Office of Inspector General

City of Jacksonville

Report of
Investigation
#2020-0002WB
Procurement Code Violations, COJ Directive
Violations, Falsification of Time and Attendance
Records, and Misuse of COJ Resources.

April 18, 2022

Date Issued

“Enhancing Public Trust in Government Through Independent and Responsible Oversight”

 EXECUTIVE SUMMARY
Report of Investigation 2020-0002WB

In November of 2019, the Office of Inspector General (OIG) received two written complaints
regarding Ryan Ali (Ali) 1, now-former Chief, Division of Sports and Entertainment, formerly the
Office of Sports and Entertainment (hereafter, referred to as DSE), City of Jacksonville (COJ). The
complainants reported misuse of COJ resources and falsification of time and attendance records.

From December 2019 to February 2020, the OIG received eight additional complaints regarding
Ali, specifically related the DSE work environment. The complainants alleged Ali exhibited
behaviors that facilitated a hostile work environment, mismanaged DSE, and engaged in conduct
prohibited by the COJ Workplace Violence Directive.

On December 20, 2019, the OIG sent the Director of Organizational Effectiveness, Office of the
Mayor (Mayor’s Office), a memorandum (OIG Memo) requesting a Labor Relations 2 investigation
to address the allegations related to the DSE work environment.

On January 7, 2020, the Director of Employee Services provided a written response to the OIG
(Memo Response) containing a summary of three meetings held with Ali prior to the issuance of
the OIG Memo. The Memo Response did not indicate whether Labor Relations investigated the
complainant concerns involving the DSE work environment. Because Labor Relations elected not
to investigate, the OIG included the DSE work environment complaints in this investigation.

In September 2020, the OIG received one additional complaint against Ali, alleging
mismanagement, workplace violence, hostile work environment and procurement of services in a
manner contrary to the COJ Procurement Code.

On September 16, 2020, the Mayor’s Office placed Ali on administrative leave, and on December
8, 2020, Ali submitted a resignation letter, effective the same date.

Based on the 11 complaints, 3 the OIG conducted an investigation of the following:

Allegation 1: Violation of COJ Procurement Code

Ali procured services in a manner contrary to the COJ Procurement Code by circumventing the
procurement process. Finding: Substantiated.

Allegation 2: Violation of COJ Directives 0532 and 0528

Ali exhibited behaviors that created a climate of hostility and intimidation in the DSE work
environment. Finding: Substantiated.

1
Ali was appointed as Chief in June of 2019 and resigned on December 8, 2020.
2
Labor Relations is an office within the Employee Services Department.
3
As part of the OIG’s complaint intake process, the Inspector General determined the disclosures demonstrated
reasonable cause for protection under the Whistle-blower’s Act, Florida Statutes (F.S.) §112.3187 - 112.3189, and Part
5 of Chapter 602, Ordinance Code. In total, seven complainants were designated as Whistle-blowers.
OFFICE OF INSPECTOR GENERAL 2020-0002WB

Allegation 3: Falsification of Time and Attendance Records

Ali falsified his time and attendance records for October 17, 2019, and October 18, 2019.
Finding: Substantiated.

Allegation 4: Misuse of COJ Resources

Ali used COJ-owned equipment for personal use. Finding: Substantiated.

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BACKGROUND
The Division of Sports and Entertainment (DSE) became a division under the Department of Parks,
Recreation, and Community Services (Parks) in accordance with COJ Ordinance 2019-395-E,
enacted June 25, 2019. According to the COJ website, DSE “leads the city's direction in sports,
special events and film & television production.” DSE’s mission statement is to, “Attract, host and
create opportunities that positively influence economic impact and improve the quality of life and
cultural engagement for residents, visitors and businesses.”

In June 2019, Ali was initially hired as Manager, Office of Sports and Entertainment, an Appointed
Employee position. 4 In September of 2019, City Council (Resolution 2019-587-A) confirmed Ali’s
appointment by the Mayor to Chief, Office of Sports and Entertainment, an Appointed Official
position. 5 Ali reported directly to the Director of Parks, Recreation, and Community Services, and
supervised a team of 21 COJ employees.

According to the job specifications for the Chief of Sports and Entertainment:

This position reports to the Director of Parks, Recreation, and Community Services and performs
highly responsible, professional work in leading the City's effort to manage city owned sports
venues and contracts; to expand the scope, number, visibility, and quality of sports and
entertainment activities throughout Duval County. The position acts as the City's Chief Sports and
Entertainment Liaison with the City Council, SMG, the Gator Bowl, professional athletic teams,
and their leagues, University of Florida and University of Georgia institutional and sports
administrators, local entertainment venues, local organizations that request City support in
attracting sports and entertainment events to Jacksonville and the national movie industry.

ALLEGATIONS AND FINDINGS

ALLEGATION 1: COJ PROCUREMENT CODE VIOLATIONS

Ryan Ali, Chief of Sports and Entertainment, Division of Sports and Entertainment (DSE), City
of Jacksonville (COJ) procured services in a manner contrary to the COJ Procurement Code by
circumventing the procurement process. If substantiated, the allegation would constitute a
violation of Sec. 126.205, Informal purchases and sales transactions, COJ Ordinance Code; Sec.
126.109 Unauthorized purchases and contracts; COJ Procurement Manual; and City of
Jacksonville Oath of Office. [Attachment A]

FINDING 1: SUBSTANTIATED

4
An Appointed Employee is an employee serving at the pleasure of an elected or appointed official or an appointee of
an elected or appointed official who is exempt from the Civil Service System under Section 17.06 of the Charter, or
any other applicable provision of the Charter or Ordinance Code (except for those Appointed Officials confirmed by
council, or temporary, part-time, or special purpose employees).
5
An Appointed Official is an employee whose appointment is confirmed by City Council.

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COMPLAINT

In August 2020, during an OIG review of Ali’s COJ e-mail account, the OIG identified e-mails of
concern regarding three invoices from a vendor 6 to Ali in the amounts of $2,500, $1,250, and $2,500
for the same project, “Jax Jazz Fest Logo” Job Number 28270. 7

In September 2020, the OIG received a complaint alleging that Ali disregarded the COJ
Procurement Code. Specifically, the complaint alleged the following quoted in part:

In a meeting with the department management team, [Ali] stated that for the
upcoming fall events [DSE] needed to recruit more sponsors (after all event
sponsorship goals had already been met). He stated that the city was in a position
to ‘strong arm‘ contracted vendors for sponsorship donations. He stated that if
contracted vendors that we use frequently will not give us money we should ‘flex the
City’s muscles’ and make it known that vendors have to ‘pay to play.’ [Ali] had no
regard for the City’s procurement code or financial process. He frequently wanted
to make quick purchases and circumvent the lengthy bid process. When [the
complainant] would remind him of the procedures, he would say that [the
complainant needed] to think ‘more creatively and out of the box.’

WITNESS TETIMONY

Testimony of Dalton Agency Employees

According to Dalton Agency (hereafter referred to as the Vendor) President/Partner (hereafter,

referred to as Partner), on an unknown date (prior to November of 2019), Ali contacted him
regarding the rebranding of the Jacksonville Jazz Festival (Jazz Fest), as it was soon to be the 40th
anniversary of the festival. Ali subsequently met with the Vendor’s representatives to discuss ideas
for a new Jazz Fest logo.

Partner said he questioned, “how are we going to procure this,” and Ali stated it could be procured
under an artistic award. 8 When Partner asked Ali what an artistic award was, Ali could not explain
what it was, which raised a “red flag” for him. Partner thought artistic awards were no longer used,
so he telephoned the COJ Chief of Procurement, who advised that the project could not be procured
under an artistic award. The Chief of Procurement said he would “get with [Ali]” regarding the
matter.

6
The vendor was identified as Dalton Agency, an advertising and public relations agency located in Jacksonville,
Florida.
7
The Jacksonville Jazz Festival (Jazz Fest) is an annual COJ event hosted by DSE.
8
The term “artistic award” refers to the use of an administrative award for supplies, contractual services, professional
design services, professional services, capital improvements and/or sales transactions that are exempt from competitive
solicitation, pursuant to Section 126.107 of the COJ Procurement Code. Specifically, it is intended to be used for
artistic services or performances.

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Ali later “circled back” to Partner and told him the project could be procured with an initial $2,500
payment with the rest to be determined as in-kind sponsorship. 9 Ali verbally assured Partner the
“trade request” would be minimal.

The agreement to work on the Jazz Fest logo was not formalized in any documentation. Partner
expected the agreement would eventually be formalized, but the Jazz Fest was canceled (due to the
Coronavirus pandemic) before that could happen. However, the Vendor had already completed
work at Ali’s request.

Partner explained there were three components to the Jazz Fest logo project, all accounted for under
the same project job number (Job Number 2870- Jax Jazz Fest Logo): (1) Branding - Brand review
and analysis; (2) Logo development; and (3) Implementation - How to use the logo.

Partner understood, based on discussions with Ali, he would be paid by the COJ for the logo
development and branding components of the project, then trade sponsorship for the remaining
component (implementation).

The Vendor completed most of the work on the Jazz Fest logo in or around November of 2019.

In approximately July of 2020, Ali asked Partner for quotes for the Jazz Fest logo work the Vendor
had already completed. Partner stated he was told by Ali the requested documents needed to say
“Quote.”

During the OIG interview, the OIG showed Partner two sets of invoices retrieved from Ali’s COJ
e-mails: one set dated July 7, 2020, and one dated August 25, 2020. Partner stated he did not know
why there were multiple sets of invoices with different dates for the same work. He stated services
listed on all the invoices were accounted for under the same account/job number.

According to the Vendor’s Assistant Business Manager (hereafter referred to as Manager), the
Vendor completed all work on the Jazz Fest logo project by or before February 29, 2020. The
original invoice [Invoice #45134] dated February 29, 2020, for the Jazz Fest logo in the amount of
$6,250, was generated when the job was closed. She stated she sent the February 29, 2020, invoice
via regular postal mail to the COJ. [Attachment B]

After reviewing the February 29, 2020, Invoice #45134 in the amount of $6,250, the Manager
recalled she thought she was instructed to break up the invoice into smaller amounts, by Partner,
who had spoken to Ali regarding the matter.

On May 29, 2020, 10 the Manager telephoned Ali regarding payment for Invoice #45134. During
the call, Ali argued with her about the work that was completed. She responded the work had been

9
In-kind sponsorship is a type of sponsorship in which a vendor may trade services for sponsorship. This process is
facilitated by the DSE Sponsorship Manager, and requires an agreement executed by formal contract through the COJ
Office of General Counsel.
10
Between February 29, 2020, and May 29, 2020, conversations began between Ali and Partner via Ali’s personal
cell phone regarding how to proceed with payment [Attachment B].

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completed and told Ali the amount that was due. She recalled Ali “wasn’t very nice” and then
hung up on her.

On July 7, 2020, at Partner’s request, the Manager sent three invoices for the Jazz Fest logo to Ali.
Later the same day, Partner telephoned the Manager and asked her to change the Jazz Fest invoices
to say “Quote” instead of “Invoice” per a meeting he had with Ali. Manager made the change and
sent the quotes to Ali.

On August 25, 2020, 11 the Manager sent an e-mail to Ali, which read, verbatim, in part, “Attached
please find your invoices for Jax Jazz Fest logo” and had three attached invoices dated July 7, 2020
[Invoice #45134-1 I for $2,500; Invoice #45134-2 for $1,250; and Invoice #45134-3 for $2,500].

On the same day, after the Manager sent the invoices, she received a telephone call from Ali saying
the dates on the invoices needed to be changed from July 7, 2020, to August 25, 2020. Ali did not
explain why he wanted the date changed. Later the same day, she sent an e-mail to Ali which read,
verbatim, in part, “Ryan, I have [revised] the dates on the invoices. Thank you.” and attached the
revised three invoices dated August 25, 2020.

