited proposal, the department shall publish

29  a notice in the Florida Administrative Weekly and a newspaper

30  of general circulation at least once a week for 2 weeks

31  stating that the department has received the proposal and will

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 1  accept, for 60 days after the initial date of publication,

 2  other proposals for the same project purpose. A copy of the

 3  notice must be mailed to each local government in the affected

 4  area. After the public notification period has expired, the

 5  department shall rank the proposals in order of preference. In

 6  ranking the proposals the department may consider the

 7  following factors, including, but not limited to, professional

 8  qualification, general business terms, innovative engineering

 9  or cost-reduction terms, finance plans, and the need for state

10  funds to deliver the proposal. The department shall negotiate

11  with the top-ranked proposer in good faith, and if the

12  department is not satisfied with the results of the

13  negotiations, the department may, at its sole discretion,

14  terminate negotiations with the proposer. If these

15  negotiations are unsuccessful, the department may go to the

16  second and lower-ranked firms, in order, using this same

17  procedure. If only one proposal is received, the department

18  may negotiate in good faith, and, if the department is not

19  satisfied with the results of the negotiations, the department

20  may, at its sole discretion, terminate negotiations with the

21  proposers. Notwithstanding this subsection, the department

22  may, at its discretion, reject all proposals at any point in

23  the process up to completion of a contract with the proposer.

24         (4)(2)  Agreements entered into pursuant to this

25  section may authorize the private entity to impose tolls or

26  fares for the use of the facility.  However, the amount and

27  use of toll or fare revenues may be regulated by the

28  department to avoid unreasonable costs to users of the

29  facility.

30         (5)(3)  Each private transportation facility

31  constructed pursuant to this section shall comply with all

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 1  requirements of federal, state, and local laws; state,

 2  regional, and local comprehensive plans; department rules,

 3  policies, procedures, and standards for transportation

 4  facilities; and any other conditions which the department

 5  determines to be in the public's best interest.

 6         (6)(4)  The department may exercise any power possessed

 7  by it, including eminent domain, with respect to the

 8  development and construction of state transportation projects

 9  to facilitate the development and construction of

10  transportation projects pursuant to this section. The

11  department may provide services to the private entity and.

12  agreements for maintenance, law enforcement, and other

13  services entered into pursuant to this section shall provide

14  for full reimbursement for services rendered.

15         (7)(5)  Except as herein provided, the provisions of

16  this section are not intended to amend existing laws by

17  granting additional powers to, or further restricting, local

18  governmental entities from regulating and entering into

19  cooperative arrangements with the private sector for the

20  planning, construction, and operation of transportation

21  facilities.

22         (8)  The department may create or assist in the

23  creation of tax-exempt public-purpose Internal Revenue Service

24  Ruling 63-20 corporations. Bonds issued by a 63-20 corporation

25  are payable solely from and secured by a lien upon and pledge

26  of the revenues received by the corporation, and do not

27  constitute a general indebtedness of this state, any

28  department or agency thereof, or any political subdivision,

29  within the meaning of any constitutional or statutory

30  provision or limitation. The full faith and credit of this

31  state may not be pledged to the payment of principal or

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    Florida Senate - 2003                           CS for SB 2580
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 1  interest of bonds issued by the 63-20 corporation. A bond

 2  owner may not require or compel the exercise of the taxing

 3  power of the state or any department or agency thereof for

 4  payment, and the bonds are not a lien on any property owned by

 5  the state or any department or state agency. Bonds issued by

 6  the corporation shall be rated investment grade by a

 7  nationally recognized credit rating agency. Any bonds issued

 8  by a 63-20 corporation to finance a project requiring the use

 9  of state money, directly or indirectly, shall be reviewed and

10  approved by the Secretary of Transportation. This subsection

11  does not prohibit credit enhancement of such bonds, whether by

12  private or governmental sources other than sources backed by

13  the taxing power of this state, nor does it prohibit the

14  pledging of additional funds or revenues from private sources

15  to secure such bonds. Internal Revenue Service Ruling 63-20

16  corporations may receive State Transportation Trust Fund

17  grants and loans from the department. The department may enter

18  into public-private partnership agreements with 63-20

19  corporations for projects under this section but may not agree

20  to expend any funds not appropriated for this purpose. Section

21  339.135(6) applies to such agreements.

