Read investigative report here.
BY MARK J. CRAWFORD
Former Starke Chief Administrative Officer Jimmy Crosby created a “hostile work environment” during his time at city hall, according to an investigative report released July 24.
The report, conducted by attorney Meagan L. Logan of Douglas and Douglas Law, documents a pattern of bullying, retaliation, manipulation and inappropriate conduct involving multiple employees and city operations.
The investigation began following public accusations made by Commissioner and former City Manager Bob Milner during a May 6 city commission meeting. Milner called for Crosby’s termination, citing a culture of fear, ethical violations, and interference with city operations and elections. Crosby was placed on paid administrative leave. He resigned before the investigation concluded.
Despite the resignation, Logan was asked to complete the report, which focused on two allegations: creation of a hostile work environment and unauthorized formation of a recreational advisory committee.
The second allegation was quickly dismissed. While the idea of forming a committee with city, Bradford County and Tourist Development Council representation was discussed at a TDC meeting, Crosby did not form such a committee without the commission’s input.
The third issue raised by Milner, Crosby’s prior criminal history and failure to have his rights restored prior to taking office, was determined to be insufficient grounds for termination, though it was also noted in the report.
The rest of the report examines complaints about Crosby’s leadership.
‘Manipulative,’ ‘controlling’ and ‘bullying’ behavior
Logan interviewed more than 20 current and former employees and business associates, many of whom requested anonymity for fear of retaliation. Witnesses described Crosby as a narcissistic and controlling figure who ruled through intimidation. One employee called him “manipulative, evil and controlling,” while others described “walking on eggshells” and avoiding Crosby on bad days to minimize confrontations.
Crosby defended his management style as one driven by high standards and pursuit of excellence. He acknowledged using profanity, including “damn,” “hell” and worse but said it was not directed at anyone specifically and was comparable to language used in PG-13 movies.
Yet employees recalled screaming, slammed doors and even having to apologize to customers who overheard Crosby’s outbursts from the city hall lobby. One employee compared Crosby’s behavior to tactics used by prison inmates to divide and control others.
Crosby was also accused of threatening employees’ jobs, boasting that it took “four votes to fire me and only one to fire you.”
Targeting and undermining staff
The report documented instances where Crosby attempted to isolate or force out employees through reassignment, public belittlement and psychological pressure.
One example centered on longtime city employee Terry Anderson. Despite her 30-year tenure, Crosby reportedly referred to her as a “trainwreck,” cut her department staff and denied her raise requests. When attempts to push her out failed, he transferred her to Finance Director James Hughes and then to General Manager Drew Mullins with the instruction to “fire her fat ass.” Both men refused.
Mullins, who became general manager after the city split administrative duties between him and Crosby, was also a frequent target. Employees described Crosby as regularly undermining Mullins and psychologically wearing him down as he sought more control. Mullins and Hughes were said to have received the brunt of Crosby’s anger.
‘I am the commission’
Crosby is said to have boasted about manipulating city commissioners and controlling the direction of the city behind the scenes. “I am the commission,” he reportedly told staff when challenged about unilateral decisions. He allegedly threatened high-ranking employees with commissioner votes for termination and claimed to have compromising information that would assure him one commissioner’s vote.
Employees alleged Crosby selectively disclosed or manipulated information presented to the commission to sway votes. In one case, they said he pushed to disband the fire department and asked staff to alter financial data to justify the move. One employee recalled him saying, “Treat ’em like mushrooms — keep ’em in the dark and feed ’em shit.”
Crosby was also accused of directing employees to influence independent boards. In a zoning case, staff said Crosby asked them to pressure the Planning and Zoning Board to vote against a family’s application because it did not align with his interpretation of code, despite disagreement from the building department.
Election-year interference
The report also outlines how Crosby allegedly delayed ordinances, such as building fee increases, to benefit sitting commissioners seeking reelection. Though Crosby admitted to a roughly three-week delay, employees said the issue sat dormant for over a year. Crosby claimed he acted alone, without direction from commissioners, and was using good judgment by not placing controversial decisions before the commission so close to qualifying.
Additionally, staff reported being ordered to avoid citing properties in Reno, a neighborhood within Commissioner Janice Mortimer’s district, especially during election years. Employees also described a ride-along with Mortimer where citations were targeted based on property ownership.
Mortimer and Commissioner Scott Roberts were also implicated in efforts to terminate Anderson.
Discriminatory comments and harassment
Numerous allegations of sexual harassment, racism and ageism also surfaced. Male employees said Crosby frequently commented on the appearance of female coworkers, remarking on their physical attributes and thoughts about having sex with them. Though Crosby denied such remarks, employees said women were often informed of them secondhand.
A resignation letter from former employee Kayla Young cited gender-based bias, pregnancy discrimination, and the withdrawal of previously approved paid time off.
Crosby was also accused of racial insensitivity. In one case, he referred to a Black male employee as “boy,” prompting a complaint from another staff member. He later apologized, stating he used the term because the employee was younger. Multiple witnesses said Crosby commented he could “get [Black employees] for cheap,” which he denied, claiming he was highlighting systemic discrimination.
While the report noted the city had become more diverse under Crosby’s tenure, it also detailed allegations of preferential treatment for friends and retaliation against employees for associating with former Police Chief Jeff Johnson. Seeing Anderson and Johnson together, Crosby allegedly commented she “needed new friends and would have to choose between her career or her friends.”
Legal and professional findings
The investigation concluded that Crosby’s behavior met both the subjective and objective standards required to establish a hostile work environment under federal law.
“Mr. Crosby’s actions permeated virtually all facets of city employment,” Logan wrote. “From the frequent use of profanity to disparaging comments and interference with job tasks, the misconduct was not the rare or occasional utterance or harassment courts typically reject.”
Logan noted the “astonishing” consistency of complaints among those interviewed and called for the city to consider hiring a professional to handle employee relations, citing improved morale since Crosby’s departure.
Logan emphasized the importance of transparency and leadership moving forward.
“The city should ensure that positive morale continues to prevail while establishing stability and transparency in a new and effective leader,” she wrote.
Mullins commented: “It’s unfortunate that an investigation had to be conducted. It’s my goal that we continue to move the city forward every day improving critical infrastructure needs, economic development, downtown improvements, street repairs and the quality of life for our residents and visitors alike. We all want to see our city move forward to prosper and be the best it can be.”
Crosby has been contacted for comment.
