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Meeting Purpose Review San Antonio’s existing annexation policies Understand how other communities address annexation Identify SA Tomorrow policies that should be a part of the annexation policy
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PEWG Annexation Meeting #1
January 7, 2016
Overview9:00 – 9:05 Introduction and Meeting Purpose9:05 – 9:10 Annexation PEWG Process and
Schedule 9:10 – 9:30 Current Annexation Policy and
Evaluation Criteria9:30 – 9:50 Case Studies9:50 – 10:30 Integration of SA Tomorrow
Comprehensive Plan Policies10:30 – 10:55 Facilitated Large Group Discussion10:55 – 11:00 Summary & Next Steps11:00 AM Meeting Close
Meeting Purpose•Review San Antonio’s existing annexation policies
•Understand how other communities address annexation
•Identify SA Tomorrow policies that should be a part of the annexation policy
Schedule OverviewFebruary - Meeting #2•Review draft of revised annexation policies
Early March – Meeting #3• Evaluate the current annexation strategy based on
revised policies•Give direction on current general annexation strategy•Recommendations on revised annexation strategy and • High-level direction on areas for consideration (if existing
areas are deemed to be not in line with new policy direction)
Late March – Regular PEWG Meetings•Presentation of recommended annexation policies to all PEWGs
April•Final Report
PEWG Annexation Process
Goals for the Annexation PEWG•Integrate SA Tomorrow policies into the annexation policies
•Develop recommended revisions to annexation policies and evaluation criteria
•Evaluate how the existing annexation strategy fits with the revised policies
•Provide recommendations on next steps for annexation strategy
Current Annexation Policy
Annexation Policy versus Strategy
Policy
Why annex
What are the characteristics that need to be present
How will it impact the City
Strategy
Where the City is going to annex land
When will the City annex the land identified
How much land will be annexed
Reasons for Annexation
1. To apply zoning and development standards
2. To create efficiency in service delivery
3. To maximize return on the city’s investment in infrastructure and business incentives
4. To protect and expand the tax base
5. To provide municipal services beyond those available in rural areas
Evaluation Categories
1. Existing or planned level of development2. Service delivery needs3. Need to protect public health, safety, and
welfare4. Intergovernmental relations5. Fiscal considerations
Existing or planned level of development
• City should consider annexation of:– Undeveloped areas– Areas for which dense development activity is
anticipated– Areas planned or designated in the Comprehensive Plan
as Mixed Use or Regional Growth Centers– Areas that have become developed
Service Delivery Needs
• City should consider annexation to provide municipal services to:– Residential, commercial, and industrial
land uses that would benefit from a level of service calibrated for a city rather than an unincorporated area
– Jurisdictional Islands to provide logical planning and/or service delivery boundaries
– Territories that do not adversely impact service to areas already within the city limits
– Territories that establish contiguity required for strategic expansion of the city and its services
Protect Health, Safety and Welfare
• City should consider annexation to:– Provide zoning, land use, building codes, and other
development regulations to promote and maintain safe living and working conditions and sustainable development
– Extend regulations before development occurs, on undeveloped land, where growth is anticipated
– Areas that, without regulations, could have an adverse impact on adjacent areas within the city
– Areas where unregulated development could have an adverse environmental impact
– Areas where unregulated development could have an adverse impact on Military missions/operations
Intergovernmental Relations
• The city should:– Protect its ability to expand its city limits– Consider annexing city-owned properties as
soon as practical– Consider annexation to preclude the
creation of other competing political jurisdictions
– Consider the impact on the city’s ability to expand in the future and potential economic competition when evaluating requests for incorporations of new cities or expansion of existing cities within San Antonio’s ETJ
Intergovernmental Relations
Continued
– Consider the impact on city-owned utilities when evaluating requests for Utility Districts or other Special Districts in the ETJ
– Ensure that Special Districts in the ETJ do not create regulations that would not be in the best interest of the city
– Prior to releasing any portion of its corporate limits or ETJ to another jurisdiction or accepting territory from another jurisdiction, consider: the exchange of areas of equivalent value; adequate land use control by the other municipality; the existence of clear and logical planning boundaries; potentially significant negative fiscal impacts on the City’s budget; the need for City protection of environmental or other resources; the long-term effects of cumulative ETJ releases to other jurisdictions
Fiscal Considerations
• The city should consider:– An Annexation Program that is fiscally feasible for both operating
and capital improvements– Annexation to ensure that areas benefitting from proximity to a
large urban City are contributing revenue to offset the cost of providing services within an urban environment
– The impact of additional population within the City limits to help procure federal funding for transportation and other services that are provided on a per-capita basis
– Annexation of areas that have a mix of residential and commercial land uses that generate revenues to support future services
– Annexation to keep economic activity, and associated tax revenues, within city limits
– Opportunities for agreements with other municipalities and service providers to assist with provision of services
Small Group Exercise #1
Small Group Exercise # 1
Work in small groups organized by PEWG.
Key Questions:• Which existing policies and criteria make
sense? • Which existing policies and criteria don’t
fit?