22         (9)  The department may lend funds from the Toll

23  Facilities Revolving Trust Fund, as outlined in s. 338.251, to

24  63-20 corporations that construct projects containing toll

25  facilities approved under this section. To be eligible, a

26  63-20 corporation must comply with s. 338.251 and must provide

27  an indication from a nationally recognized rating agency that

28  the senior bonds of the corporation will be investment grade

29  or must provide credit support, such as a letter of credit or

30  other means acceptable to the department, to ensure that the

31  loans will be fully repaid. The state's liability for debt of

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 1  a facility is limited to the amount approved for that specific

 2  facility in the department's 5-year work program adopted

 3  pursuant to s. 339.135.

 4         (10)(6)  Notwithstanding s. 341.327, a fixed-guideway

 5  transportation system authorized by the department to be

 6  wholly or partially within the department's right-of-way

 7  pursuant to a lease granted under s. 337.251 may operate at

 8  any safe speed.

 9         Section 2.  Paragraph (m) of subsection (2) of section

10  348.0004, Florida Statutes, is repealed.

11         Section 3.  Subsection (9) is added to section

12  348.0004, Florida Statutes, to read:

13         348.0004  Purposes and powers.--

14         (9)  The Legislature declares that there is a public

15  need for rapid construction of safe and efficient

16  transportation facilities for travel within the state and that

17  it is in the public's interest to provide for public-private

18  partnership agreements to construct additional safe,

19  convenient, and economical transportation facilities.

20         (a)  Any expressway authority as defined in s.

21  125.011(1) may receive or solicit proposals and enter into

22  agreements with private entities, or consortia thereof, for

23  the building, operation, ownership, or financing or extensions

24  or other improvements to existing expressway authority

25  transportation facilities or new transportation facilities

26  that are within the jurisdiction of the expressway authority.

27  An expressway authority may adopt rules to implement this

28  subsection and shall, by rule, establish an application fee

29  for the submission of unsolicited proposals under this

30  subsection. The fee must be sufficient to pay the costs of

31  evaluating the proposals. An expressway authority may engage

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    Florida Senate - 2003                           CS for SB 2580
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 1  private consultants to assist in the evaluation. Before

 2  approval, an expressway authority must determine that a

 3  proposed project:

 4         1.  Is in the public's best interest.

 5         2.  Has adequate safeguards to ensure that additional

 6  costs or service disruptions will not be realized by the

 7  public if the private entity or consortium defaults or the

 8  expressway authority cancels the agreement.

 9         (b)  The expressway authority may request proposals for

10  public-private transportation projects or, if it receives an

11  unsolicited proposal that it wants to evaluate, it shall

12  publish a notice in the Florida Administrative Weekly and a

13  newspaper of general circulation in the county in which it is

14  located at least once a week for 2 weeks, stating that it has

15  received the proposal and will accept, for 60 days after the

16  initial date of publication, other proposals for the same

17  project purpose. A copy of the notice must be mailed to each

18  local government in the affected areas. After the public

19  notification period has expired, the expressway authority

20  shall rank the proposals in order of preference. In ranking

21  the proposals, the expressway authority may consider

22  professional qualifications, general business terms,

23  innovative engineering or cost-reduction terms, finance plans,

24  and the need for state funds to deliver the proposal. The

25  expressway authority shall negotiate with the top-ranked

26  proposer in good faith, and if the expressway authority is not

27  satisfied with the results of the negotiations, it may

28  terminate negotiations with the proposer and negotiate with

29  the second and lower-ranked firms, in order, using the same

30  procedure. If only one proposal is received, the expressway

31  authority may negotiate in good faith, and if it is not

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    Florida Senate - 2003                           CS for SB 2580
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 1  satisfied with the results, it may terminate negotiations with

 2  the proposer. Notwithstanding any other provision of this

 3  paragraph, the expressway authority may reject all proposals

 4  at any point prior to completion of a contract.