Testimony of Current and Former DSE Staff 12

According to several DSE staff, in approximately August or September of 2019, Ali was adamant
about working with the Vendor to rebrand the Jacksonville Jazz Festival (Jazz Fest). While DSE
had an in-house Graphic Designer, Ali voiced he wanted the Vendor to work on creating a new Jazz
Fest logo. Several DSE employees heard Ali discuss wanting to work with the Vendor and saw the
Jazz Fest logo designs created by the Vendor, prior to July of 2020.

According to the DSE Sponsorship Manager (Sponsorship Manager), in approximately October or

November of 2019, Ali asked Sponsorship Manager to accompany him to pick up documents from
the Vendor. When they arrived at the Vendor’s office, they met with several of the Vendor’s
employees, including Partner. 13

According to Sponsorship Manager, in approximately October or November of 2019, one of the

Vendor employees presented a Microsoft PowerPoint to Ali and Sponsorship Manager regarding
logos created by the Vendor for the 2020 Jazz Fest. Ali obtained copies of logo designs that were
created and presented by the Vendor. After leaving the Vendor, Ali told Sponsorship Manager,
“You can’t tell anybody because I don’t want anybody to know about this yet; it has to like really
come to fruition before anyone could know.”

11
Between July 7, 2020, and August 25, 2020, conversations between Ali and Partner continued and Ali instructed
his staff to process payment for the first $2,500 invoice [Attachment B].
12
The OIG interviewed 15 current or former DSE employees. For the protection of numerous Whistle-blowers and
DSE staff, their names are being withheld from this report.
13
It is noted, the Sponsorship Manager is primarily responsible for identifying prospective organizations to become
sponsors for COJ events.

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On several occasions (she could not recall dates), Ali told Sponsorship Manager the Vendor was
creating the logo for Jazz Fest, at no charge because Ali and Partner were “such good friends and
business partners.”

Sponsorship Manager had no knowledge of the Vendor ever being a sponsor or potential sponsor
for any COJ event. Sponsorship Manager stated she had never spoken with and/or engaged with
any of the Vendor representatives about becoming a sponsor.

The Process:

The contract process consists of the Sponsorship Manager providing relevant information to the
Office of General Counsel (OGC) and then OGC drafts the contract. Sponsorship Manager works
closely with Attorney III, OGC and Legal Assistant/Paralegal, OGC regarding the contract terms
and conditions. Any changes to the contract are completed and approved by OGC.

After the final contract has been completed and approved by OGC, it is provided to Sponsorship
Manager and the Sponsorship Manager provides the contract to the organization for their
signature. Sponsorship Manager estimated the total executed contract process takes approximately
three to six months to complete.

The Sponsorship Manager stated Ali was “too involved” in sponsorships and micromanaged her
work. On at least one occasion, Ali had either worked on or executed contract processes without
the Sponsorship Manager’s knowledge or involvement. For example, on one occasion, Ali worked
on a vendor becoming a sponsor for the Florida vs. Georgia football game in 2019, and she “had
no idea.”

According to the DSE Marketing Manager, after she began employment with COJ (January of
2020), Ali showed her the Jazz Fest logos he had the Vendor create. Ali told her he did not like
any of the logos the Vendor created and they would not be used.

On July 8, 2020, Ali forwarded the Marketing Manager an e-mail from the Vendor which contained
a link to download the Jazz Fest logos. Ali asked the Marketing Manager to confirm the Jazz Fest
logos would successfully download.

On July 14, 2020, Ali asked the Marketing Manager to pick up three quotes from the Vendor related
to the Jazz Fest from the Vendor’s office; however, the quotes were not ready on July 14, 2020,
when she went to pick them up.

On July 15, 2020, Ali asked the Marketing Manager to have her spouse pick up the quotes; she
thought he had asked as a matter of convenience because he knew her spouse worked at the Vendor.
At Ali’s request, the Marketing Manager asked her spouse to bring her the quotes, her spouse
retrieved the three quotes and gave them to the Marketing Manager. (It is noted her spouse did not
work on the Jazz Fest project.) The quotes were each dated July 7, 2020, and were as follows:

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1) $2,500 for Jazz Fest branding review and strategic analysis,

2) $1,250 for Jazz Fest logo concept, and
3) $2,500 for Jazz Fest Art Direction and Creative Design.

The Marketing Manager subsequently scanned the quotes and e-mailed them to Ali.

On July 21, 2020, Ali e-mailed the Marketing Manager a purchase request for $2,500 for the first
quote (Jazz Fest branding review and strategic analysis), which was dated and had Ali’s name
printed but not signed. After receiving the purchase request, the Marketing Manager forwarded it
to, the DSE Accounting Manager to create the purchase order.

On August 17, 2020, Ali requested the Marketing Manager provide him with copies of the three
quotes again. She did not know why Ali requested the quotes again. She e-mailed Ali the quotes
but reminded him he had her create a purchase order only for the first $2,500 quote.

On August 25, 2020, Ali forwarded the Marketing Manager an e-mail from the Vendor which had
no text but contained three attached invoices. The invoices were identical to the July 7, 2020
quotes, except they were invoices and dated August 25, 2020.

Sometime after August 25, 2020, the Marketing Manager discussed the three Vendor invoices with
the Special Events Manager because she had concerns about the potential multiple payments (under
the threshold for requiring a bid) to the Vendor for the same project. Special Events Manager
agreed it was concerning there were multiple quotes and invoices for the work the Vendor
completed.

On August 26, 2020, the Marketing Manager e-mailed Ali and asked him what he wanted her to do
with the three invoices, as she had moved forward with a purchase request for only one of them per
Ali’s previous instruction. Ali replied, directing her to move forward with paying the $2,500
invoice for Jazz Fest branding review and strategic analysis.

On August 27, 2020, the Marketing Manager replied to Ali’s e-mail she did not feel comfortable
separating the invoices and submitting them to the Accounting Manager to process for payment as
she “did not have knowledge of them.” The Marketing Manager requested Ali handle the invoices.
Ali did not reply to her concerns about separating the payments for the one project.

Later the same day (August 27, 2020), Ali asked the Marketing Manager why she felt
uncomfortable about submitting the invoices. The Marketing Manager reiterated her concerns
about the multiple payments and that she had no knowledge about the Jazz Fest project or any
discussion with the Vendor.

Between late August and mid-September of 2020, Ali asked the Marketing Manager several times
to submit the invoices to the Accounting Manager for payment. On each occasion, the Marketing
Manager declined to submit the invoices and requested Ali to submit them.

On September 15, 2020, Ali told Marketing Manager the Jazz Fest logo was meant to be a
“sponsorship deal” and the Vendor did not mean to send “all those invoices.”

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Both the Sponsorship Manager and Marketing Manager indicated on September 16, 2020 (the day
Ali was placed on administrative leave), Ali contacted them, individually, and stated he thought he
was placed on administrative leave due to a public records request regarding the Vendor and the
Jazz Fest logo.

The DSE Accounting Manager corroborated the Marketing Manager’s testimony and added the
following details:

On an unknown date, the Accounting Manager mentioned to Ali it was “weird” the Vendor had
provided three invoices, while DSE had only one purchase order (PO) for the work the Vendor
completed for the Jazz Fest logo. Ali instructed the Accounting Manger to “go forward with the
$2500, they [the Vendor] must have done something or I’ll have to get to the bottom of the rest with
them.”

On July 23, 2020, the Accounting Manager paid the first invoice of $2,500, as it had a corresponding
PO to authorize the payment. At the time, the Accounting Manager believed the PO was for work
performed by the Vendor after the PO was created (July 23, 2020). She stated it would be
concerning if the Vendor had completed the work prior to that, because there was no agreement at
that point and would violate the COJ Procurement Code. She did not pay the other two invoices
because she was not comfortable doing so.

On November 2, 2020, the Accounting Manager e-mailed Daryl Joseph, Director of Parks
information regarding the Vendor invoices. In the e-mail, she explained there had been only one
PO and there remained two unpaid invoices for the Vendor. Further, she explained there had been
concerns of “stacking POs,” Ali instructed the Marketing Manager to move forward with the
original PO, and he (Ali) would handle the remaining two invoices.

The Accounting Manager also included in the e-mail to the Director of Parks she was planning to
contact the Vendor to ensure DSE did not have past due invoices; however, she wanted to first
discuss the matter with the Director of Parks. On November 2, 2020, the Director replied to the e-
mail instructing her to take no further action as he was going to work with COJ Procurement
Division to handle the invoices.

On November 24, 2020, a Purchase Requisition (Improper Purchase) was drafted to pay the
remaining Jazz Fest invoices, which totaled $3,750. She recalled this occurred after the Director
of Parks had discussed the Vendor invoices with the Procurement Division and deemed since the
Vendor completed the work, it was “only fair to pay them.”

The OIG showed the Accounting Manager the Vendor’s original Invoice #45134 for “Jax Jazz Fest
Logo” in the amount of $6,250. She stated she had never seen this invoice prior to the OIG
interview. She stated if this invoice had been received via postal mail during the Coronavirus
(COVID-19) pandemic, Ali would have been the one to collect the invoice. 14

14
During COVID-19, while DSE staff worked remotely, the Executive Assistant of Parks collected the incoming postal
mail for DSE, then distributed DSE mail to Ali because he was the only person in the office full-time.

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The COJ Chief of Procurement recalled at some point (he could not recall the date), Partner
contacted him and expressed concerns regarding DSE; however, the Chief of Procurement could
not recall the details of their discussion. The Chief had spoken with Partner on several occasions
as the Vendor regularly conducts business with the COJ and according to the Chief of Procurement,
Partner tries to ensure he is doing things correctly by the COJ Procurement Code.

After reviewing the three invoices dated July 7, 2020, the three quotes dated July 7, 2020, and the
three invoices dated August 25, 2020, the Chief of Procurement stated he would not have approved
each of the component descriptions as separate items as they were all part of the same project. He
noted no bid number, administrative award, or PO was referenced on the invoices to demonstrate
the authority of the transaction, which was concerning from an approval standpoint.

The OIG provided records and information to the Chief of Procurement regarding Ali’s actions in
procuring services from the Vendor on the Jazz Fest logo. Based on his review of the information
provided, the Chief of Procurement opined Ali violated the COJ Procurement Code. Specifically,
Ali improperly procured services from the Vendor as he did not secure the authority (via a PO,
contract, or administrative award) to proceed with the purchase, prior to the work being completed
by the Vendor. The Chief of Procurement stated the invoices paid to the Vendor were
unauthorized.

SUBJECT TESTIMONY

On June 16, 2021, the OIG contacted Ali’s legal representative to schedule an in-person interview
regarding this investigation. On June 21, 2021, Ali’s legal representative replied that Ali declined.
Ali’s legal representative offered to submit written responses to questions provided by the OIG.
This request is inconsistent with OIG practices and standards; therefore, Ali was not interviewed.

On July 29, 2021, the OIG received the following general written statement from Ali’s legal
representative, which was not in response to specific questioning, quoted in pertinent part:

Partner

See the Subject’s full written response [Attachment C].

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RECOMMENDED CORRECTIVE ACTIONS

The OIG recommends the COJ Procurement Division: 15

1. Define the term “artistic services” in the COJ Procurement Manual. 16

The OIG recommends the Director of Parks:

1. Adopt an internal policy regarding the use of blanket administrative awards.

2. Ensure DSE management receives training on the new COJ Procurement Code, once
issued.
3. Work with the Chief of Procurement to adopt a department policy regarding in-kind/trade
sponsorship.

ALLEGATION 2: WORKPLACE VIOLENCE

Ryan Ali, Chief, Division of Sports and Entertainment (DSE), City of Jacksonville (COJ)
exhibited behaviors that created a climate of hostility and intimidation in the DSE work
environment. If substantiated, the allegation would constitute a potential violation of Workplace
Violence, Directive – 0532; Anti-harassment and Discrimination Policy and Complaint Procedure,
Directive – 0528; City of Jacksonville Employee Services Directives; and City of Jacksonville Oath
of Office. [Attachment A]

FINDING 2: SUBSTANTIATED

COMPLAINT

In December of 2019, the OIG received various WB complaints alleging Ali mistreated DSE staff
and created a “hostile work environment.” Specifically, the complaints described Ali’s behaviors
as those listed in the COJ Workplace Violence Directive as “conduct prohibited.”

