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Record of Proceedings

Jacksonville City Council Special Committee on Drowning Prevention Meeting - September 23, 2026

City Council — Wednesday, September 23, 2026
BodyJacksonville, Florida
SessionCity Council
DateWednesday, September 23, 2026
StatusFILED
Video Record
0:00 / 1:06:06

Original source
Transcript — VerbatimClick a timed line to jump · ⧉ to share it
0:00

All right, it's 3 30.

0:00

We are going ahead and get started.

0:02

I want to welcome everyone to the special committee on the drawing of prevention.

0:05

We'll get started with introductions from my left to our right.

0:18

Joander Heese administration.

0:20

Stephen Libby, Council Research.

0:22

Shannon Matt Gillis, Office of General Counsel.

0:25

Heather Reber, Council Auditor's Office.

0:27

Good afternoon, Tyrona Clock Murray, District 9.

0:30

Good afternoon, Reginald Gaffney Jr., District 8.

0:34

District 2.

0:35

Awesome, awesome.

0:38

I want to thank everyone for in the crowd for coming out on this gloomy wet day.

0:41

I was kind of worried about the attendance.

0:43

I know when I drove over here, it was it was pouring down raining.

0:46

So but appreciate you guys for coming out.

0:48

We have a light agenda.

0:50

So I don't think we'll be here too long.

0:52

But before we get started, I want to make a motion to move our September 9th committee meetings.

0:58

Thank you guys for that.

0:59

So speaking of the agenda, before we we uh talk about the agenda, I do want to highlight a few things for those who missed the September 9th meeting.

1:07

Um we'll discuss a few things and then we'll go forward.

1:11

Um so we we met September 9th, we met an hour and 15 minutes actually, and some of the highlights that we discussed um in the special retention meeting was doing a pond inventory.

1:22

You know, obviously what we we heard was the city have anywhere from a thousand to 1,500 ponds in the city, whether that's private or whether that's public.

1:32

You know, so um I know one of them, if not myself and one of my colleagues we brought, we we need to do a pawn inventory.

1:39

So we'll be kind of discussing that, whether these pawns are city related or whether they're private.

1:44

Mr.

1:44

Endy's also brought up, he brought up whether some what we go do with pawns, current existing pawns or future ponds too.

1:51

That also come up.

1:52

So I would like to discuss that as well.

1:55

Um we also discussed last meeting what our other cities doing in regards to this issue.

2:00

So we'll also hear about that today.

2:02

We also discuss what can we do now.

2:05

You know, um we we discuss every day, council is approving legislation that require new communities to inquire install ponds.

2:16

So what can we do now?

2:18

Um we also discussed H bill 180.

2:21

You know, obviously, we don't want to do this work in vain.

2:24

So, you know, I think that's important because we need to figure out in terms of the parameters and guidelines, what can we do with a state bill that's in uh in effect?

2:35

So we got those questions.

2:39

Um, and I know Mr.

2:41

We'll have a presentation from Andre Agu at Ayu.

2:44

He'll come up.

2:45

He um was nice enough, kind enough to volunteer and get a task force um like 15 different agencies, and he'll speak about that as well.

2:55

So um before I bring Mr.

2:57

Andrew Andre up, uh my colleagues, do y'all have anything y'all want to mention before we get this um special presentation?

3:03

Go on.

3:03

Yes, thank you, Chair.

3:05

I just want to also mention you talked about HB 180 or SB 180.

3:09

And so our general counselor, counselor, um, Mr.

3:13

Fike Facler is here, so he can speak to those things.

3:16

He and I have um talks briefly about those uh the impact that it may have on this particular uh the work that we're trying to do here today.

3:23

Thank you.

3:23

Awesome.

3:24

And thank you, Mr.

3:24

Fackland for joining us.

3:26

And before I even go further, um I do see um uh our senator was former state senator Tony Hill is here, and um current state elect Miss Audra Gibson.

