Judges: Jim Smith, Attorney General Prepared by: Joslyn Wilson, Assistant Attorney General
Filed Date: 2/18/1980
Status: Precedential
Modified Date: 7/5/2016
Ellen Mills Gibbs Attorney for North Broward Hospital District Fort Lauderdale
Question:
May the malpractice self-insurance trust funds of the North Broward Hospital District, a special tax district created by special law, be invested by the trustee, a national banking organization, directly into United States Treasury bills, bonds, and notes?
SUMMARY:
Although under the provisions of s. 218.345(1)(b), F. S., the board of commissioners as the governing body of the hospital district has the authority to invest district `surplus funds' as defined in s. 218.345(4) in negotiable direct obligations of the United States Government, in the absence of any provision in the district's enabling legislation, as amended, or in general law authorizing the district's governing board to delegate its investment authority and until judicially or legislatively determined to the contrary, the governing board of the hospital district may not delegate its authority to invest district funds to the trustee of a self-insurance trust fund established by the district.
The North Broward Hospital District was created in 1951 by special law as a special tax district to establish, and maintain hospitals `for the preservation of the public health and for the public good and for use of the public of said District.' See ch. 27438, 1951, Laws of Florida, as amended by chs. 61-1931, 61-1937, 63-1192, 65-1316, 65-1319, 67-1170, 67-1171, 69-895, 69-898, 69-914, 71-578, 73-411, 73-412, 73-413, 74-449, 75-347, 75-348, 76-338, 77-508, and 78-481, Laws of Florida. You state in the memorandum attached to your letter of inquiry that the district has established a self-insurance trust fund in order to provide an economical form of malpractice and comprehensive patient liability insurance. To set up this self-insurance trust fund, the district has transferred funds to a trustee, a national banking organization doing business in Broward County. At present the fund's investments are limited to savings accounts and certificates of deposit which are insured by the government or protected by an appropriate pledge of United States Treasury issues or first mortgages. See ss. 659.24 and 665.321, F. S., and AGO 077-80 in which this office stated that the North Broward Hospital District falls within the purview of ss. 665.231 and 665.321, F. S., and, pursuant to the authorization contained therein, may invest district funds in certificates of deposit of state and federal savings and loan associations without limitation as to the amount thereof and without conditions thereon so long as such associations deposit and pledge sufficient securities with the Department of Banking and Finance to secure and safeguard such investments of the district in the same manner as is required with respect to the deposit of such funds in banks.
You indicate that the hospital district is interested in broadening its investments to include the purchase of United States Treasury bills, bonds, and notes, and you question whether district funds may be invested in this manner. This opinion is thus expressly limited to a consideration of the hospital district's authority to invest its funds directly in negotiable direct obligations of, or obligations guaranteed by, the United States Government. No opinion is expressed herein concerning the validity of the established self-insurance trust fund or of the bank as trustee thereof. You have not advised this office as to whether the hospital district established the trust fund under the provisions of ss. 768.54 and
Under the provisions of a special act establishing the hospital district, the board of commissioners, as the governing body of the district, is vested with all the powers of a body corporate. The district's enabling legislation, however, is silent as to the investment of district funds, neither expressly authorizing nor prohibiting the type of investments contemplated in your letter of inquiry. It is well settled within this state that special districts possess only such powers as are expressly or by necessary implication authorized or granted by statute. Seegenerally White v. Crandon,
Section 218.345(1)(b), F. S., provides limited statutory authority for a special district to invest its surplus funds in negotiable obligations of the United States Government by stating in pertinent part that the governing body of each special district `shall, by resolution . . . invest and reinvest any surplus funds in its control or possession in . . . [n]egotiable directobligations of, or obligations the principal and interest of which are unconditionally guaranteed by, the United States Government at the then prevailing market price for such securities . . . .' (Emphasis supplied.) `Surplus funds' are defined for the purposes of this section as `funds in any general or special account or fund of the district held or controlled by the governing body of the district, which funds in reasonable contemplation will not be needed for the purposes intended within a reasonable time from the date of such investment.' See s. 218.345(4).
The hospital district clearly falls within the definition of `special district' contained in s.
Moreover, while s. 218.345, F. S., authorizes the board of commissioners as the governing body of the district to make such investments of `surplus funds' as defined therein, the statute does not authorize or empower the board of commissioners to delegate its investment authority. The authorization for such a delegation, if any, must be found elsewhere in other laws. Cf. AGO 079-9; see also part IV of ch. 218, F. S., the Investment of Local Government Surplus Funds Act, which authorizes, inter alia, special districts by their governing bodies to deposit surplus funds (defined in s.
Prepared by: Joslyn Wilson, Assistant Attorney General