Indian River County

Administration Complex

1801 27th Street

Indian River County, Florida

Vero Beach, Florida 32960

indianriver.gov

Meeting Minutes - Final

Board of County Commissioners

Joseph Flescher, District 2, Chairman

Deryl Loar, District 4, Vice Chairman

Susan Adams, District 1

Joseph H. Earman, District 3

Laura Moss, District 5

John A. Titkanich, Jr., County Administrator

Jennifer W. Shuler, County Attorney

Ryan L. Butler, Clerk of the Circuit Court and Comptroller

Monday, August 11, 2025

1:00 PM

Commission Chambers

Budget Workshop re: Indian River County Sheriff's Office FY2025/2026

1. CALL TO ORDER

5 -

Present:

Chairman Joseph Flescher

Vice Chairman Deryl Loar

Commissioner Susan Adams

Commissioner Joe Earman

Commissioner Laura Moss

2.A. A MOMENT OF SILENT REFLECTION FOR FIRST RESPONDERS AND MEMBERS OF

THE ARMED FORCES

2.B. INVOCATION

Rev. Dale Glading, Risk Takers for Christ

3. PLEDGE OF ALLEGIANCE

Commissioner Susan Adams

4. CONTINUATION OF BUDGET WORKSHOP - SHERIFF'S OFFICE BUDGET

Chairman Flescher opened the continuation of the Budget Workshop for the Sheriff's

Office budget. He noted the unprecedented nature of holding a second workshop and

could not recall a similar event in recent history. While the County maintained good

financial standing, Chairman Flescher expressed concerns about uncertain economic

challenges in the upcoming fiscal year and urged a cautious approach. He addressed

the Budget Workshop meeting that took place on July 9, 2025. During the discussion,

he recognized the Deputies who shared personal accounts of their financial challenges,

including their experiences with government food assistance and taking home leftover

school lunches to support their families. Chairman Flescher expressed concerns

regarding the validity of these claims. He maintained that while law enforcement

officers deserved fair compensation, budget limitations had to be considered.

Chairman Flescher stated that it was implied that the County Commissioners were

unsympathetic to law enforcement. The Chairman noted his colleagues' backgrounds

in Law Enforcement and Fire Services, asserting that everyone on the Board valued

and supported law enforcement. He rejected the notion that the Commissioners did

not favor law enforcement. He emphasized the need to balance obligations to

taxpayers and the larger community of over 170,000 citizens who faced financial

hardships.

A letter received from Sheriff Flowers before the start of the meeting was read into

the record by Chairman Flescher. He acknowledged the Sheriff's absence from the

workshop but conveyed his respect for the Sheriff’s prior commitments.

[Clerk's note: the letter from Sheriff Flowers is on file in the Clerk to the Board

office.]

County Administrator John Titkanich summarized the Budget Workshop with a

PowerPoint presentation. The proposed budget for the Sheriff's Office totaled

$83,646,672, reflecting a $4,734,717 or 6% increase from the previous year. He

emphasized that the discussion today was focused on managing the proposed increase

rather than reducing the Sheriff's budget. During the July 9, 2025, meeting, the Board

directed the Administrator to identify additional funding for the Sheriff's Office without

raising the millage rate. The Sheriff's Office had initially requested a $14.6 million

increase, which would have resulted in a total budget of $93.5 million.

Administrator Titkanich reported on ongoing efforts to address budgetary constraints.

In a recent meeting, the Sheriff and Administrator discussed a revised budget increase

of approximately $6 million, compared to the earlier proposal of $4.7 million. On July

23, 2025, the Sheriff submitted a $91.1 million budget, representing a $12.2 million or

15.5% increase.

Administrator Titkanich identified sources of additional funding through proposed

reductions, including eliminating a full-time Parks Department position, reducing

Conservation Lands staff, and converting a Guest Services Attendant position to

part-time. The Facilities Master Plan would be managed internally by the Facilities

Manager and two directors. Funding for the Humane Society would also be reduced,

as the County anticipated that the animal sheltering contract might not require payment

for the entire year in full.

