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In United States local government, a consolidated city-county (see below for alternative terms) is formed when one or more cities and their surrounding county (parish in Louisiana, borough in Alaska) merge into one unified jurisdiction. As such it is a type of unitary authority that has the governmental powers of both a municipal corporation and a county. [1]
A consolidated city-county is different from an independent city, although the latter may result from consolidation of a city and a county and may also have the same powers as a consolidated city-county. An independent city is a city not deemed by its state to be located within the boundary of any county and considered a primary administrative division of its state. [2] A consolidated city-county differs from an independent city in that the city and county both nominally exist, although they have a consolidated government, whereas in an independent city, the county does not even nominally exist. [1] Furthermore, a consolidated city-county may still contain independent municipalities maintaining some governmental powers that did not merge with the rest of the county. [3]
Not considering Hawaii, which has no independent municipalities, the Midwest and Upper South have the highest concentration of large consolidated city-county governments in the United States, includingIndianapolis, Indiana; Nashville, Tennessee; Louisville, Kentucky; Kansas City, Kansas; and Lexington, Kentucky. The largest consolidated city-county in the United States by population is Philadelphia, Pennsylvania, while the largest by land area is Sitka, Alaska.
The term consolidated city-county refers to a consolidated jurisdiction in a state that is otherwise divided into counties. In Louisiana, which is divided into parishes, the equivalent jurisdiction is known as either a city-parish or a consolidated government, depending on the locality. [4] In Alaska, it is known as a unified municipality, unified home rule borough, or city and borough. [5] [6] The United States Census Bureau generically refers to any such jurisdiction as a consolidated city, regardless of the jurisdiction into with the city has consolidated. [7] Although California is divided into counties, a consolidated city-county is officially termed a city and county. [8]
Consolidated city-counties are typically formed to address particular government challenges. Among the benefits of having a unified jurisdiction include potential cost savings, more efficiency, increased legal powers and revenue sources, and a more streamlined planning system. [1]
Most consolidated city-counties have a single chief executive who acts as both the city mayor and as the head of the county government, and a multi-district elected body that serves as both the city council and as the county legislative body. [1]
In many states, consolidated city-counties must be approved by voters. [1] According to information compiled by former Albuquerque mayor David Rusk, 105 referendums were held in the United States between 1902 and 2010 to consider proposals to consolidate cities and counties. Only 27 of these proposals were approved by voters. [9]
Wyandotte County, Kansas, uses the term "unified government" to refer to its consolidation with Kansas City, Kansas, and most of the towns within the county boundaries remain separate jurisdictions within the county. Individual sections of a metropolitan or regional municipality may retain some autonomous jurisdiction apart from the citywide government.
Often, in place of another level of government, local governments form councils of governments – essentially governmental organizations which are not empowered with any law-making or law enforcement powers. This is the case in the Atlanta metropolitan area, where the Atlanta Regional Commission (ARC) studies and makes recommendations on the impact of all major construction and development projects on the region, but generally cannot stop them. The Georgia Regional Transportation Authority (GRTA) is a true government agency of the state of Georgia, and does control some state transportation funding to the cities and counties, but otherwise has very little authority beyond this small power of the purse.
In California, a city and county's chartered city powers supersede its chartered county powers. However, because the city and county has territorial jurisdiction exclusive of other counties, it also has county officers, and the state counts it as a county for certain purposes. [10]
Despite being consolidated with New Orleans, Orleans Parish retains a nominal, sui generis status under Louisiana state law that guarantees the city's home rule. It has been effectively abolished as a distinct governmental unit. However, various parish offices remain with a degree of independence from the city government, while in other matters, the city represents the parish. [11] Originally, Orleans Parish was led by a police jury, but it had only limited authority within the City of New Orleans. In 1822, when the police jury began to be elected popularly, the New Orleans City Council was granted a veto over fiscal matters. In 1840, a second police jury was established with authority over the right bank of the Mississippi River (that is, Algiers). By 1846, the original police jury had become inactive and was abolished, consolidating the left bank with New Orleans. [12] [13] In 1870, the remainder of Orleans Parish was consolidated when the city became coextensive with the parish. The city and parish have also annexed parts of neighboring Jefferson Parish. [14] [15]
The case of New York City is unique, in that the city consists of five boroughs, each of which is co-extensive with a county. Each has its own district attorney; however, county-level government is essentially non-existent as all executive and legislative power is exercised by the city government throughout the five boroughs. The city, as currently constituted, was created in 1898 when the city of New York (then comprising what would become the boroughs of Manhattan and The Bronx) annexed Kings County, Queens County, and Richmond County as the boroughs of Brooklyn, Queens, and Staten Island, respectively.
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Similar unitary authority arrangements also exist in other countries.