3:39

Um she's out in the crowd as well.

3:40

So thank you guys for both for the attending.

3:42

I mean, this important issue.

3:43

So I appreciate that.

Discussion Breakdown — Share of Meeting
Emergency Preparedness███████████████████████████████████35%
Public Safety██████████████████████████████████34%
Public Engagement█████████9%
Water Safety█████████9%
Pending Litigation█████5%
Procedural███3%
Pond Management███3%
Technology and Innovation██2%
Summary of Proceedings

Jacksonville City Council Special Committee on Drowning Prevention Meeting - September 23, 2026

The Special Committee on Drowning Prevention, chaired by Council Member Reggie Gaffney Jr., met on September 23, 2026, at 3:30 PM in Council Chambers. The committee received a data presentation from the working group, discussed legislative constraints, heard public comments, and outlined next steps for Phase II of the initiative. The meeting lasted approximately one hour and focused on understanding the drowning problem in Duval County and identifying gaps for prevention.

Consent Calendar

  • Approval of September 9th Minutes: The committee unanimously approved the minutes from the September 9, 2026 meeting. The motion was made by Chair Gaffney and seconded, with all members voting in favor.

Working Group Data & Research Presentation

  • Working Group Formation: Andre Ayoub, Chief of Duval County Emergency Preparedness Division, and Tyler Nolan of the Northeast Florida Regional Council co-chair the working group. Over 20 community organizations have volunteered, and the group has already met, exceeding the scheduled time due to high engagement.
  • Proposed Work Plan: The working group presented a timeline for 2026: data gathering through September 23, identifying gaps by October 7, building solutions by November 2, and delivering a final report with recommendations and proposed legislation by late November/early December.
  • Data on Drowning Incidents: Tyler Nolan presented two years of JFRD data (ongoing analysis for a five-year period). Key findings:
    • Children under 10 accounted for 43% of drowning deaths; ages 0-4 represented 31% of incidents.
    • Males comprised 73% of drowning incidents.
    • Private residential pools were the highest call source; beaches had high risk due to rip currents.
    • Retention pond deaths were concentrated in zip codes 32218 and 32256 (32226 also mentioned).
    • Seasonal peaks align with warmer months; drowning-related cardiac arrests are linked to hypoxia.
  • Existing Programs: The city has programs like free swim lessons (Jax Parks, Swim Safari, Hope Float Foundation, YMCA), REVAMP (a voluntary registry for vulnerable individuals), JSO Care Track (GPS tracking), and the First Responder Awareness Sticker Program. REVAMP currently has 622 families enrolled, but the universe of need is larger.

Committee Discussion and Questions

  • Zip Code Concerns: Council members questioned why drownings cluster in specific zip codes, and the working group confirmed they are examining trends and pond characteristics (slopes, signage, lighting) in those areas.
  • Door Alarms and Fencing: Councilman Gay requested information on requirements for door alarms and fencing around pools and ponds. The working group committed to providing rules and regulations by the next meeting.
  • Legislative Potential: Councilman Gaffney floated the idea of mandating locks or alarms for at-risk children; OGC flagged legal concerns but agreed to research.
  • SB 180 Constraints: Michael Fackler, Office of General Counsel, explained that SB 180 restricts new government-imposed development restrictions, regardless of purpose. Voluntary actions (like REVAMP sign-ups or voluntary alarm installations) are not impacted, but mandates could violate the statute. Councilman Gaffney proposed a petition-based approach; OGC noted it might still be seen as a restriction but agreed to analyze.
  • Liability and Maintenance: Councilwoman Clark-Murry raised concerns about accountability for private pond owners (apartment complexes, HOAs) and public housing maintenance. OGC stated they are not aware of city liability suits but will research. Councilwoman Clark-Murry highlighted cases where toddlers drowned due to faulty latches and pond proximity.
  • REVAMP Program Details: Detective Janetta Buxton and Captain Ricky Grace explained REVAMP's benefits: it stores critical information (triggers, favorite places, medical info) under HIPAA, includes canine scent kits and trackers, and can reduce search time by 2-3 hours.