Administrator Titkanich reported that funds were allocated to entities such as the

Courts and Mental Health Services to support individuals with mental health needs,

including those requiring hospitalization under the Baker Act. The Court

Administration requested nearly $151,994 in revised budget funding. The Hospital

District was still preparing to vote on its budget for Mental Health Services related to

the Mental Health Court. He noted that the Sheriff's Department accounted for

52.3% of the budget. His presentation compared budget requests over the past four

years, with $21.8 million in approved funding. He cited previous years with limited

budgets, such as 2022, when $2.9 million was allocated, and an additional $7.3

million was provided, including funds from the Emergency Relief Package. He stated

that the Board consistently prioritized public safety, particularly support for the

Sheriff's office. He also provided an overview of salary increases for Civilian Staff and

Law Enforcement Officers over the past three years.

Vice Chairman Loar requested clarification regarding the potential outcomes if the

Sheriff did not receive the requested funding, highlighting uncertainty in the

decision-making process. Administrator Titkanich agreed to draft a formal letter but

stated that providing specific information was premature because the Board had not

yet approved of the budget. The review of the proposed budget and millage rate was

scheduled for September 10, 2025, with final approval planned for September 17,

2025. Following approval, a letter would be prepared based on the finalized funding

details for the Sheriff’s office, which currently did not meet the requirements specified

by Florida Statute 30.49, Chapter 4.

Chairman Flescher and Administrator Titkanich discussed proposed salary increases

for the Sheriff's department staff, with estimates of $9,000 for deputies and $3,500

for civilian employees. The discussion addressed concerns regarding potential deputy

departures, although the Sheriff had asserted that the department maintained adequate

staffing levels. Chairman Flescher supported implementing gradual salary increases to

promote safety and minimize taxpayer burden. In contrast, reports indicated that the

Sheriff opposed a phased approach. This exchange highlighted uncertainties regarding

the financial implications of increased personnel costs for taxpayers.

Vice Chairman Loar emphasized that it was misleading to assert that the Board was

cutting the Sheriff’s budget. He explained that although the Board was reducing the

Sheriff’s initial request, the overall budget was increasing by more than 6%. To clarify,

the Board was not cutting the Sheriff’s budget; it was merely adjusting his request.He

pointed out that the Board was making a significant increase from last year’s budget.

Chairman Flescher stressed the need to meet ad valorem tax revenue targets to

ensure adequate funding for services. He noted that the Sheriff’s request of over $12

million would significantly impact the overall budget. He also underscored the

responsibility to serve more than 170,000 residents and support over 1,000 County

employees. He requested that the Administrator clarify the budget figures for the

upcoming year in comparison to last year.

Administrator Titkanich cautioned that fully funding the Sheriff’s budget request could

reduce support for other essential services, including Natural Resources, Public

Works, Parks and Recreation, Community Services, and Libraries. With a $3.6

million shortfall, these areas faced potential layoffs and service reductions. The

discussion also addressed the 2030 mandate to transition from septic to sewer

systems, which was expected to cost the County approximately $500 million in public

infrastructure. About 70% of the General Fund was already committed to mandatory

expenses for Constitutional Offices and State Agencies, underscoring the need for

careful financial planning.

Commissioner Earman commended the County Administrator and Budget Director

for their management of the Sheriff’s office and Emergency Services during periods of

financial constraint. He criticized the Sheriff for presenting budget reductions in a

misleading manner, clarifying that the actual budget was $78 million. Commissioner

Earman questioned the necessity of zero-based budgeting to ensure adequate funding

for essential services while also noting his preference for incremental budgeting based

on historical financial data. Administrator Titkanich indicated that zero-based

budgeting would be implemented selectively in response to current economic

challenges. Commissioner Earman raised concerns regarding the proposed $12

million budget increase by the Sheriff, characterizing it as excessive in the absence of

prior consultation. He recommended a budget increase of $6 to $7 million and

emphasized the need for transparent communication to prevent the spread of

misinformation. Although he supported salary increases for Deputies, he advocated

for a phased implementation. Commissioner Earman further stated that if the Sheriff

persisted with the higher budget proposal, the issue would require escalation to State

Authorities in Tallahassee.