On December 20, 2019, the OIG sent a Memorandum of “Request for Labor and Relations
Investigation” (OIG Memo) to the Director of Organizational Effectiveness, Office of the Mayor
(Mayor’s Office). The OIG Memo stated the following in pertinent part:

The following summarizes in general recent information the Office of Inspector

General (OIG) received relating to labor and relations concerns, which the OIG
believes, is most appropriately addressed by the Administration. As previously
discussed, this information is being provided to assist with any inquiry you deem
appropriate.

15
Recommendations for policy development or enhancements should be made in consultation with the Office of
General Council and the Office of Ethics, as necessary.
16
Note: On March 4, 2022, Chief or Procurement advised a definition for “artistic services” has been included in the
revised COJ Procurement Manual; however, the revised manual had not yet been issued.

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The OIG Memo (Attachment D) included a list of the allegations reported to the OIG regarding the
DSE work environment and detailed examples of the concerns.

On January 7, 2020, the OIG received a response [Attachment E] to the OIG Memo (Memo
Response) prepared by the Director of Employee Services. The Memo Response contained a
summary of three meetings that were held with Ali prior to the issuance of the OIG Memo. In part,
Employee Services reported Ali was coached on communication style and approach toward DSE
employees, and management training was identified by Employee Services. The Memo Response
did not indicate Labor Relations investigated the DSE employee complaints, or that any actions
were taken to address the potential workplace violence issues after the December 20, 2019 OIG
Memo. Therefore, the OIG added reported allegations regarding workplace violence by Ali to this
investigation.

Note: According to a review of DSE personnel records, 17 from July 1, 2019, to September 16, 2020
(approximately 14.5 months), during the time Ali oversaw DSE, 17 employees departed from DSE:
13 DSE employees resigned, two DSE employees transferred to different COJ departments, one
DSE employee was terminated (because he walked off the job), and one DSE employee retired.

WITNESS TESTIMONY

Testimony of DSE Current and Former Staff

DSE staff testified everyone in the office was treated poorly and/or unprofessionally by Ali; some
more than others, including individuals he had hired, female staff (especially), and one staff member
of a protected class due to age. Ali was unpredictable and had some “good days” and other days
when his temperament was described as “explosive.” DSE staff described Ali as a “bully” and
stated he was verbally abusive to DSE staff. Ali regularly made sarcastic and demeaning remarks
to DSE employees, and Ali’s behaviors created a toxic work environment, resulting in significant
turnover.

DSE staff provided the following examples of behaviors Ali exhibited that caused tension in the
workplace:

 Ali often yelled at DSE staff, slammed doors, and targeted DSE employees who were less
likely to fight back such as the female employees.
 On multiple occasions, Ali made remarks threatening to terminate DSE staff.
 On one occasion, Ali critiqued a DSE employee’s work by assigning a school grade to the
employee’s work and telling the DSE employee they were not performing well, in the
presence of other DSE staff.

In addition, Ali regularly commented on DSE staff’s physical appearances and made derogatory
remarks. DSE staff provided the following examples:

17
Included in records reviewed, [Attachment B].

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 Ali told a DSE employee she needed to get her hair done.
 Ali told a DSE employee their hair looked like they could audition for the Lion King movie.
 One employee sold their clothes on the internet because Ali commented they looked like
his grandmother’s curtains.
 Ali offered to bring an employee a wig so their hair would not look bad.

DSE staff cited the following examples of incidents in which Ali demonstrated inappropriate
behavior and mistreatment of DSE staff:

Example 1

On one occasion (October 26, 2019), Ali yelled and used profanity at a DSE employee in the
presence of DSE staff and COJ event attendees. During the verbal altercation, Ali told the employee
they were not capable of doing their job and threatened he would find someone else to do their job.
Ali’s demeanor was described as aggressive, as he was physically close to the DSE employee’s face
while he yelled at the employee.

Example 2

On one occasion (November 2, 2019), DSE staff observed two unknown females engaging in a
physical altercation, during a COJ event. DSE staff witnessed Ali insert himself into the altercation.
Ali made physical contact with both unknown females by pushing and attempting to break them
apart.

During the physical altercation, DSE staff notified the Jacksonville Sheriff’s Office (JSO) and
Jacksonville Fire and Rescue Department (JFRD) of the altercation. Ali observed that DSE staff
witnessed the fight and yelled, “What the F? What are y’all doing…F-U…” Ali appeared angry
and “flicked everybody off,” then disappeared for approximately three or four hours.

JSO, JFRD and/or other personnel arrived shortly after the altercation to administer first aid to the
two females involved. According to DSE Staff, the Director of Parks was also notified about this
incident.

Example 3

On multiple occasions, DSE staff witnessed Ali yell and direct profanity at Employee 1, 18 causing
Employee 1 to cry. According to a former DSE employee, Employee 1 reported this to Labor
Relations on an unspecified date sometime in the Fall of 2019, and the general response from Labor
Relations was because Ali was an Appointed Official, there was nothing they could do.

Ali made multiple comments to DSE staff regarding Employee 1’s age and physical abilities.
According to DSE staff, it appeared Ali was trying to push Employee 1 out of the office.

18
To effectively distinguish throughout the report, DSE employees will be referred to as Employee 1, 2, 3, etc.

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On one occasion (January 16, 2020), Ali wrote the following statement on a large piece of chart
paper in the DSE office, “I [Employee 1] am retiring on [date]…” Ali instructed Employee 1 to
sign it and took a photograph of Employee 1 with the sign. According to DSE staff, Employee 1
expressed to other DSE staff he/she was upset because he/she felt like Ali had forced his/her
resignation. Ali taped the sign in the office for everyone to see. On January 21, 2020, this incident
was reported to the OIG by DSE staff. On the same date, the OIG reported the incident to Marlene
Russell, COJ Former Director of Organizational Effectiveness. Ms. Russell responded, via e-mail,
“this is something the employee was aware and proud of, since this is a retirement for [him/her].”
On an unknown date, DSE staff also reported this incident to the Director of Parks, and Employee
Services (Labor Relations and the HR Business Partner).

During a COJ event (February 29, 2020), Employee 1 was walking at a slow pace and Ali said to
Employee 1, “Come on [Employee 1], you’re being slow, you know I don’t like waiting for you.”
Approximately six DSE employees witnessed Ali make the comment. Later the same day,
Employee 1 tripped and fell at the COJ event site and had to be transported to the hospital.
According to one employee, Employee 1’s glasses fell off and broke during the fall. Ali later
brought Employee 1’s belongings back to the DSE command center, and said, “Well this is all
that’s left of [Employee 1].”

On an unspecified date, Ali stated to Employee 1, “Sure, [Employee 1] continue to walk slowly
while I’m right behind you.” According to DSE staff, Employee 1 appeared embarrassed because
other DSE staff were around.

Employee 1 made multiple complaints to Employee Services regarding Ali’s behavior, between
Fall of 2019 and an additional complaint in June of 2020, based off witness testimony and records.19

Example 4

DSE staff testified Ali attempted to turn employees against one another by sharing false information
and starting rumors. Ali indicated to an employee his goal was to “get rid” of the existing DSE
staff and hire new employees because he did not like the existing staff nor the work they produced.
According to this employee, Ali’s mentality was if he made employees miserable enough, so they
hated their jobs, they would resign. According to DSE staff, he was successful in doing so, as many
employees resigned because of Ali’s mistreatment.

According to one DSE employee, Ali boasted to DSE staff employees had resigned because of him
and made remarks such as, “If you go against me, you’ll be out of here before me.”

Example 5

On December 9, 2019, a DSE employee (Employee 2) reported their concerns regarding Ali’s
behavior toward DSE staff to the Director of Parks (the Director), and later that day, Ali learned
Employee 2 met with the Director of Parks. On December 9, 2019, at approximately 4:45 p.m., Ali
telephoned the DSE employee and stated, “You’d better hope that meeting went well because I’m

19
Employee 1 was not available for an interview.

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headed to [the Director of Parks’] office right now…[the Director] called me into his office right
now, so I’m on my way there.”

Employee 2 immediately telephoned the Director and asked whether he had disclosed Employee
2’s concerns to Ali and mentioned Ali said he was on his way to the Director’s office. The Director
stated Ali was not on his way to meet with him. 20

On December 9, 2019, at approximately 7:00 p.m., Ali contacted Employee 2 (via telephone call
and text message) and stated he had just left a two-hour meeting with the Director; however,
according to the Director, the meeting never took place. Employee 2 notified the Director about
the text message and that Ali lied about meeting with him.

Employee 2 testified that after December 9, 2019, “everyday got worse” regarding Ali’s treatment
towards Employee 2.

On December 17, 2019, Ali visited Employee 2, uninvited, at a location outside of work, which
made Employee 2 uncomfortable. On the same date, Ali contacted Employee 2’s mother and stated
he (Ali) was in trouble with the Mayor’s Office and at risk of losing his job, because of what
Employee 2 reported to the Director. Ali sent multiple text messages to Employee 2’s mother
stating things were “terrible for him” and he felt Employee 2 had “stabbed him in the back” after
all he had done for the employee. Employee 2 reported the incident to the Director of Employee
Services. 21

DSE staff testified they reported their complaints, between July of 2019 and December of 2019, to
Employee Services (Labor Relations) and the Director of Parks regarding the hostile work
environment Ali created. 22 DSE staff testified they had “exhausted all avenues” of reporting and
the general consensus from Labor Relations and the Director was, “We can’t do anything, it is what
it is, [Ali’s] appointed.” According to DSE staff, there was never any follow through from the
Director or Employee Services regarding the DSE employee complaints.

DSE staff testified there was no oversight from the Director of Parks, no accountability for Ali, and
no consequences for Ali’s actions, because Ali was “untouchable,” due to the relationship Ali had
with the Administration and his Appointed status. Ali boasted to more than one DSE employee he
was friends with a family member of an elected official within the COJ Administration. According
to DSE staff, Ali made comments regarding his connection with a family member of an elected
official within COJ to intimidate employees.

DSE staff testified many DSE employees had resigned because of Ali. One former employee
testified they resigned due to the work environment, poor management style, and abuse of DSE
staff by Ali. Another former employee stated they resigned because their reported complaints did
not make a difference, and if they remained employed with DSE, it would have been harmful to

20
The Director corroborated in his testimony this meeting did not occur.
21
The Director of Employee Services corroborated in her testimony this incident was reported to her.
22
According to records, there was one additional DSE staff complaint to Labor Relations in June of 2020.

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themselves. Another former employee testified they had not planned on leaving DSE; however,
they resigned because “it had become a hostile work environment.”

Testimony of the Director of Parks (The Director)

The Director stated shortly after Ali was hired, sometime between July of 2019, and when Ali was
confirmed as Chief (September 2019), DSE staff reported complaints regarding Ali. In
approximately July or August of 2019, the Director met with the majority of DSE staff as a group
to identify the issues and determined the problem was a communication issue, “personality type
stuff,” and DSE staff learning a “new management style.”

The Director opined the complaints stemmed from DSE’s resistance to new leadership and not
because the complaints were “warranted” against Ali. The Director testified he was aware of
incidents such as Ali giving a school grade to a DSE employee’s work in the presence of other DSE
employees and Ali commenting on a DSE employee’s attire and physical appearance, but denied
he received complaints of Ali threatening, bullying, screaming, and/or cursing at employees.

The Director testified he did not believe Ali had been sarcastic and/or demeaning to employees, as
alleged by DSE staff. Regarding the number of complaints, he stated there were “ring leaders that
were kind of spearheading the whole [go] talk to Employee Services.”

In approximately September of 2019, the Director met with the DSE Managers because multiple
DSE staff members had reported complaints regarding Ali to Employee Services. During the
meeting, the Director advised the managers they “set the tone” in the office because the Director
wanted to ensure the Managers were “being fair to [Ali]” and “not sending a vibe that was being
connected and duplicated by other staff members.”