 5         (c)  Agreements entered into pursuant to this

 6  subsection may authorize the private entity to impose tolls or

 7  fares for the use of the facility. However, the amount and use

 8  of toll or fare revenues may be regulated by the expressway

 9  authority to avoid unreasonable costs to users of the

10  facility.

11         (d)  Each transportation facility constructed pursuant

12  to this subsection shall comply with all requirements of

13  federal, state, and local laws; state, regional, and local

14  comprehensive plans; the expressway authority's rules,

15  policies, procedures, and standards for transportation

16  facilities; and any other conditions that the expressway

17  authority determines to be in the public's best interest.

18         (e)  An expressway authority may exercise any power

19  possessed by it, including eminent domain, to facilitate the

20  development and construction of transportation projects

21  pursuant to this subsection. An expressway authority may pay

22  all or part of the cost of operating and maintaining the

23  facility or may provide services to the private entity for

24  which it receives full or partial reimbursement for services

25  rendered.

26         (f)  Except as herein provided, this subsection does

27  not amend existing laws by expanding or restricting the

28  authority of local governmental entities to regulate and enter

29  into cooperative arrangements with private entities for the

30  planning, construction, and operation of transportation

31  facilities.

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 1         (g)  An expressway authority may create or assist in

 2  the creation of tax-exempt, public-purpose Internal Revenue

 3  Service Ruling 63-20 corporations. Bonds issued by 63-20

 4  corporations are payable solely from and secured by liens upon

 5  and pledge of the revenues received by the 63-20 corporations

 6  and are not a general indebtedness of this state, any

 7  department or agency thereof, or any political subdivision

 8  thereof within the meaning of any constitutional or statutory

 9  provision or limitation. The full faith and credit of the

10  state may not be pledged to the payment of principal or

11  interest on the bonds issued by the 63-20 corporation. A bond

12  owner may not require or compel the exercise of the taxing

13  power of the state or any department or agency of the state

14  for payment thereof, and the bonds are not a lien upon any

15  property owned by the state or any department or state agency.

16  Bonds issued by 63-20 corporations shall be rated investment

17  grade by a nationally recognized credit rating agency. This

18  paragraph does not prohibit credit enhancement of such bonds

19  by private or governmental sources other than sources backed

20  by the taxing power of the state, nor does it prohibit the

21  pledging of additional funds or revenues from private sources

22  to secure such bonds. An expressway authority may enter into

23  public-private partnership agreements with 63-20 corporations

24  for projects under this subsection.

25         (h)  An expressway authority or 63-20 corporation

26  created under this subsection may apply for grants and loans

27  from the department for projects under this subsection,

28  subject to the eligibility criteria and terms and conditions

29  that would apply to projects of an expressway authority

30  undertaken without private participation.

31  

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 1         Section 4.  Section 348.9801, Florida Statutes, is

 2  created to read:

 3         348.9801  Short title.--Sections 348.9801-348.9808 may

 4  be cited as the "Expressway Authority Public-Private

 5  Partnership Agreement Law."

 6         Section 5.  Section 348.9802, Florida Statutes, is

 7  created to read:

 8         348.9802  Legislative findings.--The Legislature finds

 9  and declares that there is a public need for rapid

10  construction of safe and efficient transportation facilities

11  for the purpose of travel within the state and that it is in

12  the public's best interest to provide for public-private

13  partnership agreements to effectuate the construction of

14  additional safe, convenient, and economical transportation

15  facilities.