Public Comments & Testimony

  • Dr. Miriam Lynch (Diversity in Aquatics): Expressed support for the city's all-in approach and emphasized the need to move beyond individual responsibility to community-wide strategies. Noted that Florida leads the nation in drownings and that Jacksonville has the resources to become a model. She traveled from Virginia to show support.
  • Audrey Gibson (Former State Senator, candidate): Raised questions about regulations distinguishing retention ponds (always wet) from detention ponds (dry at times), asked about pump systems to reduce standing water, and expressed intent to work with the Duval delegation to amend SB 180 if elected. She urged the committee to consider life safety over property rights.

Key Outcomes

  • Approved the September 9, 2026 minutes unanimously.
  • Working group to complete five-year data analysis and present it at the next meeting on October 7, 2026, at 3:30 PM.
  • Committee directed working group to focus on identifying specific pond locations in high-risk zip codes and gathering data on public vs. private pond ownership.
  • OGC to research the legality of petition-based fencing requirements and other legislative approaches, with a response expected by the next meeting.
  • The working group will continue outreach to other cities (Orlando, Miami, Tampa) for best practices and will expand partnerships.
  • The committee will discuss retention vs. detention pond regulations and maintenance responsibilities in the next meeting.

Meeting Transcript

All right, it's 3 30. We are going ahead and get started. I want to welcome everyone to the special committee on the drawing of prevention. We'll get started with introductions from my left to our right. Joander Heese administration. Stephen Libby, Council Research. Shannon Matt Gillis, Office of General Counsel. Heather Reber, Council Auditor's Office. Good afternoon, Tyrona Clock Murray, District 9. Good afternoon, Reginald Gaffney Jr., District 8. District 2. Awesome, awesome. I want to thank everyone for in the crowd for coming out on this gloomy wet day. I was kind of worried about the attendance. I know when I drove over here, it was it was pouring down raining. So but appreciate you guys for coming out. We have a light agenda. So I don't think we'll be here too long. But before we get started, I want to make a motion to move our September 9th committee meetings. Thank you guys for that. So speaking of the agenda, before we we uh talk about the agenda, I do want to highlight a few things for those who missed the September 9th meeting. Um we'll discuss a few things and then we'll go forward. Um so we we met September 9th, we met an hour and 15 minutes actually, and some of the highlights that we discussed um in the special retention meeting was doing a pond inventory. You know, obviously what we we heard was the city have anywhere from a thousand to 1,500 ponds in the city, whether that's private or whether that's public. You know, so um I know one of them, if not myself and one of my colleagues we brought, we we need to do a pawn inventory. So we'll be kind of discussing that, whether these pawns are city related or whether they're private. Mr. Endy's also brought up, he brought up whether some what we go do with pawns, current existing pawns or future ponds too. That also come up. So I would like to discuss that as well. Um we also discussed last meeting what our other cities doing in regards to this issue. So we'll also hear about that today. We also discuss what can we do now. You know, um we we discuss every day, council is approving legislation that require new communities to inquire install ponds. So what can we do now? Um we also discussed H bill 180. You know, obviously, we don't want to do this work in vain. So, you know, I think that's important because we need to figure out in terms of the parameters and guidelines, what can we do with a state bill that's in uh in effect? So we got those questions. Um, and I know Mr. We'll have a presentation from Andre Agu at Ayu. He'll come up. He um was nice enough, kind enough to volunteer and get a task force um like 15 different agencies, and he'll speak about that as well. So um before I bring Mr. Andrew Andre up, uh my colleagues, do y'all have anything y'all want to mention before we get this um special presentation? Go on. Yes, thank you, Chair. I just want to also mention you talked about HB 180 or SB 180. And so our general counselor, counselor, um, Mr. Fike Facler is here, so he can speak to those things.

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