The Director did not recall receiving additional complaints after December of 2019 other than one
complaint from one DSE employee (Employee 1) regarding their retirement. The Director
explained for several years, Employee 1 had participated in inner office jokes about their retirement.
The Director said nobody forced or encouraged Employee 1 to retire; however, Employee 1
reported a complaint he/she was being pressured to retire. According to the Director, Employee
1’s complaint was directed at the Special Event Manager and not Ali.

The Director recalled an incident when Ali made comments about Employee 2’s physical
appearance and attire. Employee 2 expressed to the Director he/she felt they needed to purchase a
new wardrobe based on Ali’s remarks. The Director said he resolved this issue by talking to Ali
about it. Ali told the Director he had said it jokingly, then the Director told Ali this was not
something to joke about.

According to the Director, Ali’s comments on Employee 2’s attire did not rise to the level of being
demeaning or derogatory; he opined it was a lack of judgement by Ali on how to communicate
expectations of work attire. The Director stated he was not aware of any additional concerns
regarding Employee 2, other than the remarks about their physical appearance and attire.

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When the OIG questioned the Director about an incident involving a DSE employee [(Employee 2
(Example 1)], the Director recalled there had been a “shouting match” between Ali and Employee
2 and “[Employee 2] yelled at [Ali] or something along those lines.” The Director did not recall
Employee 2 mentioning Ali yelled at him/her.

On December 9, 2019, Employee 2 met with the Director to report concerns about Ali. On or
around the same date, the Director learned from Ali Employee 2 had “personal stuff” going on and
health issues related to work. Subsequently, Ali told the Director the DSE employee was going to
be out of the office for “a couple of days.”

The Director denied ever hearing from any DSE employee Ali retaliated against them for making
complaints, or that Ali had been intimidating or threatening employees. Specifically, he denied
Employee 2 reported these types of concerns.

During the OIG interview, the OIG requested the Director search his phone for text messages he
had exchanged with Employee 2. The Director stated he did not have Employee 2’s telephone
number, so the OIG provided Employee 2’s telephone number for him to search.

The Director complied and read the following text messages aloud, verbatim in part (full transcript
in Records Review Section:

Employee 2 to
the Director:
Employee 2

The Director

The Director testified he had forgotten about the text messages, and he never said that he would not
be meeting with employees without Ali present, as Ali indicated to Employee 2 (outlined in red in
above text message).

When the OIG questioned what the Director had done to address the above text messages, the
Director testified he had told Ali not to say things he (the Director) had not said and told Ali he (the
Director) would be meeting with DSE employees without Ali present.

When asked whether the statements Ali made to Employee 2, according to the text messages
Employee 2 provided, was a form of intimidation, the Director replied it was a “level of control,
trying to control a situation.”

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When asked whether the Director perceived the comments Ali made to Employee 2 in the text
messages a form of retaliation, he stated, “potentially.”

When asked whether the Director could think of any appropriate reason Ali would make the above
statements (in the text messages), the Director stated, “No.”

The Director testified the meeting Employee 2 mentioned in the text between Ali and the Director
never took place. The Director opined Ali may have told Employee 2 the meeting occurred to
obtain information from Employee 2.

The Director never addressed with Ali, the above incident of intimidation by Ali to Employee 2,
other than the Director stating to Ali not to say things on his behalf. According to the Director, he
did not want to compromise outing Employee 2 about disclosing this information, so instead, the
Director monitored the situation, by observing whether Ali continuously lied and fabricated
responses from the Director. If it had happened twice, then the Director stated he would have
addressed it. The Director further stated he would have known whether it continued based on
whether Employee 2 or other employees expressed this type of concern to him again.

When asked whether Ali’s behavior demonstrated in the text messages was applicable to the COJ
Workplace Violence Directive (Employee Services Directive- 0532), the Director stated he would
have to look at the directive.

According to the Director, there was a perception DSE employees had resigned because of Ali;
however, the Director denied that was the case. The Director attributed that perception to the fact
Ali had become the Chief, there had been issues within DSE while he was Chief, then employees
were resigning. Of the employees who resigned while Ali was Chief, the Director offered the
following explanations: two employees were moving out of the area, and one was having a baby.

The Director testified the DSE employee complaints were handled in the following manner:

 To address the DSE employee complaints, the Director met with Employee Services in
approximately July or August of 2019 and held weekly “coaching” meetings between the
Director and Ali; however, the Director did not take notes during these meetings. In addition
to the meetings, other efforts to address the complaints included a recommendation by the
Director and Employee Services for Ali to enroll in managerial training courses; however,
the Director never received confirmation Ali attended training (Note: Ali never completed
the training).

 Regarding follow up on at least four DSE employee complaints, the Director testified he
communicated with Employee Services as to whether they received additional complaints
regarding Ali and Employee Services advised there were none. The Director asked DSE
employees “in passing” how things were going. The Director received no additional
complaints from DSE staff and had not observed any concerning behavior by Ali, during
the Director’s visits to the DSE office. Therefore, the Director determined that the issues
reported by DSE staff involving Ali had been resolved.

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 The Director testified the DSE employee complaints did not meet the criteria of a hostile
work environment or harassment, and the nature of the complaints never rose to a level that
required actions in addition to coaching. The Director acknowledged the comments Ali had
made were inappropriate, but the Director opined nothing was done maliciously by Ali.

Testimony of Employee Services Employees 23

Per the Director of Employee Services and the Director of Employee and Labor Relations,
employee complaints are handled on a case-by-case basis and Employee Services uses their
discretion/judgment to determine whether elements of a complaint rise to the level of potentially
violating a COJ directive, such as the Workplace Violence Directive and Anti-Harassment and
Discrimination Policy and Complaint Procedure and how the complaint will be handled.

Employee Services confirmed they received complaints from approximately July 2019 until
December of 2019 from DSE staff regarding Ali’s behavior; however, there was conflicting
testimony as to how many, ranging from not many to many. They indicated they could not provide
the number of complaints received as they had no mechanism in place to document and/or track the
number of employee complaints received. According to the DSE Labor Relations Officer (LRO),
the Director of Employee Services, and the Director of Employee and Labor Relations, they do not
have a formal written process or requirements for handling employee complaints, nor do they have
a requirement to document employee complaints.

Members interviewed in Employee Services provided conflicting testimony regarding the severity
of the DSE complaints involving Ali. The HR Business Partner stated the DSE employee
complaints alleged potential violations of the Workplace Violence Directive and a hostile work
environment. She reported there were allegations of hostile work environment to the Director of
Parks and then to the Director of Employee Services. She also specifically reported to the Director
of Employee Services, that when she reported the complaints to the Director of Parks, he had a
passive reaction, and he did not appear to take them seriously about these complaints. However,
the Chief of Employee and Labor Relations, the DSE LRO, and the Director of Employee Services
stated the complaints did not rise to the level of potentially violating the Workplace Violence
Directive. Specifically, they stated their interpretation of the listed conduct prohibited by the
Workplace Violence Directive, did not apply to the alleged behaviors demonstrated by Ali.

The Director of Employee Services became involved with the complaints regarding Ali when the
Mayor’s Office received notification from the OIG [referring to the December 20, 2019
memorandum sent by the OIG to the Administration (OIG Memo)]. At the time, the (now-former)
Director Organizational Effectiveness sent the OIG Memo to the Director of Employee Services
and they discussed the matter over the telephone. Specifically, they discussed that the Director of
Employee Services, the Director of Parks, and the Chief of Employee and Labor Relations would
meet with Ali.

23
Throughout this section of the report, the testimonies of the Director of Employee Services, the Chief of Employee
and Labor Relations, the HR Business Partner, and the DSE Labor Relations Officer (LRO), will be referred to
collectively as “Employee Services.”

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To address the DSE employee complaints, Employee Services held meetings with Ali and DSE
staff to discuss the complaints, which were outlined in the Memo Response to the OIG. When the
OIG requested the documentation to these meetings, Employee Services indicated they had minimal
documentation regarding the complaints. The OIG obtained handwritten notes from a September
24, 2019 meeting and e-mails regarding the Memo Response.

According to the Director of Employee Services, they had another meeting with Ali on December
17, 2019, to discuss the reported issues in response to the DSE employee complaints. The Director
of Employee Services reported back to the Director Organizational Effectiveness regarding the
aforementioned meeting held with Ali. The Director of Employee Services was not advised to take
any further action, so she did not take any further action. She stated if additional action were
necessary, they (Employee Services/Labor Relations) would have been advised by the Mayor’s
Office because Ali was an Appointed Official.

The Director of Employee Services stated, “We believe that [Ali] said those words to the
employees,” (referring to the complaints listed in the OIG Memo) but Employee Services did not
have the authority to terminate Ali. Although they make recommendations to departments
regarding termination, they would not do so to the Mayor’s Office. She stated the circumstances
may have been different if Employee Services were handling the issues directly with the Director
of Parks (Ali’s Supervisor) and if Ali was not an Appointed Official; however, they (Employee
Services) were handling the issue on behalf of the Mayor’s Office.

The Director of Employee Services testified the Mayor’s Office was aware there were issues with
Ali’s performance, and they (Mayor’s Office) had the authority to enforce discipline or termination.
She stated she may have provided a verbal recommendation to the Mayor’s Office to terminate Ali;
however, she would not have done so in writing.

The Labor Relations Officer indicated they use their professional judgment to determine whether
an investigation (referred to as a “fact-finding” by Employee Services) will be conducted based on
the nature of the complaint(s). Employee Services ultimately determined the DSE employee
complaints regarding Ali did not rise to the level of requiring an investigation (fact-finding);
therefore, they did not investigate the issues. In addition, Employee Services took no action
regarding the complaints after December 20, 2019 (the date of the OIG Memo). They
recommended leadership training for Ali; however, Ali never completed the training.

SUBJECT TESTIMONY 24

Subject Written Statement

24
On June 16, 2021, the OIG contacted Ali’s legal representative to schedule an in-person interview regarding this
investigation. On June 21, 2021, Ali’s legal representative replied that Ali declined. Ali’s legal representative offered
to submit written responses to questions provided by the OIG. This request is inconsistent with OIG practices and
standards; therefore, Ali was not interviewed.

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On July 29, 2021, the OIG received the following general written statement from Ali’s legal
representative, which was not in response to specific questioning, quoted in pertinent part:

See the Subject’s full written response [Attachment C].

RECOMMENDED CORRECTIVE ACTIONS

The OIG recommends the Director of Employee Services: 25

1. Implement a formalized process for documenting and monitoring employee complaints,

including written notification to complainants regarding disposition.
2. Utilize a standardized complaint methodology and practice for all COJ employees,
regardless of status, appointed or civil service.
3. Document all referrals to the Jacksonville Human Rights Commission (JHRC) and the
outcome of the referral.

25
Recommendations for policy development or enhancements should be made in consultation with the Office of
General Council and the Office of Ethics, as necessary.

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4. Notify employees, in writing, when their complaint is referred to JHRC.

5. Track the number of employee complaints referred in a centralized, secured location.
6. Review the Workplace Violence Directive and update the policy, as necessary.
7. Ensure COJ employees are notified when changes are made to Employee Services
Directives to include a description of the changes.
8. Ensure all COJ employees and Department Directors receive training on the COJ Workplace
Violence Directive, the COJ Anti-harassment and Discrimination Policy, Complaint
Procedure Directive, and the U.S. Equal Employment Opportunity Commission (EEOC)
laws.
9. Consider calculating the cost of employee turnover.
10. Upon public release, place a copy of the OIG report in Ali’s personnel file.

The OIG recommends the Director of Parks:

1. Foster a supportive environment for reporting of potential law, rule, code, and policy
violations.
2. Document meetings in which employees have alleged potential policy violations and retain
the record in a secure location.
3. Document coaching, recommended trainings, and any corrective actions taken to address
employee complaints.
4. Report allegations of fraud, waste, or abuse to the OIG, and provide OIG contact
information to employees reporting such allegations.
5. Report all allegations of hostile work environment, discrimination, retaliation and/or
workplace violence to Employee Services and/or JHRC.

