Municipal annexation is a process by which a municipality expands its boundaries into nearby, usually adjacent, unincorporated areas. This has been a common response of cities to

urbanization Urbanization (or urbanisation) refers to the population shift from rural to urban areas, the corresponding decrease in the proportion of people living in rural areas, and the ways in which societies adapt to this change. It is predominantly t ...

in neighboring areas. It may be done because the neighboring urban areas seek municipal services or because a city seeks control over its suburbs or neighboring unincorporated areas. In the

United States The United States of America (U.S.A. or USA), commonly known as the United States (U.S. or US) or America, is a country primarily located in North America. It consists of 50 states, a federal district, five major unincorporated territori ...

, all local governments are considered "creatures of the state" according to Dillon's Rule, which resulted from the work of

John Forrest Dillon John Forrest Dillon (December 25, 1831 – May 6, 1914) was an attorney in Iowa and New York, a justice of the Iowa Supreme Court and a United States circuit judge of the United States Circuit Court for the Eighth Circuit. He authored a highly ...

on the law of

municipal corporation A municipal corporation is the legal term for a local governing body, including (but not necessarily limited to) cities, counties, towns, townships, charter townships, villages, and boroughs. The term can also be used to describe municipally ...

s. Dillon's Rule implies, among other things, that the boundaries of any

jurisdiction Jurisdiction (from Latin 'law' + 'declaration') is the legal term for the legal authority granted to a legal entity to enact justice. In federations like the United States, areas of jurisdiction apply to local, state, and federal levels. J ...

falling under state government can be modified by state government action. For this reason, examples of municipal annexation are distinct from annexations involving

sovereign state A sovereign state or sovereign country, is a political entity represented by one central government that has supreme legitimate authority over territory. International law defines sovereign states as having a permanent population, defined te ...

Shoestring annexation

LA County Incorporated Areas Los Angeles highlighted

A "shoestring annexation" is a term used for an annexation by a

city A city is a human settlement of notable size.Goodall, B. (1987) ''The Penguin Dictionary of Human Geography''. London: Penguin.Kuper, A. and Kuper, J., eds (1996) ''The Social Science Encyclopedia''. 2nd edition. London: Routledge. It can be def ...

town A town is a human settlement. Towns are generally larger than villages and smaller than cities, though the criteria to distinguish between them vary considerably in different parts of the world. Origin and use The word "town" shares an ori ...

or other

municipality A municipality is usually a single administrative division having corporate status and powers of self-government or jurisdiction as granted by national and regional laws to which it is subordinate. The term ''municipality'' may also mean the go ...

in which it acquires new territory that is contiguous to the existing territory but is only connected to it by a thin strip of land. It is sometimes called a "flagpole annexation" because the territory resembles a flagpole, in which the connection is the "pole" and the annexed territory the "flag".

Reasons

In some states, municipalities are prohibited from annexing land not directly connected to their existing territory. A shoestring or flagpole annexation allows the municipality to do so. Such annexations are sometimes used when a municipality seeks to acquire

unincorporated Unincorporated may refer to: * Unincorporated area, land not governed by a local municipality * Unincorporated entity, a type of organization * Unincorporated territories of the United States, territories under U.S. jurisdiction, to which Congress ...

developed land, such as a newly built subdivision separated from it by undeveloped open space. They may also be used when a municipality desires to annex a commercial or industrial area without taking over intervening residential areas, so as to collect tax revenues from the businesses or industry without having to provide services (such as

electricity Electricity is the set of physical phenomena associated with the presence and motion of matter that has a property of electric charge. Electricity is related to magnetism, both being part of the phenomenon of electromagnetism, as describ ...

and garbage collection) to residents. Such uses of the technique are often criticized and derided as a form of

gerrymandering In representative democracies, gerrymandering (, originally ) is the political manipulation of electoral district boundaries with the intent to create undue advantage for a party, group, or socioeconomic class within the constituency. The m ...

, and have in fact been used for the purpose of manipulating vote distribution among election precincts and districts. A related strategy is called strip annexation, which involves annexing a narrow strip that encloses a large block of unincorporated land. Strip annexation was widely used by the municipalities of the

Phoenix metropolitan area The Phoenix Metropolitan Area – also the Valley of the Sun, the Salt River Valley, or Metro Phoenix (known by most locals simply as “the Valley”) – is the largest metropolitan area in the Southwestern United States, centered on the city ...

during the 1970s to preemptively gain control of large areas of land before other municipalities, without having to annex more than a thin strip surrounding a large so-called

county island A county island is a small or large portion of an unincorporated area that is within the jurisdiction of a county, usually surrounded by adjacent areas that are incorporated into a municipality. On maps, these geopolitical anomalies will form ja ...

. The strip protected the county island from being annexed by other municipalities, thus giving the strip-annexing municipality the ability to slowly annex portions of the county island over time. One such annexation by Chandler in 1974 spurred nearby Gilbert to create the largest county island to date by annexing a strip no more than 200 feet wide that enclosed 51 square miles of unincorporated

Maricopa County Maricopa County is in the south-central part of the U.S. state of Arizona. As of the 2020 census, the population was 4,420,568, making it the state's most populous county, and the fourth-most populous in the United States. It contains about ...

