St. Augustine debate over horse‑drawn carriages and vehicles‑for‑hire intensifies; council sends ordinances back for refinement

The St. Augustine City Commission opened a lengthy debate Tuesday on proposed revisions to ordinances that would rewrite rules for sightseeing tours, pedicabs, motorized low‑speed vehicles and horse‑drawn carriages.

At first reading, staff presented two companion measures: Ordinance 2026‑10 (amending Chapter 27, vehicles for hire) and Ordinance 2026‑11 (amending Chapter 14, franchises). Assistant City Manager Ruben Franklin summarized key changes including limits on the number of operators, penalties for violations (written warning then fines and hearings), insurance minimums, and new animal‑care limits and a wet‑bulb globe temperature cutoff (90°F) for horses.

Why it matters: The changes respond to public safety, animal‑welfare and congestion concerns in the historic district while trying to protect small local operators from abrupt cost increases. Several public commenters described the proposals as potentially crippling for small tour and carriage businesses; others urged stronger enforcement to protect horses.

What officials and operators said: Franklin told the commission staff had proposed a combined liability requirement of $1,000,000 for certain Tier‑2 operators and the horse carriage franchises but acknowledged heavy public concern. Commissioners coalesced around reducing that level for Tier‑2 vehicles and horse carriages to $300,000 combined single limit, leaving staff to draft the specific language for second reading.

Local operators warned that a $1,000,000 requirement would push premiums beyond the means of many small businesses. "To double that would be a detriment to us," said Joshua Luke, a tour operator who said insurance recommendations would cost him tens of thousands of dollars per year. Others argued the industry’s historical accident record is small: staff said an accident review found about 40 incidents in 10 years, most without injury.

Animal‑welfare concerns dominated public comment. Patricia Ramos presented photos and timeline claims about a carriage horse named "Barbie" that she said bore a laceration in March and was later seen working with a concealed wound; she asked the city to suspend the franchise pending investigation. Heather Wilson and other speakers cited franchise language requiring animals be kept in good health and urged prompt city enforcement or suspension when violations are alleged.

Code‑of‑conduct and speech: Commissioners debated an included code‑of‑conduct section that would require drivers to be "courteous, respectful and professional." City Attorney Isabelle Christine Lopez warned that any ordinance restricting the content of speech can face strict First Amendment scrutiny; the commission directed staff to remove a subsection that invited broader subjective enforcement while keeping the general expectation of professionalism.

Horses and electric carriage incentives: The draft permits franchises to trial electric carriages. Commissioners asked staff to clarify the definition of an "electric carriage" and to tighten language so the incentive could not be misread as granting multiple additional medallions.

Outcome and next steps: By roll call the commission moved both ordinances to second reading with specific direction to staff: lower the combined liability minimum for Tier‑2 and horse carriage franchises to $300,000 (subject to drafting), remove or redraft the problematic code‑of‑conduct subsection, add a clear definition for electric carriages, and include the wet‑bulb globe temperature limit for horses. Staff expects to return with revised drafts at second reading on July 13. The commission also directed staff to prepare clearer enforcement, inspection and grandfathering language for existing operators.

What’s next: The ordinances have been advanced to a second reading where amended language will be presented, formally debated and subject to final votes. If adopted, the new rules would alter franchise transfer requirements, medallion use, insurance thresholds, and horse work limits.