ALLEGATION 3: FALSIFICATION OF TIME AND ATTENDANCE RECORDS

Ryan Ali, Chief, Division of Sports and Entertainment (DSE), City of Jacksonville (COJ)
falsified his time and attendance records for October 17, 2019, and October 18, 2019. If
substantiated, the allegation would constitute potential violation of §838.022, Official Misconduct,
F.S.; and City of Jacksonville Oath of Office. [Attachment A]

FINDING 3: SUBSTANTIATED

Pursuant to §602.921(a),in part, the Ethics Commission is authorized to issue findings alleging a
violation of Chapter 602. The OIG found a potential violation of §602.401, Misuse of position,
information, resources, etc.

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COMPLAINT

On November 15, 2019, the OIG received the following complaint from a WB:

WITNESS TESTIMONY

Statements of DSE Staff

DSE staff testified they often questioned Ali’s whereabouts because he was frequently out of the
office. DSE staff had specific concerns during the week of October 14, 2019, through October 18,
2019, as this is DSE’s “busiest time” of the year. Staff stated Ali was not available in the office to
sign required memorandums for upcoming events, such as the 2019 Sea and Sky Air Show (Sea &
Sky), and the 2019 Florida vs. Georgia football game (FLGA). According to some DSE staff, Ali
was unexpectedly at a conference during the above-mentioned timeframe; however, nobody could
validate what conference it was or whether it was COJ work-related.

A statement from former Finance Manager 26 indicated Ali was not in the office on October 18,
2019, the day she provided her verbal resignation, and therefore provided it to the Special Events
Manager. On the same date, the Director of Parks advised the Special Events Manager Ali was
“at a conference,” and provided no additional context or details.

According to a DSE staff member who was in the office all day on October 17, 2019, and October
18, 2019, Ali was not in the office from October 17, 2019, at approximately 11:30a.m. through
October 18, 2019. During this timeframe, Ali was occasionally accessible via telephone, text
message, or e-mail; however, he was not physically present in the DSE office.

The OIG located additional evidence that on October 17, 2019, at 6:57 a.m., Ali e-mailed a DSE
staff member stating he would be in the office in the morning, then “in and out” at a board training
at UNF (University of North Florida) for the next day. They discussed methods for Ali to digitally
sign documents and continued to communicate via text message and e-mail to conduct business.
Further, testimony indicated either on October 17, 2019, or October 18, 2019, the Director of Parks
verbally told the DSE staff member that Ali was going to be at a UNF meeting.

26
This interview was recorded not sworn under oath due to the witness being located outside the state of Florida.

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Some DSE staff stated they follow Ali’s personal Instagram account and discovered that on October
19, 2019, Ali posted photographs on his personal Instagram profile which showed Ali at the
MakerSpace Celebration in New Orleans, Louisiana.

DSE staff further testified they had not reported concerns regarding Ali’s time and attendance to
anyone other than the OIG because Ali boasted, and it was well-known among DSE staff Ali had a
close relationship with a family member of an elected official within COJ.

Statement of Director, Parks, Recreation and Community Services

The Director, Parks, Recreation and Community Services (Director) advised he supervised Ali
since September of 2019, when Ali was confirmed as Chief. The Director stated the following
regarding time and attendance and travel policies and procedures for departmental employees:

 Parks employees followed the COJ attendance and leave policy [issued by Employee
Services].
 The Department had no additional internal time and attendance policies.
 The Director approved Ali’s timesheets and leave requests in the COJ time and attendance
system (TAS).

Ali had an established work schedule; however, the Director could not recall what Ali’s working
hours were. The Director allowed Ali to choose his daily work hours as long as he (Ali) made
himself accessible while the DSE team was working.

Regarding leave (other than unscheduled leave), the Director stated the procedure would have been
Ali notifying the Director and requesting approval. Employees typically e-mail or telephone him
to request leave, then he responds whether he approves. If approved, employees enter their leave
requests in TAS, and he subsequently approves the leave request.

When asked about Flextime, the Director stated Flextime was authorized (allows workers to alter
workday start and finish times within a pay period) for Parks employees with prior approval of their
direct supervisor. The Director could not recall specific occurrences when Ali requested flextime.

When asked about the COJ travel policy, the Director stated Parks employees follow the COJ travel
policy, which requires employees receive prior approval to travel for COJ business. He also
indicated the employees would submit the request to him through the Director’s Executive
Assistant, and he had never approved a travel request for Ali during the days in question.

When asked about working remotely, the Director stated employees were authorized to work
remotely as long it was within regular work hours. He further said an employee could be authorized
to work remotely from another state with prior approval from a supervisor. It was his expectation
Division Chiefs, such as Ali, would notify him prior to leaving town, if they would be working
remotely. According to the Director, he never approved Ali to work remotely from another state
and Ali had never asked to work remotely from a location outside of Jacksonville, Florida. The

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Director was not aware of any instances of Ali working remotely from another state and had never
received complaints regarding this type of issue.

On an unknown date, sometime in the beginning of Ali’s employment, Ali mentioned to the
Director he was going to a board meeting at UNF. The Director advised Ali that remaining active
on professional boards was authorized if work performed for those boards was separate from COJ
and did not conflict with work hours. According to the Director, Ali understood and there were no
additional situations which required the Director to address this issue again. The Director stated
because Ali was a new employee coming from the private sector, the Director felt it was appropriate
to inform Ali on COJ processes.

The Director had never heard about Ali being in New Orleans, Louisiana during scheduled work
hours. According to the Director, Ali never traveled to New Orleans for COJ-related business.

The Director was asked whether he had any knowledge of social media activity which placed Ali
in New Orleans on October 17, 2019, or October 18, 2019. The Director stated he had no
knowledge of Ali being in New Orleans and this was the first time the Director learned of Ali
allegedly being in New Orleans during work hours. According to the Director, at no time did
anyone report concerns regarding Ali’s time and attendance.

SUBJECT TESTIMONY 27

Subject Written Statement

On July 29, 2021, the OIG received the following general written statement from Ali’s legal
representative, which was not in response to specific questioning, quoted in pertinent part:

See the Subject’s full written response [Attachment C].

27
On June 16, 2021, the OIG contacted Ali’s legal representative to schedule an in-person interview regarding this
investigation. On June 21, 2021, Ali’s legal representative replied that Ali declined. Ali’s legal representative offered
to submit written responses to questions provided by the OIG. This request is inconsistent with OIG practices and
standards; therefore, Ali was not interviewed.

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ALLEGATION 4: MISUSE OF COJ RESOURCES

Ryan Ali, Chief, Division of Sports and Entertainment (DSE), City of Jacksonville (COJ) used
COJ-owned equipment for personal use. Specifically, it was alleged that Ali utilized the DSE
lighting packages (DSE lights) at his birthday party on November 8, 2019. If substantiated, the
allegation would constitute potential violation of §812.014, Theft, F.S and §601.101, Use of Public
Property. [Attachment A]

FINDING 4: SUBSTANTIATED

Pursuant to §602.921(a),in part, the Ethics Commission is authorized to issue findings alleging a
violation of Chapter 602. The OIG found a potential violation of §602.401, Misuse of position,
information, resources, etc.

COMPLAINT

On November 14, 2019, the OIG received the following anonymous complaint:

November 8, 2019, Ryan Ali was seen removing a case of City owned lights out of the office of
special events around lunch time. There was no City event where these lights were scheduled to be
used. Ryan mentioned these were to be used by the Mayor’s office. By the afternoon of November
8, all three cases of lights were missing from the office storage. On Sunday November 10, two cases
of lights had been returned and one was missing. During a staff meeting on November 13, Jordan
Brawer (Event Specialist) told the group he had been conducting inventory and asked if anyone
had seen the third case of lights. Ryan stated that he took a case to the Mayor’s office. Brent Fine
(Special Events Manager) asked when they would be done with the lights. Ryan Ali stated they were
done and he would get them returned. Teneese Williams (Event Logistics Manager) stated she
needed to go to the Mayor’s office anyway and would pick them up. After the meeting, Teneese
Williams went to the Mayor’s office with Bria Parker (Seasonal employee) and asked the front desk
staff if they had the case of lights. They had not and attempted to contact Sharyn Conway (Mayor’s
assistant). During this time, Ryan Ali walked into the Mayor’s office with the case of lights (this
should be on video from the Mayor’s office security cameras). Teneese Williams questioned Ryan
Ali on why he was walking in with the case since he stated it was already in the Mayor’s office. He
got very startled and left the case in the lobby and walked away. During the evening of November
8 it was raining, the lights have water spots on the tops of the units. A handwritten list of birthday
invites created by Ryan Ali was left in the back conference room. This list included various staff
within the City - Leeann Kreig, Palmer Kuder, Nikki Kimbleton, Laura McGarity, Chelsey Cain,
Mayor Curry, and Camille Johnson. Some of these staff were in attendance at the party, which was
hosted at the house of Scot Ackerman,
non-COJ employee and saw these City owned lights being used. It is believed

that Ryan Ali removed these lights from City Hall, put them in his personal vehicle which he parks
in the City Hall basement, and used these lights for his own personal use.

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OFFICE OF INSPECTOR GENERAL 2020-0002WB

WITNESS TESTIMONY

Testimony of DSE staff

According to DSE staff, on approximately November 7, 2019, or November 8, 2019, Ali asked a
DSE employee whether there was a checkout process for DSE’s lights. Ali was advised by the
employee there was not a checkout process and DSE did not lend COJ-owned equipment for
personal use.

The same DSE employee heard from another DSE employee he/she saw Ali removing the lights
from the DSE office on November 8, 2019, then later noticed there were three cases of lights
missing from the office.

Several DSE staff stated they were aware Ali had been planning a birthday party, as the invitation
list for Ali’s birthday party had been “floating around” the office for an approximate two-week
period leading up to November 8, 2019.

On an unknown date, a DSE employee who attended Ali’s birthday party, disclosed to another DSE
employee he/she saw the DSE lights being used at Ali’s birthday party on November 8, 2019. In
addition, on November 10, 2019, a DSE employee was in the office to set up for the COJ Veteran’s
Day parade, which took place on November 11, 2019, and observed two of the three missing cases
of lights were back in the office.

On November 13, 2019, during a staff meeting, a DSE staff member mentioned one of the cases of
lights was still missing. At that point, all DSE employees, including Ali, were aware the DSE lights
had been missing and some of the lights had reappeared.

Per witness testimony, during the meeting, Ali told DSE staff the lights were in the Mayor’s Office.
Subsequently, a DSE employee mentioned she was going to the Mayor’s Office for other matters,
so she would retrieve the lights. Shortly after the meeting ended, a DSE staff member saw that Ali
“darted” out of the office.

While the DSE employee was in the Mayor’s Office asking about the lights, Ali entered the Mayor’s
Office, carrying the lights. Per the DSE staff member, he/she stated Ali seemed “rattled” that the
DSE employee had beat him to the Mayor’s Office. The DSE employee believed Ali had gone to
his car and retrieved the lights so he could place the lights in Mayor’s Office.

Statement of Director, Parks, Recreation and Community Services (Parks), COJ

Regarding the use of COJ resources, the Director understood COJ property was to benefit activities
related to COJ functions. COJ employees were not authorized to use COJ resources for personal
use by COJ Ordinance Code §601.101. According to the Director, employees understood this to
be the rule. The Director could not think of any exception which would allow COJ-owned
equipment to be used for personal reasons. The Director did not recall there ever being a policy
specific to Parks regarding COJ-owned property, he figured it was “common sense;” however, he
noted it may be worthwhile to develop a policy.

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OFFICE OF INSPECTOR GENERAL 2020-0002WB

The Director further stated he had no knowledge of (or had heard rumors of) Ali having used COJ-
owned equipment for personal use, nor did he attend Ali’s birthday party. The Director indicated
he never received complaints from employees regarding Ali using COJ-owned equipment for
personal use or that they were missing from DSE. The Director did state he would not approve a
Division Chief to use COJ-owned equipment for personal use and he never received a request from
Ali to use COJ-owned equipment for personal use.

SUBJECT TESTIMONY 28

Subject Written Statement

On July 29, 2021, the OIG received the following general written statement from Ali’s legal
representative, which was not in response to specific questioning, quoted in pertinent part:

See the Subject’s full written response [Attachment C].