England has six "metropolitan counties" created in 1974: Greater Manchester, Merseyside, South Yorkshire, Tyne and Wear, West Midlands, and West Yorkshire. From 1986, these metropolitan counties do not have county councils but rather joint boards for certain functions. Modern unitary authorities are similar, and are known as county boroughs in Wales. In Scotland, Aberdeen, Dundee, Edinburgh and Glasgow are functionally "independent cities", though the term is not used. London is unique however, being a ceremonial county (officially known as Greater London) containing the 32 London boroughs. Enclaved within Greater London, the ancient City of London forms a distinct county, which today forms only a tiny part of what most consider to be London as a capital city, which takes up 607 square miles.
In Germany, Berlin and Hamburg are both cities and states (the state of Bremen consists of the cities of Bremen and Bremerhaven). Nearly every larger city in Germany is an independent city, like Frankfurt, Stuttgart, Munich or Dresden; Austria, where the capital of Vienna is both a city and state; France, where the capital city of Paris has been coterminous with the département of Paris since 1968.
In Russia, there are urban districts - territories consisting of a city and nearby settlements united by one mayor's office. As a rule, urban districts are the capitals of the constituent entities of the Russia and other major cities in the region. In 2020, there were 635 urban districts.
The Canadian province of Ontario contains several single-tier municipalities. They can be similar to American consolidated city-counties in that they are often formed by amalgamating an upper-tier municipality. However, they are functionally independent cities as, unlike a consolidated city-county, the county or region ceases to exist after being amalgamated and does not continue on a nominal basis, leaving only the unified single-tier city. [16] One example is the City of Toronto, created in 1998 from the amalgamation of the central government and the six constituent municipalities of the Municipality of Metropolitan Toronto (a type of regional municipality), itself originally created in 1954. [17] [18] [19]
The Northern Rockies Regional Municipality in British Columbia is also a single-tier municipallity, functioning as both a regional district and a district municipality. It was formed in 2009 by amalgamating the former Northern Rockies Regional District. [20]
In 1943, the City of Tokyo was amalgamated with the former Tokyo Prefecture to form the Tokyo Metropolis. The present form of Tokyo functions similarly to a prefecture, having a central government along with several autonomous subdivisions. The original Tokyo City was split into 23 "special wards" which effectively function as cities. In addition, there are also 23 cities, 5 towns and 8 villages within Tokyo. Under this structure, Tokyo does not have a single mayor, but rather a governor and numerous local mayors. Further, some responsibilities that would normally be held by the cities are instead held by the metropolitan government. Currently, Tokyo is the only place designated as a metropolis. [21]
Seoul is a special city , while six other cities (Busan, Daegu, Daejeon, Gwangju, Incheon, and Ulsan) are metropolitan cities.
Municipalities in Australia, or "Local Government Areas" (LGAs) as they are officially known, are all single-tier entities with no government in-between them and the state or territory. However, the Australian Capital Territory (ACT) does not have any LGAs. Instead, the territorial government performs all municipal functions of the city of Canberra, and thus functions as an integrated city-territory. [22]
In nine consolidated city-county governments in the United States, the formerly independent incorporated places maintain some governmental powers. In these cities, which the United States Census Bureau calls "consolidated cities", statistics are recorded both for the entire consolidated government and for the component municipalities. A part of the consolidated government is called the "balance", which the Census Bureau defines as "the consolidated city minus the semi-independent incorporated places located within the consolidated city". [3]
In Georgia, consolidations often required multiple attempts, changes in procedures, and different local laws in the state legislature. They often did not include some smaller jurisdictions. They also retained characteristics of both types of government, e.g, a sheriff as required by the Georgia Constitution. [23]
These consolidated cities are: [3]
The following consolidated city-counties are considered single entities encompassing both a city and a county, such as "City and County of San Francisco".
The following consolidated city-counties merged a previously existing city and county and are still considered two separate entities, both a city and a county, even though the government functions have been consolidated.
Note: Five cities in the Hampton Roads region of Virginia were formed by the consolidation of a city with a county: Chesapeake, Hampton, Newport News, Suffolk, and Virginia Beach (from Norfolk, Elizabeth City, Warwick, Nansemond, and Princess Anne counties, respectively). However, in each case an independent city was created and as such they are not consolidated city-counties. Instead, the Code of Virginia uses the term "consolidated city." [1] [44] Similarly, Carson City was consolidated with Ormsby County, Nevada in 1969, but the county was simultaneously dissolved. The city is now a municipality independent of any county. [1]
A county is a geographic region of a country used for administrative or other purposes in some nations. The term is derived from the Old French comté denoting a jurisdiction under the sovereignty of a count (earl) or, in his stead, a viscount (vicomte). Literal equivalents in other languages, derived from the equivalent of "count", are now seldom used officially, including comté, contea, contado, comtat, condado, Grafschaft, graafschap, and zhupa in Slavic languages; terms equivalent to 'commune' or 'community' are now often instead used.
