Florida Legislature aims to cement GRU Authority with new amendment

Gainesville leaders and community groups mobilize to oppose the 24-word provision that would preempt the city's control over its utility.

Feb. 27, 2026 at 1:35am

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The Florida Legislature has approved a new amendment to House Bill 1451 that would make the Gainesville Regional Utilities (GRU) Authority permanent, overriding recent voter-approved referendums in Gainesville to remove the authority. The 24-word amendment does not explicitly mention GRU or the GRU Authority, but Gainesville officials and community groups have recognized the local impact and are mobilizing to oppose the measure.

Why it matters

The GRU Authority was created by the state legislature in 2023 despite opposition from the Gainesville City Commission and local community groups. Voters in Gainesville have since approved two referendums with over 70% support to remove the authority and restore local control over the utility. The new amendment appears aimed at cementing the state's control over GRU, undermining the will of Gainesville residents.

The details

The amendment, introduced by state Rep. Demi Busatta, R-Coral Gables, states that 'the subject of a regional utilities authority created by the legislature through charter amendment after January 1, 2023, is expressly preempted to the state.' This language directly targets the GRU Authority, the only such regional utility authority created by the legislature in the last three years. The Gainesville City Commission has voted to send letters to state legislative leaders urging them to remove the amendment and allow the ongoing legal proceedings over the authority to continue.

  • In 2023, the Florida Legislature created the GRU Authority and gave it power to manage the utility.
  • Around six months later, the Gainesville City Commission unanimously approved a referendum to undo the creation of the GRU Authority.
  • In two separate referendums, Gainesville voters have approved the removal of the GRU Authority with over 70% support.
  • Earlier this month, the Florida First District Court of Appeal heard arguments from both sides on whether the city had the power to undo the legislature's creation of the authority.
  • The new amendment was included in House Bill 1451 and approved by the Commerce Committee just before a vote to send the bill to the House floor.

The players

Gainesville Regional Utilities (GRU)

The municipal utility serving the city of Gainesville, Florida.

Gainesville City Commission

The governing body of the city of Gainesville, which has opposed the creation of the GRU Authority and supported referendums to remove it.

GRU Authority

A regional utilities authority created by the Florida Legislature in 2023 to manage GRU, despite opposition from the Gainesville City Commission and local community groups.

State Rep. Demi Busatta

The Republican state representative from Coral Gables who introduced the amendment to make the GRU Authority permanent.

State Rep. Yvonne Hayes Hinson

The Democratic state representative from Gainesville who has urged lawmakers to honor the will of the Gainesville community as shown in the referendums.

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What they’re saying

“The people spoke plainly. They voted to restore local oversight, accountability, and transparency to their community-owned utility. Any legislative action that preempts that decision undermines home rule and dismisses the democratic voice of Gainesville residents.”

— State Rep. Yvonne Hayes Hinson

“The GRU Authority applauds the Florida Legislature's action to reinforce a basic principle: When the state intervenes to protect utility customers from the overreach of local government, that protection is not advisory nor subject to local nullification.”

— Ed Bielarski, GRU CEO

What’s next

The judge in the ongoing legal case between the Gainesville City Commission and the GRU Authority is expected to rule on whether the city has the power to undo the legislature's creation of the authority.

The takeaway

This amendment highlights the ongoing tug-of-war between state and local control over Gainesville's community-owned utility. It raises questions about the role of voter-approved referendums and the limits of home rule in Florida, as the legislature seeks to cement its authority over GRU despite strong local opposition.