28
On June 16, 2021, the OIG contacted Ali’s legal representative to schedule an in-person interview regarding this
investigation. On June 21, 2021, Ali’s legal representative replied that Ali declined. Ali’s legal representative offered
to submit written responses to questions provided by the OIG. This request is inconsistent with OIG practices and
standards; therefore, Ali was not interviewed.

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OFFICE OF INSPECTOR GENERAL 2020-0002WB

RECOMMENDED CORRECTIVE ACTIONS

The OIG recommends the Director of Parks: 29

1. Establish policy prohibiting the use of government equipment for personnel use (consistent
with §602.401, COJ Ordinance Code, and provide notice of such policy department wide.
2. Create an inventory log of equipment in DSE’s storage area, along with maintaining a chain
of custody, sign-in and sign out process, with supervisory approvals. Further, consider
keeping the storage area locked with authorized access.

ADDITIONAL INFORMATION
During this investigation, the following additional information was obtained by the OIG:

In one initial WB complaint, and during OIG interviews of DSE staff, DSE staff reported Ali
insisted on hiring a vendor (Cre8Jax) (hereafter referred to as the Photographer) with whom he
was friends with to provide photography services at a COJ event. Ali paid the photographer $4,375,
an amount above the $2,500 threshold for requiring a bid and used an administrative award (artistic
award) to authorize payment that was not applicable to photography services.

The OIG interviewed several DSE staff and obtained records related to this procurement, to include
governing directives (the COJ Procurement Manual, COJ Ordinance Code, Florida Statute),
purchase orders, and Administrative Awards.

According to the governing directives, “Unless ordered by the Mayor or Council or otherwise
required by the Jacksonville Ordinance Code, the following supplies, contractual services,
professional design services, professional services, capital improvements and/or sales transactions
are exempt from competitive solicitation,” such as, “Artistic services or performances…”

Records reviewed and testimony revealed the following:

 A Purchase Order (PO) #PO01570, dated October 4, 2019, in the amount of $4,375 was
issued to the Photographer.
 The Administrative Award (#AD-0004-20) attached to the above-mentioned purchase
order, was intended for “various performers and artists for various events by [DSE] during
FY20” not to exceed expenditures of $755,000. Also, attached to the award, was May 21,
2019, memorandum from the Director of Organizational Effectiveness to the Chief of
Procurement, requesting to utilize the artistic services exemption process for the purpose of
securing the time and efforts of various performers and artists for various events.

 DSE staff testified that in approximately July or August of 2019, Ali instructed DSE staff
to hire a specific photographer (the Photographer) for the 2019 Florida versus Georgia

29
Recommendations for policy development or enhancements should be made in consultation with the Office of
General Council and the Office of Ethics, as necessary.

Page 29 of 31
OFFICE OF INSPECTOR GENERAL 2020-0002WB

(FLGA) football game, a city event organized and hosted by DSE. The Photographer was
hired for the FLGA game using the administrative award AD-0004-20, an artistic
exemption, which was to include roaming entertainment, local bands, face painters, tribute
bands piano performances, poster creation, speakers, aerial performers, etc. Subsequently,
PO #PO01570, as mentioned above, was issued to the Photographer.

 The Chief of Procurement testified certain services are not suitable for competitive
procurement, such as hiring a specific performer for an event. The COJ policy regarding
artistic exemptions is derived from and mirrors Florida Statute exemptions; specifically, that
artistic services are exempt from competition. According to Chief of Procurement, there is
a “grey area” for determining whether something is art. It is the responsibility of the
Department to make that determination, then submit a memorandum requesting an
administrative award under the artistic exemption. The Procurement Division (typically the
Buyer) will review and approve or deny the request.

 According to Chief of Procurement, he stated DSE is unique because they require frequent
utilization of artistic exemptions. Historically, DSE was required to submit an artistic
exemption request for each use (service or performer); however, because DSE had to submit
such a large quantity, and given the expeditious timing of special events, the Chief of
Procurement authorized for DSE to submit blanket requests to cover all artistic services for
multiple events per fiscal year.

 OIG provided the Chief of Procurement a copy of Purchase Order #PO01570 in the amount
of $4,375 for the Photographer for his review. He stated his initial thought was this PO
should not have been authorized by #AD-0004-20 (Administrative Award). He stated
although photography “could be” considered artistic services, the Award #AD-0004-20
appeared to be intended for performers. He further stated it was not prohibited to use this
award for this PO but agreed the process could be improved to strengthen controls in order
to prevent abusing the exemption for artistic services, such as defining artistic services in
the COJ Procurement Manual.

IDENTIFIED, QUESTIONED, AND AVOIDABLE COSTS

Total Questioned Costs: $3,750 (Vendor 1)

The amount of $3,750 was derived from a review of the amount paid by COJ to settle a debt Ali
incurred when he improperly procured services from the Vendor for the Jacksonville Jazz Fest
Logo.

Turnover costs are not calculated by COJ Human Resources.

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OFFICE OF INSPECTOR GENERAL 2020-0002WB

WHISTLE-BLOWER’S COMMENTS
WB1 reviewed the draft report of investigation and declined to comment.

WB2 reviewed the draft report of investigation and declined to comment.

WB3 reviewed the draft report of investigation and declined to comment.

WB4 declined the opportunity to review the draft report of investigation.

WB5 declined the opportunity to review the draft report of investigation.

WB6 reviewed the draft report of investigation and declined to comment.

WB7 declined the opportunity to review the draft report of investigation.

SUBJECT’S RESPONSE
On March 29, 2022, the OIG provided a copy of the draft report of investigative findings to Ali’s
legal representative. On April 15, 2022, the OIG received a written response from Ali’s legal
representative. The OIG reviewed the response and determined there was not sufficient information
to change the OIG’s findings. The subject response is attached in its entirety to this report.

LAW ENFORCEMENT NOTIFICATION

On September 16, 2020, the OIG presented case information to the State Attorney’s Office For The
Fourth Judicial Circuit (SAO) for further evaluation of potential criminal behavior uncovered
during the investigation. The SAO declined to pursue the case criminally.

INSPECTOR GENERAL STANDARDS

This investigation has been conducted in accordance with the ASSOCIATION OF

INSPECTORS GENERAL Principles & Quality Standards for Investigations.

Attachments:
A. Governing Directives
B. Records Reviewed
C. Subject Written Statement, dated July 29, 2021
D. OIG Memo
E. Memo Response
F. Subject Response, dated April 15, 2022

Page 31 of 31
 ATTACHMENT A
GOVERNING DIRECTIVES
2020-0002WB

APPLICABLE TO ALL:

COJ Ordinance Code

Sec. 2.101 Oaths of Public Officials

The Mayor, all Council Members, all appointed employees confirmed by Council, and all
appointees to non-advisory Boards and Commissions of the City, before entering upon the duties
of the office, shall sign an oath, swearing or affirming the following:

"I do solemnly swear (or affirm) that I am duly qualified to hold office under the Constitution of
the state, or of the Charter or Ordinance Code of the City of Jacksonville; that I will support,
protect, defend and honor the Constitutions, Governments, and laws of the United States and of
the State of Florida; that I will support, protect, defend and honor the Charter, the ethics laws,
and other ordinances, rules, and regulations of the City of Jacksonville; and that I will well and
faithfully perform the duties of (title of office) on which I am now about to enter. So help me
God."

ALLEGATION 1: COJ PROCUREMENT CODE VIOLATIONS

City of Jacksonville Ordinance Code

Chapter 126, Procurement Code

• Sec. 126.205. Informal purchases and sales transactions

Section 126.109 of the COJ Ordinance Code, and Section XV of the COJ Procurement
Manual, states verbatim, in part:

It shall be unlawful for any officer or employee of the City to order the purchase
of any supplies or to make any contract in any manner contrary to the provisions
of the Procurement Code…

City of Jacksonville Policies, Procedures, and Other Related Documents

COJ Procurement Manual

• Sec. 126.109 Unauthorized purchases and contracts

The COJ Procurement Manual, Revised October of 2020, Section IV, states verbatim, in part:

The procedures described in this section are directed for processing of informal
purchases and are to ensure that we: (i) obtain quality goods and services at competitive

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 GOVERNING DIRECTIVES 2020-0002WB (CONTINUED)

prices; (ii) conduct a solicitation and review process that does not abuse the informal
system of purchasing; (iii) fulfill the obligation to provide the quickest response to
customer needs; and (iv) provide fair opportunities to prospective suppliers and
contractors in the competitive process. As a condition precedent to an informal purchase
hereunder, a using agency must obtain an Administrative Award, which is an official
award document used to authorize the Office of General Counsel to begin the contract
process for purchases made hereunder, that do not exceed the applicable formal
threshold and that will be executed using a purchase order, contract or authorized check
request.

ALLEGATION 2: WORKPLACE VIOLENCE

City of Jacksonville Employee Services Directives

Workplace Violence, Directive – 0532,

The COJ Workplace Violence, Directive 0532, established January 28, 2019, revised April 30,
2019, and September 24, 2020, states in part, verbatim:

THE CITY OF JACKSONVILLE IS COMMITTED TO MAINTAINING A

WORKPLACE THAT IS FREE FROM VIOLENCE OR THREAT OF
VIOLENCE. THERE WILL BE ZERO TOLERANCE OF ACTS OR
THREATS OF VIOLENCE IN OUR WORKPLACE.

Any violent behavior or behavior that creates a climate of violence, hostility,

or intimidation will not be tolerated, regardless of origin. Proactive measures
will be taken to minimize the potential for violent acts. Each and every act or
threat of violence will result in an immediate and firm response that could
include termination from employment.

Conduct prohibited by this policy includes, but is not limited to, the following
behaviors and situations:

• Threatening, abusive or harassing phone calls

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 GOVERNING DIRECTIVES 2020-0002WB (CONTINUED)

• Displaying aggressive or hostile behavior that creates a reasonable fear of injury

to another person or subjects another individual to emotional distress
• Stalking
• Verbal intimidation
• Threatening acts or abusive language that leads to tension within the work
environment

Enforcement:

Threats, threatening conduct, acts of aggression or violence, or any behavior

that could reasonably be perceived as such in or affecting the workplace,
regardless of intent, will not be tolerated. Any employee determined to have
committed such acts will be subject to immediate disciplinary action up to and
including termination…

Anti-harassment and Discrimination Policy and Complaint Procedure, Directive – 0528

The Anti-harassment and Discrimination Policy and Complaint Procedure, established August
5, 2019, revised April 30, 2019 and November 27, 2019 states in part, verbatim:

Reporting an Incident of Harassment, Discrimination or Retaliation

The City of Jacksonville encourages reporting of all perceived incidents of discrimination,

harassment or retaliation, regardless of the offender's identity or position. If an employee feels
that he or she has been harassed based on his or her sex, race, national origin, ethnic
background, or any other legally protected characteristic, the employee should immediately
report the matter to his or her supervisor. If that person is not available, or if the employee feels
it would be unproductive to inform that person, the employee should immediately contact the
City’s Office of Equal Opportunity/Equal Access and the Employee and Labor Relations
Division of Employee Services by one of the methods listed below. Once the matter has been
reported, the City of Jacksonville will promptly investigate and take necessary corrective action
where appropriate. All complaints of unlawful harassment will be handled in as discreet and
confidential manner as possible under the circumstances. See the complaint procedure described
below.

In addition, the City of Jacksonville encourages individuals who believe they are being subjected
to such conduct to promptly advise the offender that his or her behavior is unwelcome and
request that it be discontinued. Often this action alone will resolve the problem. If the individual
does not wish to communicate directly with the offending person, or if such communication has
been ineffective, the individual should report the allegations of harassment using the complaint
procedure outlined in this directive.