. The annexation was challenged in court and, although found legal, eventually led to legislation in 1980 outlawing strip annexation. Some municipalities rushed to annex before the law took effect, such as Scottsdale, which annexed a 10 foot wide strip enclosing an 86 square mile county island.

Examples

Port of Los Angeles

The Port of Los Angeles together with the San Pedro, Wilmington and Harbor City neighborhoods of

Los Angeles Los Angeles ( ; es, Los Ángeles, link=no , ), often referred to by its initials L.A., is the List of municipalities in California, largest city in the U.S. state, state of California and the List of United States cities by population, sec ...

, are connected to the main part of the city by what is called locally the " Shoestring Strip" between

Figueroa Street Figueroa Street is a major north-south street in Los Angeles County, California, spanning from the Los Angeles neighborhood of Wilmington north to Eagle Rock. A short, unconnected continuation of Figueroa Street runs just south of Marengo Driv ...

and

Vermont Avenue Vermont Avenue is one of the longest running north–south streets in City of Los Angeles and Los Angeles County, California. With a length of , is the third longest of the north–south thoroughfares in the region. For most of its length be ...

and between

Western Western may refer to: Places *Western, Nebraska, a village in the US *Western, New York, a town in the US *Western Creek, Tasmania, a locality in Australia *Western Junction, Tasmania, a locality in Australia *Western world, countries that id ...

and Normandie avenues to the south.

O'Hare Airport

O'Hare Airport Chicago O'Hare International Airport , sometimes referred to as, Chicago O'Hare, or simply O'Hare, is the main international airport serving Chicago, Illinois, located on the city's Northwest Side, approximately northwest of the Loop busines ...

is municipally connected to the city of

Chicago (''City in a Garden''); I Will , image_map = , map_caption = Interactive Map of Chicago , coordinates = , coordinates_footnotes = , subdivision_type = Country , subdivision_name ...

via a narrow strip of land, approximately 200 feet wide, along Foster Avenue from the

Des Plaines river The Des Plaines River () is a river that flows southward for U.S. Geological Survey. National Hydrography Dataset high-resolution flowline dataThe National Map , accessed May 13, 2011 through southern Wisconsin and northern Illinois''American Her ...

to the airport. This land was annexed in the 1950s to assure the airport was contiguous with the city to keep it under city control. The strip is bounded on the north by Rosemont and the south by Schiller Park.http://egov.cityofchicago.org/webportal/COCWebPortal/COC_ATTACH/41st.pdf

Allston-Brighton

The

Boston Boston (), officially the City of Boston, is the state capital and most populous city of the Commonwealth of Massachusetts, as well as the cultural and financial center of the New England region of the United States. It is the 24th- mo ...

neighborhoods of

Allston Allston is an officially recognized neighborhood within the City of Boston, Massachusetts, United States. It was named after the American painter and poet Washington Allston. It comprises the land covered by the zip code 02134. For the most pa ...

and Brighton were part of an independent town of Brighton before being annexed by Boston. They are presently connected to the remainder of the city by the

Boston University Boston University (BU) is a Private university, private research university in Boston, Massachusetts. The university is nonsectarian, but has a historical affiliation with the United Methodist Church. It was founded in 1839 by Methodists with ...

campus. At the time of the annexation, Brookline extended to the

Charles River The Charles River ( Massachusett: ''Quinobequin)'' (sometimes called the River Charles or simply the Charles) is an river in eastern Massachusetts. It flows northeast from Hopkinton to Boston along a highly meandering route, that doubles b ...

and separated Boston and Brighton. As a result, a shoestring annexation was obtained by Boston from Brookline when Brighton joined Boston. This was made necessary by Brookline's refusal to join Boston a year before Brighton's annexation.

South San Diego

South San Diego South San Diego is a district within the City of San Diego, and is in the larger South Bay region of southwestern San Diego County, California. South San Diego is a practical exclave of San Diego, having no land connection with the rest of the c ...

, located next to the

Mexico–United States border The Mexico–United States border ( es, frontera Estados Unidos–México) is an international border separating Mexico and the United States, extending from the Pacific Ocean in the west to the Gulf of Mexico in the east. The border trave ...

, is physically separated from the rest of

San Diego San Diego ( , ; ) is a city on the Pacific Ocean coast of Southern California located immediately adjacent to the Mexico–United States border. With a 2020 population of 1,386,932, it is the eighth most populous city in the United State ...

by the cities of National City and

Chula Vista Chula Vista (; ) is the second-largest city in the San Diego metropolitan area, the seventh largest city in Southern California, the fifteenth largest city in the state of California, and the 78th-largest city in the United States. The popu ...

. A narrow strip of land at the bottom of San Diego Bay connects these southern neighborhoods with the rest of the city.

West Grove

West Grove, the western portion of the city of Garden Grove in

Orange County, California Orange County is located in the Los Angeles metropolitan area in Southern California. As of the 2020 census, the population was 3,186,989, making it the third-most-populous county in California, the sixth-most-populous in the United States, a ...

, is separated from the rest of the city by the city of Stanton. The two portions of the city are connected to the rest of the city by a narrow strip of land along Garden Grove Boulevard from Beach Boulevard to Hoover Street.

References

Notes Further reading *{{cite crabgrass *Staff
MRSC PUBLICATIONS › Annexation Handbook PublicationMunicipal Research & Services Center of Washington
Annexation Political geography Metropolitan areas of the United States Urban planning Local government in the United States