16         Section 6.  Section 348.9803, Florida Statutes, is

17  created to read:

18         348.9803  Public-private partnerships.--Any expressway

19  authority created by chapter 348 or chapter 349 may receive or

20  solicit proposals and enter into agreements with private

21  entities, or consortia thereof, for the building, operation,

22  ownership, or financing of extensions or other improvements to

23  existing expressway authority transportation facilities or new

24  transportation facilities that are within the jurisdiction of

25  the expressway authority. The expressway authority is

26  authorized to adopt rules to implement this section and shall

27  by rule establish an application fee for the submission of

28  unsolicited proposals under this section. The fee must be

29  sufficient to pay the costs of evaluating the proposals. The

30  expressway authority may engage the services of private

31  

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 1  consultants to assist in the evaluation. Before approval, the

 2  expressway authority must determine that the proposed project:

 3         (1)  Is in the public's best interest.

 4         (2)  Would have adequate safeguards in place to ensure

 5  that no additional costs or service disruptions would be

 6  realized by the traveling public and citizens of the state in

 7  the event of default by the private entity or consortium or

 8  cancellation of the agreement by the expressway authority.

 9         Section 7.  Section 348.9804, Florida Statutes, is

10  created to read:

11         348.9804  Proposal process; notification.--

12         (1)  The expressway authority may request proposals for

13  public-private transportation projects or, if the expressway

14  authority receives an unsolicited proposal that it has an

15  interest in evaluating, it shall publish a notice in the

16  Florida Administrative Weekly and a newspaper of general

17  circulation in the county in which the expressway authority is

18  located at least once a week for 2 weeks stating that the

19  expressway authority has received the proposal and will

20  accept, for 60 days after the initial date of publication,

21  other proposals for the same project purpose. A copy of the

22  notice must be mailed to each local government in the affected

23  areas. After the public notification period has expired, the

24  expressway authority shall rank the proposals in order of

25  preference. In ranking the proposals, the expressway authority

26  may consider, but is not limited to considering, professional

27  qualifications, general business terms, innovative engineering

28  or cost-reduction terms, finance plans, and the need for state

29  funds to deliver the proposal. The expressway authority shall

30  negotiate with the top-ranked proposer in good faith and, if

31  the expressway authority is not satisfied with the results of

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 1  the negotiations, the expressway authority may, at its sole

 2  discretion, terminate negotiations with the proposer. If these

 3  negotiations are unsuccessful, the expressway authority may go

 4  to the second and lower-ranked firms in order using this same

 5  procedure. If only one proposal is received, the expressway

 6  authority may negotiate in good faith and, if the expressway

 7  authority is not satisfied with the results of the

 8  negotiations, the expressway authority may, at its sole

 9  discretion, terminate negotiations with the proposer.

10  Notwithstanding any other provision of this subsection, the

11  expressway authority may, at its sole discretion, reject all

12  proposals at any point in the process prior to execution of a

13  contract with the proposer.

14         (2)  Agreements entered into under this act may

15  authorize the private entity to impose tolls or fares for the

16  use of the facility. However, the amount and use of toll or

17  fare revenues may be regulated by the expressway authority to

18  avoid unreasonable costs to users of the facility.

19         Section 8.  Section 348.9805, Florida Statutes, is

20  created to read:

21         348.9805  Facility requirements.--Each transportation

22  facility constructed  under this act shall comply with all

23  requirements of state, and local laws; state, regional, and

24  local comprehensive plans; the expressway authority's rules,

25  policies, procedures, and standards for transportation

26  facilities; and any other conditions that the expressway

27  authority determines to be in the public's best interest.

28         Section 9.  Section 348.9806, Florida Statutes, is

29  created to read:

30         348.9806  Exercise of powers.--The expressway authority

31  may exercise any power possessed by it, including eminent

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 1  domain, with respect to the development and construction of

 2  transportation projects to facilitate the development and

 3  construction of transportation projects under this act. The

 4  expressway authority may pay all or part of the cost of

 5  operating and maintaining the facility or may provide services

 6  to the private entity for which it shall be entitled to

 7  receive full or partial reimbursement for services rendered.