Complaint Procedure

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 GOVERNING DIRECTIVES 2020-0002WB (CONTINUED)

Individuals who believe they have been the victims of conduct prohibited by this policy or who
believe they have witnessed such conduct should discuss their concerns with their immediate
supervisor. An employee may also simultaneously report the conduct directly to:

• Office of Equal Opportunity/Equal Access, City Hall, Suite 350, (904) 255-5377,
confidential email to Anti-Discrimination Harassment Reporting [email protected]; and
• Employee Services Department, Employee and Labor Relations Division, City Hall, Suite
100, (904) 255-5640, confidential email to Employee and Labor Relations
[email protected]. If the victim’s immediate supervisor is the alleged harasser, the
individual may discuss his or her concerns with a manager, division chief, or director
within the department. The manager, division chief, or department director has a
responsibility to immediately and confidentially notify the City’s Office of Equal
Opportunity/Equal Access and the Employee and Labor Relations Division of the
conduct.

The City of Jacksonville encourages the prompt reporting of complaints or concerns so that
rapid and constructive action can be taken before relationships become irreparably strained.
Early reporting and intervention has proven to be the most effective method of resolving actual
or perceived incidents of harassment. Therefore, employees are urged to report their concerns as
soon as possible.

Any reported allegations of harassment, discrimination or retaliation will be investigated

promptly by the City’s Office of Equal Opportunity/Equal Access. Depending on the nature of
the allegations and what the initial investigation discloses, the Office of Equal
Opportunity/Equal Access and the Employee and Labor Relations Division may conduct a joint
investigation. The investigation may include individual interviews with the parties involved and,
where necessary, with individuals who may have observed the alleged conduct or may have
other relevant knowledge.

Confidentiality will be maintained throughout the investigatory process to the extent consistent
with the City of Jacksonville’s responsibility to conduct an adequate and fair investigation and to
take appropriate corrective action.

Retaliation against an individual for reporting harassment or discrimination or for participating

in an investigation of a claim of harassment or discrimination is a serious violation of this policy
and, like harassment or discrimination itself, will be subject to disciplinary action. Acts of
retaliation should be reported immediately and will be promptly investigated and addressed.
Misconduct constituting harassment, discrimination or retaliation will be dealt with
appropriately. Responsive action may include, for example, training, referral to counseling
and/or disciplinary action such as a reprimand, withholding of a promotion or pay increase,
reassignment, temporary suspension without pay or termination, as the City of Jacksonville
believes appropriate under the circumstances.

Conclusion

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 GOVERNING DIRECTIVES 2020-0002WB (CONTINUED)

The City of Jacksonville has developed this policy to ensure that all its employees can work in an
environment free from unlawful harassment, discrimination and retaliation. By widely
disseminating this policy to all City of Jacksonville employees and anyone representing the City
of Jacksonville on business, such as volunteers, contract workers

ALLEGATION 3: FALSIFICATION OF TIME AND ATTENDANCE RECORDS

Florida Statute

Chapter 838, Bribery; Misuse of Public Office

• §838.022, Official Misconduct

(a) Falsifying, or causing another person to falsify, any official record or official document.

City of Jacksonville Ordinance Code

Chapter 602, Jacksonville Ethics Code

• §602.201, Definitions
• §602.401, Misuse of position, information, resources, etc.

ALLEGATION 4: MISUSE OF COJ RESOURCES

Florida Statute

Chapter 812- THEFT, ROBBERY, AND RELATED CRIMES

§812.014, Theft
A person commits theft if he or she knowingly obtains or uses, or endeavors to obtain or to use,
the property of another with intent to, either temporarily or permanently:

(a) Deprive the other person of a right to the property or a benefit from the property.
(b) Appropriate the property to his or her own use or to the use of any person not
entitled to the use of the property.

City of Jacksonville Ordinance Code

Chapter 601, Offenses Against Operation of Government

• §601.101, Use of Public Property

It is unlawful for an officer or employee of the City or an independent agency to

knowingly use property owned by the City or an independent agency for his or her
personal benefit, convenience or profit, except in accordance with policies promulgated
by the council or by the governing body of the independent agency owning the property.

Chapter 602, Jacksonville Ethics Code

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 GOVERNING DIRECTIVES 2020-0002WB (CONTINUED)

• §602.201, Definitions
• §602.401, Misuse of position, information, resources, etc.

(d) City Officers, employees and independent contractors should recognize their responsibility to
protect and conserve City property and resources, and to make an honest effort to use official
time and City property only for official business. To that end:
(1) Misuse of property. It is a violation of this Chapter for an officer, employee or
independent contractor of the City or an independent agency to knowingly use property
owned by the City or any independent agency for his or her personal benefit, convenience
or profit, or for the benefit, convenience or profit of others, except in accordance with
official written City policies or ordinances.

ADDITIONAL INFORMATION:

Florida Statute

287.057 Procurement of commodities or contractual services. —

§287.057, (3)(e)(1) Artistic services. As used in this subsection, the term “artistic services” does
not include advertising or typesetting. As used in this subparagraph, the term “advertising”
means the making of a representation in any form in connection with a trade, business, craft, or
profession in order to promote the supply of commodities or services by the person promoting
the commodities or contractual services.

City of Jacksonville Ordinance Code

Chapter 126, Procurement Code

• Sec. 126.107. Exemptions

Sec. 126.107. - Exemptions.

Unless ordered by the Mayor or Council or otherwise required by the Jacksonville Ordinance
Code, the following supplies, contractual services, professional design services, professional
services, capital improvements and/or sales transactions are exempt from competitive
solicitation:

(a) Artistic services or performances; …

City of Jacksonville Ordinance Code

COJ Ordinance Chapter 126, Procurement Code, Sec. 126.107, Exemptions, states in part
verbatim:

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 GOVERNING DIRECTIVES 2020-0002WB (CONTINUED)

Unless ordered by the Mayor or Council or otherwise required by the Jacksonville Ordinance
Code, the following supplies, contractual services, professional design services, professional
services, capital improvements and/or sales transactions are exempt from competitive
solicitation:
(a) Artistic services or performances…

City of Jacksonville Procurement Manual

The COJ Procurement Manual, Revised October of 2020, states verbatim, in part:

Unless ordered by the Mayor or Council or otherwise required by the Jacksonville Ordinance
Code, the following supplies, contractual services, professional design services, professional
services, capital improvements and/or sales transactions are exempt from competitive
solicitation:
(a) Artistic services or performances…

Page 7 of 7
 ATTACHMENT B

RECORDS REVIEWED
2020-0002WB

FINDING 1:

Vendor Quotes and Invoices related to the Jazz Fest Logo

During the investigation, the OIG obtained copies of multiple versions of invoices and quotes
related to work performed by Vendor for Job Number 2870 - Jax Jazz Fest Logo” as detailed
below:

Invoice dated February 29, 2020

Date Invoice Amount Description

Number
Component 001- Jax Jazz Fest Logo
February 29, 2020 45134 $6,250 Account service
Creative direction.

Quotes dated July 7, 2020

Date Quote Amount Description

Number
Branding, Review. Analysis and Strategic
July 7, 2020 45134-1 $2,500
Direction for Jazz Festivals.
July 7, 2020 45134-2 $1,250 Logo Concept for Jazz Festival
Art Direction and Creative Design for Jazz
July 7, 2020 45134-3 $2,500 Festival Logo Final Concepts and Design
Guidelines

Invoices dated July 7, 2020

1
 ATTACHMENT B

RECORDS REVIEWED
2020-0002WB

Date Invoice Amount Description

Number
Branding, Review. Analysis and Strategic
July 7, 2020 45134-1 $2,500
Direction for Jazz Festivals.
July 7, 2020 45134-2 $1,250 Logo Concept for Jazz Festival
Art Direction and Creative Design for Jazz
July 7, 2020 45134-3 $2,500 Festival Logo Final Concepts and Design
Guidelines

Invoices dated August 25, 2020

Date Invoice Amount Description

Number
August 25, Branding, Review. Analysis and Strategic
45134-1 $2,500
2020 Direction for Jazz Festivals.
August 25, Logo Concept for Jazz Festival
45134-2 $1,250
2020
Art Direction and Creative Design for Jazz
August 25,
45134-3 $2,500 Festival Logo Final Concepts and Design
2020
Guidelines

Timeline Summary1

October - November of 2019

• According to the Vendor Employee Direct Time Report records, the Vendor completed
work for the Jazz Fest logo.
February 29, 2020

• Manager sent the initial invoice (#45134) dated February 29, 2020, in the amount of
$6,250 for “Jax Jazz Fest Logo” (Job Number 28270) via regular postal mail service to
COJ.

1
The timeline summary reflects information obtained from the following records: Records provided by Ali in response to a
Public Records Request for his personal cellular telephone records related to COJ business; Ali’s COJ e-mails; Ali’s COJ
calendar; Vendor 1 internal records; Text Messages provided by Vendor 1 President/ Partner.

2
 ATTACHMENT B

RECORDS REVIEWED
2020-0002WB

March 18, 2020 2

• Text messages between Ali and the Vendor President/ Partner (Partner):

Ali
V1

Ali
V1

Ali

Ali
V1

April 21, 2020

Ali

May 1, 2020

• The Vendor Internal Note entered by Manager:

Invoice 45134 billed to City of Jax. [The Vendor Partner] has had several conversations
with Ryan Ali. I tried speaking with him today and he hung up on me. [the Vendor
Partner] will handle invoice 45134.

2 Some events have specified dates and times if they were available on the corresponding record. All other events are placed in
the approximate order of occurrence.

3
 ATTACHMENT B

RECORDS REVIEWED
2020-0002WB

• Text messages between Ali and the Vendor President/ Partner (V1):

V1

Ali

V1

Ali

May 5, 2020

V1

Ali

July 6, 2020

Ali

July 7, 2020

• the Vendor Internal Note entered by Manager:

“Invoice 45134 amount had to be broken down and resubmitted on three separate draft
invoices. Revised and [Manager] sent to client.”

• Text messages between Ali and Partner (V1):

4
 ATTACHMENT B

RECORDS REVIEWED
2020-0002WB

V1

July 8, 2020

• the Vendor Partner e-mailed the Jazz Fest logo files to Ali and Ali asked DSE staff to
confirm the files opened properly.
July 13, 2020

• Text messages between Ali and Partner (V1):

V1

Ali

July 15, 2020

• Marketing Manager scanned the Jazz Fest logo quotes and attached them to an e-mail to
Ali stating the following: “I just want to confirm that I am creating [Purchase Requests
(PRs)] for all three of the attached quotes. Let me know and I’ll get the PRs to you for
signatures.”

• Ali replied to the Marketing Manager’s e-mail:

“not the $1250 one. What is that even. Submit the first quote for $2500 first.”

July 21, 2020

• Marketing Manager completed a Purchase Request for $2500 which was approved by Ali
(printed his name, no actual signature). Marketing Manager e-mailed the Purchase
Request to the DSE Accounting Manager (Accounting Manager) stating, “Attached is a
PR that needs to have a PO cut. Please let us know and send us the PO once you receive
it.”

August 17, 2020

5
 ATTACHMENT B

RECORDS REVIEWED
2020-0002WB

• 9:08 a.m., Voicemail message from the Vendor Partner to Ali: "Hey it's [Partner]…this
is about 9:10 on Monday give me a call when you get a chance I've got a couple things so
I wanted to run by you thanks bye ... "

• 9:16 a.m. Marketing Manager e-mailed Ali: “Attached are the quotes for you again. You
had me create a PR for the first one, Quote #45134-1.”

• 9:19 a.m., Text messages between Ali and Partner (V1):

Ali

August 25, 2020

• 2:23 p.m. Text Messages between Ali and the Vendor Partner:

Ali

V1

Ali

• 3:03 p.m., Manager e-mailed Ali three invoices dated July 7, 2020.

• 3:20 p.m., Manager e-mailed Ali: “I’ve [revised] the dates on the invoices.” Attached to
the e-mail were three invoices in the amounts of $2,500, $2,500, $1,250, dated August
25, 2020.

6
 ATTACHMENT B

RECORDS REVIEWED
2020-0002WB

• The following note was entered into the Vendor’s internal system by Manager: “Had to
resubmit from drafts to saying invoices and revise date to today’s date. I’ve e-mailed
invoices to Ryan.”

• 3:52 p.m.: Ali e-mailed Marketing Manager, forwarding the three updated the Vendor
invoices, dated August 25, 2020.