Annexation Policy Comparisons
Annexation Policies
• Policy Source Document– Comprehensive Plan– City Code– Standalone policy– Informal guidelines
• Scope– General guidelines – Specific process and framework
Annexation Policies
• Reasons for annexation – General growth– Efficiency– Expand tax base– Apply zoning/building standards– Other goals
• Decision criteria– Fiscal feasibility– May include other/multiple factors
• Greater level of detail in policy often reflects a city more actively looking to annex land
Austin
Austin
• Annexation is governed by two sections of the Code of Ordinances and a small section in the Comprehensive Plan
• Annexation is used to:1. Apply zoning and development
regulation2. Protect and expand the tax
base3. More efficiently deliver
municipal services4. Provide municipal services to
development areas
Austin
• City looks for developing areas and gaps in the current jurisdiction where annexation would create efficiencies in service provision
• Criteria used in evaluating potential annexations include:– Current land use– Pending development applications– Current and build-out population estimates– Current service providers for fire, utilities, and schools– Taxable assessed value– Ag exemption status
Austin
• Annexation decisions are made based on 6 policies:1. Annex areas that can be most economically served
with existing and proposed infrastructure and services2. Annex areas that will be provided with municipal
services and utilities through coordinated service extension plans and the capital improvements program
3. Continue to annex major industrial and commercial areas on the periphery of the city
4. Use limited purpose annexation in cooperation with landowners to expand environmental land use and development regulations on land currently in the ETJ
5. Consider annexing areas served by aging or substandard septic systems where water quality degradation is probable
6. Annex residential areas to broadly distribute the cost of services
Houston
Houston
• No fixed annexation policy• The city no longer annexes
large areas • Any annexation must be
contiguous with city limits
Houston
• Full-purpose annexation only happens on a case-by-case, parcel-by-parcel basis, and only by owner petition– When a request is made, the city undertakes a
feasibility study to determine the cost of providing services to that parcel
– Cost is the only decision criteria used• Limited-purpose annexation is used to annex
commercial areas
Fort Worth
Fort Worth
• Annexation policy is a chapter of the Comprehensive Plan
• Part of the strategic goal of promoting orderly and sustainable growth
Fort Worth
• Goal is achieved through 4 strategies1. Promote economic growth
• Use annexation to facilitate public-private partnerships to stimulate local and regional economic growth
2. Facilitate long-range planning• Use annexation to manage and regulate development on
the fringe of the city3. Protect future development
• Use annexation to extend land use regulations and building codes to protect future development from inadequate standards
4. Foster intergovernmental cooperation• Use annexation to alleviate jurisdictional conflicts and to
coordinate service delivery arrangements
Fort Worth
• To annex land, the City must be able to provide municipal services and the area must meet at least one of these conditions:– Enclave: be an enclave within the ETJ– Urban Development: have development activity of an
urban nature, and have a positive fiscal impact – Growth Center: be a designated growth center, and
have a positive fiscal impact– Adverse Impact: have an adverse impact on the city if
not annexed– Option to Expand: be a detriment to the city’s orderly
growth if not annexed
San Marcos
San Marcos
• Annexations are governed by the Annexation/Extraterritorial Jurisdiction Management Strategy, created to fulfill a Comprehensive Plan Objective
• In evaluating annexation candidates, city staff look at:– Unique land use– Environmental characteristics– Fiscal characteristics– Demographic characteristics
San Marcos
• Evaluation is not an additive process – some considerations outweigh others, and relative weights are not constant
• There are two categories of considerations for annexations:– Threshold considerations
• Location, contiguity, fit with the Comprehensive Plan, ability to provide services
– Additional considerations to evaluate suitability• Land status, development status, fiscal impact
Oklahoma City
Oklahoma City
• Annexation policy is contained within the Comprehensive Plan
• Used to implement 3 Comprehensive Plan initiatives:– Increase efficiency of city
services provision– Increase and stabilize tax
revenues– Maximize service and staffing
efficiency
Oklahoma City
• The city will support annexation that:– Improves city service efficiency– Improves fiscal sustainability– Contributes to regional goals related to
transportation systems or environmental resources
• Primary concerns are mutual benefit and service efficiency
• Services are weighted to create a combined service efficiency map - decision makers then assess the impact a change would have on service efficiency– Indicators include existing capacity, connectivity,
contiguity, cost, and level of service
Policy Comparisons
Policy Comparison - Source
Policy Source
San Antonio
Austin Houston Fort Worth
San Marcos
Oklahoma City
Comp. Plan City Code Standalone Policy Informal Guidelines
Policy Comparison – Reasons for AnnexationReasons for Annexation
San Antonio
Austin Houston Fort Worth
San Marcos
Oklahoma City
General Growth Provide services to new and/ordevelopment areas
Improve Service Efficiency Expand tax base Apply zoning/development standards
Other
Policy Comparison – Annexation CriteriaAnnexation Criteria
San Antonio
Austin Houston Fort Worth
San Marcos
Oklahoma City
Fiscal impact Need for or ability to provide services
Level of development Spatial relation to city Inter-governmental relations
Other
Small Group Exercise #2
Small Group Exercise # 2
Work in small groups organized by PEWG.
Key Questions:• Which aspects of the case studies are
most applicable to San Antonio? • Which aspects of the case studies are
missing from San Antonio’s policy?
Small Group Exercise #3
Small Group Exercise # 3
Work in small groups organized by PEWG.
Exercise:• Identify your plan element’s policies that
relate to annexation. • Prioritize these policies.• Top Tier (Most applicable/highest priority)• Middle Tier (Applicable but not highest
priority)• Bottom Tier (Not applicable
Discussion
Discussion Questions
• What is missing in the current policy?• What are major changes?• What should the primary drivers for
annexation be? • Should we weight criteria?
Summary and Next Steps
Next StepsFebruary - Meeting #2•Review draft of revised annexation policies
Early March – Meeting #3• Evaluate the current annexation strategy based on
revised policies•Give direction on current general annexation strategy•Recommendations on revised annexation strategy and • High-level direction on areas for consideration (if existing
areas are deemed to be not in line with new policy direction)
Late March – Regular PEWG Meetings•Presentation of recommended annexation policies to all PEWGs
April•Final Report
PEWG Annexation Meeting #1
January 7, 2016