 8         Section 10.  Section 348.9807, Florida Statutes, is

 9  created to read:

10         348.9807  Intent concerning local governments.--Except

11  as provided in this act, the provisions of this act are not

12  intended to amend existing laws by further expanding or

13  further restricting the authority of local governmental

14  entities to regulate and enter into cooperative arrangements

15  with the private sector for the planning, construction, and

16  operation of transportation facilities.

17         Section 11.  Section 348.9808, Florida Statutes, is

18  created to read:

19         348.9808  Establishment of 63-20 corporations.--

20         (1)  The expressway shall have the authority to create

21  or assist in the creation of tax-exempt, public-purpose

22  Internal Revenue Service Ruling 63-20 corporations as provided

23  for under the Internal Revenue Code. Any bonds issued by the

24  Internal Revenue Service Ruling 63-20 corporation shall be

25  payable solely from and secured by a lien upon and pledge of

26  the revenues received by the Internal Revenue Service Ruling

27  63-20 corporation. Any bonds issued by the Internal Revenue

28  Service Ruling 63-20 corporation shall not be or constitute a

29  general indebtedness of the state, any department or agency

30  thereof, or any political subdivision thereof within the

31  meaning of any constitutional or statutory provision or

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 1  limitation. The full faith and credit of the state shall not

 2  be pledged to the payment of the principal of or interest on

 3  the bonds issued by the Internal Revenue Service Ruling 63-20

 4  corporation. No owner of any of the bonds shall have the right

 5  to require or compel the exercise of the taxing power of the

 6  state or any department or agency of the state for payment

 7  thereof, and the bonds shall not constitute a lien upon any

 8  property owned by the state or any department or agency of the

 9  state. Bonds issued by the Internal Revenue Service Ruling

10  63-20 corporation shall be rated investment grade by a

11  nationally recognized credit rating agency. Nothing in this

12  section is intended to prohibit credit enhancement of such

13  bonds, whether provided by private or governmental sources

14  other than sources backed by the taxing power of the state.

15  Nothing in this section is intended to prohibit the pledging

16  of additional funds or revenues from private sources to secure

17  such bonds. The expressway authority shall be empowered to

18  enter into public-private partnership agreements with Internal

19  Revenue Service Ruling 63-20 corporations for projects under

20  this section.

21         (2)  The expressway authority or Internal Revenue

22  Service Ruling 63-20 corporation created under this act shall

23  be entitled to apply for grants and loans from the expressway

24  authorities for projects under this act, subject to the same

25  eligibility criteria and other terms and conditions as would

26  apply to projects of the expressway authority undertaken

27  without private participation.

28         Section 12.  This act shall take effect upon becoming a

29  law.

30  

31  

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 1          STATEMENT OF SUBSTANTIAL CHANGES CONTAINED IN
                       COMMITTEE SUBSTITUTE FOR
 2                         Senate Bill 2580

 3                                 

 4  This CS authorizes FDOT to use state resources and to enter
    into public-private partnership agreements for a
 5  transportation facility project that is either in the FDOT
    adopted work program or a metropolitan planning organizations
 6  long-range plan. The section requires FDOT to ensure all
    reasonable costs to the state related to transportation
 7  facilities are not part of the State Highway System be borne
    by the public-private entity and all reasonable costs to the
 8  state, local governments, and utilities be borne by the
    public-private entity for transportation facilities that are
 9  owned by private entities.

10  The scope of the CS also extends to all expressway authorities
    the ability to enter into similar agreements with 63-20
11  corporations to share in the development of public-private
    transportation facilities. The CS authorizes 63-20
12  corporations to issue bonds. Unlike the FDOT, the expressway
    authorities have no statutory dollar limit for investments in
13  a 63-20 corporation project, and legislative approval is not
    required.
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CODING: Words stricken are deletions; words underlined are additions.