August 26, 2020

• 8:50 a.m. Marketing Manager responded to the August 25, 2020 e-mail which included
the three the Vendor invoices: “What would you like me to do with these? I’ve only
submitted a purchase request for the first one from your direction and I remember [a
DSE employee] brought up concern about multiple payments. Can you please give me
some direction as I haven’t been in these conversations with [the Vendor]?”

• 8:56 a.m. Ali replied to Marketing Manager :

Move forward with the one invoice that goes with the quote that was submitted. I have a
call into Greg [Gregory Pease, Chief, Procurement Division, COJ] about the other 2
invoices.
August 27, 2020

• 9:47 a.m. Marketing Manager replied to Ali:

I feel uncomfortable separating these invoices that came together and sending any of
them without the knowledge of them. Could you please handle it with finance directly?

Improper/ Unauthorized Purchase Memorandum 3

3
Any purchase which is determined to be in violation of the Procurement Code will be forwarded to the Chief of
Procurement by cover memorandum or letter, acknowledged by the Director of the issuing department and setting
forth the following: (i) brief description of the circumstances that resulted in the improper purchase; (ii) corrective
action taken or to be taken to preclude recurrence; and (iii) recommended disposition as to payment for the
improperly purchased goods/services. The Chief of Procurement shall forward those purchases determined to be
improper or unauthorized, along with justification from the using agency, to the Mayor’s Office for approval of a
recommended disposition, as well as any recommended disciplinary measures. A copy of this recommendation will
also be furnished to the Council Auditor. Upon receipt of approval from the Mayor or his designee, the same shall
be forwarded to the using agency and processed for immediate payment.

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On December 11, 2020, in response to the unpaid invoices, the COJ issued payment to the
Vendor as an Improper Purchase. The COJ paid invoices #45134-2 and 45134-3 which totaled
$3,750 for the Jazz Fest Logo. The Improper Purchase document disclosed the following details:

FINDING 2:

DSE Personnel Records (Turnover)

From July 1, 2019, to September 16, 2020 (approximately 14.5 months), during the time Ali
oversaw DSE, seventeen (17) employees departed from DSE: thirteen (13) DSE employees
resigned, two (2) DSE employees transferred to different COJ departments, one (1) DSE
employee was terminated (because he walked off the job), and one (1) employee retired.

Labor Relations Investigation File for Ali

On July 30, 2020, the OIG contacted Labor Relations Officer assigned to DSE (DSE LRO) and
requested the investigation file (documented related to an investigation or fact-finding conducted
by Labor Relations) for Ali. The DSE LRO advised that there was no investigation file for Ali.

Notes documented by the Human Resources Business Partner (HR Business Partner) 4

On January 7, 2021, the HR Business Partner provided a copy of her handwritten notes from a
meeting that occurred on or about September 24, 2019. 5

According to the notes, the following issues were discussed during the September 2019 meeting:
Ali was described as narcissistic; Ali was bullying employees; and Ali was threatening
employees. DSE staff provided examples of Ali’s remarks, such as, “Do you want me to send
you home in tears like I did another one today?” 6

4
A Human Resources Business Partner serves as a centralized personnel manager and consultant for designated COJ
departments and works under Talent Management within the COJ Employee Services Department.
5
The HR Business Partner’s handwritten notes indicated this meeting took place on September 26, 2019; however,
according to other documentation obtained by the OIG, it was determined this meeting likely took place on
September 24, 2019.
6
This quote was from the HR Business Partner’s interpretation of the handwritten notes during her OIG interview.

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Notes documented by the DSE Labor Relations Officer (DSE LRO)

On August 30, 2020, the DSE LRO provided a copy of handwritten notes from the September
24, 2019 meeting and other documents regarding the DSE employee complaints, including a
bullet list summary that alleged Ali’s behavior “creates a hostile work environment and depletes
staff morale.”

Notes documented by the Director of Parks

On July 30, 2020, the OIG requested all notes documented by the Director of Parks regarding his
counseling of Ali. On August 4, 2020, the Director of Parks telephoned the OIG and stated he
did not have notes from his meetings with Ali. The Director of Parks subsequently sent the
following e-mail quoted verbatim in pertinent part:

Below are the dates that I met with Ryan Ali (Chief) and/or members of the
Sports and Entertainment Team. I do not have notes from the various
meetings. Please let me know if you need anything additional.

Text Messages Provided by Witnesses 7

The OIG reviewed various text messages provided by witnesses which disclosed the following:

A text messages conversation in which Ali stated to an employee:

7
Ali did not provide any of the above referenced messages in response to an OIG Public Records Request for “Any
and all records related to City of Jacksonville official business either maintained in hardcopy form and/or
maintained on any personal electronic devices….”

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Employee

Ali

Ali

A text message from Ali to a DSE employee in which he offered to bring the employee a wig so
that the employee’s hair would look suitable for a meeting:

Ali
…

Ali

Multiple text messages Ali sent to a Employee 2’s mother over several days after the date
Employee 2 made a complaint to the Director of Parks regarding Ali (December 9, 2019:

December 18, 2019

10:27 p.m.: Ali sent text messages to a DSE employee’s mother stating that he was in trouble
because of the DSE employee. Ali said the following, “I’m still completely baffled she went to
my boss. And now this has turned into an HR disaster.”

Ali

Ali

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The text message records also disclosed a conversation between Employee 2 and the Director of
Parks, in which Employee 2 sent a screen capture photograph of the telephone call record when
Ali called the employee after the employee’s meeting with the Director, as well as a summary of
their (Ali and the DSE employee) conversations. (See record review of Text Messages Provided
by the Director of Parks.)

Text Messages Provided by the Director of Parks

During the Director of Parks’ OIG interview, he was asked to search and read aloud text
messages from a DSE employee. The OIG subsequently requested a copy of the text messages
the Director found and read during the interview.

The text message records disclosed that the Director of Parks received the following text
messages from a DSE employee on December 10, 2019 (one day after the DSE employee
reported their complaints regarding Ali to the Director of Parks):
Provided by Employee 2:

Employee 2

Director

Note: During the OIG interview the OIG asked the Director of Parks read the above-mentioned
text messages verbatim. When the OIG later requested the text message records from the
Director of Parks, the last message which read “wow” no longer appeared in the text messages.
The OIG questioned the Director of Parks regarding the missing message, to which the Director
replied, he did not know why it was missing.

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Provided by the Director:

Employee 2

Text message
from the Director,
“wow” missing.

Resignation Letter of Employee 1

An OIG review of records revealed the following photograph of Employee 1 and the resignation
Ali allegedly created and instructed Employee 1 to sign. Employee 1 and Employee 1’s name
have been redacted from the photograph.

COJ E-mail Regarding an Additional Allegation by Employee 1

On June 25, 2020, Labor Relations received an additional complaint regarding Ali:
A COJ Labor Relations Officer.

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Chief of Employee and Labor Relations.

On June 25, 2020, the Chief of Employee and Labor Relations forwarded the above-mentioned
e-mail to the Director of Employee Services (who forwarded it to the Director Organizational
Effectiveness). One the same date, Chief of Employee and Labor Relations forwarded the
message to the Director of Parks:

Chief of Employee and Labor Relations

Director of Parks
Director of Employee Services

Director of Parks

Chief of Employee and Labor Relations

Director of Employee Services

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FINDING 3:

The OIG reviewed various records, including applicable state statutes and municipal ordinances,
COJ policies, procedures, and other records, including COJ employee Microsoft Outlook e-mails
and calendars, time and attendance records, COJ badge access records, and open-source records.

Time and Attendance System (TAS) Records

A review of Ali’s Time and Attendance records disclosed that Ali documented eight (8) work
hours for October 17, 2019, and eight (8) work hours for October 18, 2019.

Badge Access Records

A review of Ali’s St. James City Hall (City Hall) badge access records disclosed that on October
17, 2019, at 9:08 a.m., Ali was granted access into City Hall’s main entrance. At 9:17 a.m., Ali
was granted access into the DSE office, which at that time was located on the second floor of
City Hall. There was no other badge activity for October 17, 2019. The records disclosed that
Ali had no badge activity for October 18, 2019, for any COJ facilities.

COJ Employee Microsoft Outlook E-mails

A review of Ali’s COJ e-mails revealed an October 17, 2019 e-mail communication between Ali
and a DSE employee in which Ali told the DSE employee, he (Ali) would be in the office during
the morning of October 17, 2019, and would be at a board training all day on October 18, 2019.
In the e-mail, Ali mentioned he would electronically sign any documents requiring his signature.

Ali’s COJ Microsoft Outlook Calendar

A review of Ali’s COJ Microsoft Outlook calendar disclosed the following:

October 17, 2019

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Thursday, October 17, 2019

7:00 AM
7:30 AM
8:00 AM
8:30 AM
9:00 AM [DSE Employee] 1:1
9:30 AM
10:00 AM
10:30 AM Block
11:00 AM
11:30 AM
12:00 PM
12:30 PM CCGCJ Board of
1:00 PM Directors
1:30 PM Meeting
2:00 PM
2:30 PM
3:00 PM
Board
3:30 PM
Interviews
4:00 PM
4:30 PM
5:00 PM
5:30 PM
OIG Note:

A review of the UNF website, Ali was not listed as a Board of Trustee Member or an absentee
member for any meetings that took place on October 17, 2019.

A review of the CCGJ meeting minutes for October 17, 2019, disclosed that Ali was listed as a
“Board Members Absent.”

October 18, 2019

Entries for October 18, 2019, disclosed that Ali updated his calendar multiple times between
October 16, 2019, and October 18, 2019. The following graphic displays three different versions
based on changes made from October 16, 2019 through October 18, 2019.

Based on the above, the OIG noted the following:

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Note: This event

was added to Ali’s
calendar after the
event occurred.

OIG Note:

A review of Ali’s Jax Chamber member involvement records, there was no record associated
with the October 18, 2019 meeting.
A review of the UNF website disclosed that there were no records of UNF Board of Trustees
meetings or workshops for October 18, 2019.

Open-Source Information and Social Media Records

A review of open-source and social media records disclosed that on October 19, 2019, Ali posted
photographs to his personal Instagram account (a social media platform) of an event held in New
Orleans, Louisiana. Ali included the following caption beneath the photographs, “Honored to
have been in the company of friends, family and students for the dedication… at Tulane
University…” Ali geographically tagged a specific restaurant located in New Orleans.

On October 20, 2019, Ali posted photographs and geographically tagged a specific hotel located
in New Orleans.

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OIG Note:

A review of Tulane University MakerSpace Event Details disclosed that event was advertised to
take place on Thursday, October 17, 2019, from 5:00 p.m. to 6:30 p.m. at Tulane’s Uptown
Campus (6823 St. Charles Avenue, New Orleans, Louisiana, 70118).

FINDING 4:

COJ Video Footage

The OIG reviewed the corresponding COJ video coverage related to the above-
referenced badge access records which disclosed the following:

November 8, 2019
Time
9:38 a.m. Ali entered City Hall via basement elevator doors.
9:48 a.m. Ali walked out of City Hall via basement elevator doors with
one case of lights.
9:49 a.m. Ali again entered City Hall via basement elevator doors.
9:55 a.m. Ali walked out of City Hall with a second case of lights via
basement elevator doors.
9:57 a.m. Ali again entered City Hall via basement elevator doors.

10:33a.m. Ali walked out of City Hall via basement elevator door with a
third case of lights.
November 8, 2019
Time
5:35 p.m. Ali arrived and entered at City Hall via parking garage gate with
two cases of lights.
5:41 pm. Ali walked out of City Hall via parking garage gate.
November 8, 2019

Time
11:39a.m. Ali entered City Hall via basement elevator lobby with one
case of lights.

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Time
11:41a.m. Ali entered the Mayor’s Office Suite City Hall 4th Floor with
the case of lights and had an interaction with DSE employee
and a Mayor’s Office Staff member.

OIG Note:

A review of Ali’s COJ Badge Access Records corroborated the above activity.

A review of Ali’s COJ Time and Attendance System (TAS) Records disclosed
that Ali did not document work hours for Saturday, November 9, 2019.

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Employee 2’s
Mother
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