In the United States, a county or county equivalent is an administrative or political subdivision of a U.S. state or other territories of the United States which consists of a geographic area with specific boundaries and usually some level of governmental authority. The term "county" is used in 48 states, while Louisiana and Alaska have functionally equivalent subdivisions called parishes and boroughs, respectively. Counties and other local governments exist as a matter of U.S. state law, so the specific governmental powers of counties may vary widely between the states, with many providing some level of services to civil townships, municipalities, and unincorporated areas. Certain municipalities are in multiple counties; New York City is uniquely partitioned into five counties, referred to at the city government level as boroughs. Some municipalities have been consolidated with their county government to form consolidated city-counties, or have been legally separated from counties altogether to form independent cities. Conversely, counties in Connecticut and Rhode Island, eight of Massachusetts's 14 counties, and Alaska's Unorganized Borough have no government power, existing only as geographic distinctions.
A minor civil division (MCD) is a term used by the United States Census Bureau for primary governmental and/or administrative divisions of a county or county-equivalent, typically a municipal government such as a city, town, or civil township. MCDs are used for statistical purposes by the Census Bureau, and do not necessarily represent the primary form of local government. They range from non-governing geographical survey areas to municipalities with weak or strong powers of self-government. Some states with large unincorporated areas give substantial powers to counties; others have smaller or larger incorporated entities with governmental powers that are smaller than the MCD level chosen by the Census.
A school district is a special-purpose district that operates local public primary or secondary schools or both in various countries. It is not to be confused with an attendance zone, which is within a school district and is used to assign students to schools in a district and not to determine government authority.
A civil township is a widely used unit of local government in the United States that is subordinate to a county, most often in the northern and midwestern parts of the country. The term town is used in New England, New York, as well as Wisconsin to refer to the equivalent of the civil township in these states; Minnesota uses "town" officially but often uses it and "township" interchangeably. Specific responsibilities and the degree of autonomy vary in each state. Civil townships are distinct from survey townships, but in states that have both, the boundaries often coincide, especially in Indiana, Ohio, and Illinois, and may completely geographically subdivide a county. The U.S. Census Bureau classifies civil townships as minor civil divisions. Currently, there are 20 states with civil townships, including Indiana, Ohio, Illinois, Michigan, Iowa, Minnesota, Wisconsin, Missouri, Kansas, Nebraska, South Dakota, North Dakota, Pennsylvania, and West Virginia.
The administrative divisions of New York are the various units of government that provide local services in the American state of New York. The state is divided into boroughs, counties, cities, towns, and villages. They are municipal corporations, chartered (created) by the New York State Legislature, as under the New York State Constitution the only body that can create governmental units is the state. All of them have their own governments, sometimes with no paid employees, that provide local services. Centers of population that are not incorporated and have no government or local services are designated hamlets. Whether a municipality is defined as a borough, city, town, or village is determined not by population or land area, but rather on the form of government selected by the residents and approved by the New York State Legislature. Each type of local government is granted specific home rule powers by the New York State Constitution. There are still occasional changes as a village becomes a city, or a village dissolves, each of which requires legislative action. New York also has various corporate entities that provide local services and have their own administrative structures (governments), such as school and fire districts. These are not found in all counties.
Most U.S. states and territories have at least two tiers of local government: counties and municipalities. Louisiana uses the term parish and Alaska uses the term borough for what the U.S. Census Bureau terms county equivalents in those states. Civil townships or towns are used as subdivisions of a county in 20 states, mostly in the Northeast and Midwest.
A borough in some U.S. states is a unit of local government or other administrative division below the level of the state. The term is currently used in six states:
The borough presidents are the chief executives of the five boroughs of New York City. For most of the city's history, the office exercised significant executive powers within each borough, and the five borough presidents also sat on the New York City Board of Estimate, which was abolished in 1990. After the Board of Estimate was disbanded, the borough presidents were stripped of a majority of their powers in the government of New York City.
The boroughs of New York City are the five major governmental districts that comprise New York City. They are the Bronx, Brooklyn, Manhattan, Queens, and Staten Island. Each borough is coextensive with a respective county of the State of New York: The Bronx is Bronx County, Brooklyn is Kings County, Manhattan is New York County, Queens is Queens County, and Staten Island is Richmond County.
A merger, consolidation or amalgamation, in a political or administrative sense, is the combination of two or more political or administrative entities, such as municipalities, counties, districts, etc., into a single entity. This term is used when the process occurs within a sovereign entity.
In the United States, the meaning of village varies by geographic area and legal jurisdiction. In formal usage, a "village" is a type of administrative division at the local government level. Since the Tenth Amendment to the United States Constitution prohibits the federal government from legislating on local government, the states are free to have political subdivisions called "villages" or not to and to define the word in many ways. Typically, a village is a type of municipality, although it can also be a special district or an unincorporated area. It may or may not be recognized for governmental purposes.
In the United States, an independent city is a city that is not in the territory of any county or counties and is considered a primary administrative division of its state. Independent cities are classified by the United States Census Bureau as "county equivalents" and may also have similar governmental powers to a consolidated city-county or a unitary authority. However, in the case of a consolidated city-county, a city and a county were merged into a unified jurisdiction in which the county at least nominally exists to this day, whereas an independent city was legally separated from any county or merged with a county that simultaneously ceased to exist even in name.
The class of the municipality is a district municipality.