Chairman Flescher stated he had not had a private meeting with the Sheriff about his

budget, which was unusual. He addressed concerns about misinformation, saying

many comments at the Budget Workshop meeting were not true. He commented that

there were no Deputies at the UP Center and no significant movement of officers to

other jurisdictions, contrary to reports. Regarding the claim that school lunches were

being taken for families, it was not happening. He added that while this might have

sounded good for media stories, it did not reflect the actual situation.

Commissioner Adams stated that the additional funding proposed by Administrator

Titkanich for the Sheriff’s budget would enable a targeted focus on payroll increases.

This allocation constituted a significant increase compared to the current budget and

was expected to facilitate the Sheriff’s ability to address primary operational priorities.

The increased resources would provide the Sheriff with flexibility to allocate funds

toward employee salaries, technology upgrades, or other essential departmental

needs.

Commissioner Moss emphasized that the Sheriff's request aimed to serve the

community. She advocated on behalf of the deputies. Although a 6% budget increase

was proposed, this amount would not meet the Sheriff’s original request. She stressed

the foundational role of law and order in supporting governmental operations and

cultural institutions. Commissioner Moss indicated a willingness to consider additional

budget reductions to achieve a 6.852% increase.

Chairman Flescher and Administrator Titkanich discussed budget cuts affecting

various services, especially funding for the Mental Health Court and Animal Services.

They raised concerns that reduced staffing and resources could harm community

services, including Animal Control and Road Maintenance. Administrator Titkanich

noted the lack of a Master Plan for County facilities but said specific responsibilities

would be managed in-house to reduce costs. Administrator Titkanich also warned

that delaying road resurfacing could result in significantly higher repair costs in the

future.

The Chairman opened the floor for public comment.

5. PUBLIC COMMENT

Mr. Miguel Duran, of International Consultant & Representative, Inc., emphasized the

importance of safety, security, and essential resources for survival. He highlighted the

urgent need to develop infrastructure to maintain a reliable water supply, warning that

current wells were depleting and that drilling new ones could cost $20 million if the

aquifer wasn't replenished. Mr. Duran mentioned modern technology that could

connect properties to water systems without the need to remove septic tanks, making

access more feasible for property owners. He also warned that neglecting

infrastructure needs could lead to catastrophic failures.

Retired Captain with the Indian River County Sheriff’s office, Tony Consalo, raised

concerns about the rising taxes that residents have faced over the years, emphasizing

the need for transparency and accountability in the Sheriff's budget. He pointed out

specific areas where he believed cuts could be made, such as a $50,000 request for

surveillance cameras at the Oslo Interchange that would not be completed until 2027,

and a $1.2 million budget for inmate food that he argued could be reduced based on

comparisons with other counties.

Mr. Consalo addressed Chairman Flescher regarding remarks made at the beginning

of the meeting. He conveyed his discontent with the Chairman's decision to bring up

the issue of food stamps, clarifying that those comments had originated from a Deputy

with a disabled child, not from the Sheriff. Mr. Consalo highlighted that the

Chairman's insinuation of doubt surrounding those statements suggested that the Law

Enforcement Officer might not have been truthful. He also referenced another

comment regarding someone taking food home from school. Mr. Consalo expressed

his worries about the Chairman's assertion that such occurrences were not happening,

explaining that when the Chairman made claims like these, it diminished the credibility

of those who had come forward to report their experiences. He cautioned that this

could establish a hazardous precedent and emphasized that discussions of this nature

should be handled with more sensitivity. He expressed his gratitude for the support

law enforcement received and highlighted the Board's dedication to the community.

He stressed the importance of acknowledging law enforcement's role in maintaining

community safety and fostering understanding, which in turn strengthened community

ties.

Chairman Flescher addressed Mr. Consalo's accusations, stating that he never

claimed they had lied, nor did he suggest that the Sheriff made certain statements.

Chairman Flescher expressed that there was no intent to cast aspersion and

apologized if it seemed that way.

Chairman Flescher inquired whether the Board had reached a consensus. to maintain

the current budget request, or consider the proposed increase, which required

reductions in other areas.