In 1915 the principal governmental subdivisions in Virginia consisted of 100 counties and 20 independent cities. In 1964, there are 96 counties and 34 cities. In addition, the number of towns has increased from 171 to 197; there are other types of governmental districts, commissions and authorities with varying degrees of autonomy. In contrast to this proliferation of governmental agencies, there has also developed some tendency toward· consolidation. At the same time numerous suits have taken place whereby municipalities have sought to expand their boundaries.

The General Assembly, concerned about the effect of some of the annexations and consolidations on both the areas concerned and adjacent political subdivisions, and recognizing the tendency in the operation of governments to increase the number of organized units of governmental character, and recognizing· also that such increases in the number of governmental units, particularly those of an independent character, may adversely affect the economy of the State, adopted chapter 265, 1962, Acts of Assembly directing the Virginia Advisory Legislative Council to make a comprehensive study of the laws of the Commonwealth dealing with annexation and consolidation, and to examine the structure of local government in Virginia in view of the rapid development of the State and to determine the need for revision of the laws dealing with urban expansion; and postponing until after the 1964 Session initiation of new proceedings for annexation or consolidation.

Pursuant to the above act the Council designated Edward M. Hudgins and Lewis A. McMurran, Jr.; members of the House of Delegates and of the Council, as Co-chairmen of a Committee to make the preliminary study and report. The following persons were selected as members of the Committee: Earl L. Abbott, Judge, Circuit Court, Clifton Forge; John Alexander, Attorney and member of the Senate of Virginia, Warrenton; R. William Arthur, Attorney at Law and Town Attorney, Wytheville, and President of The Virginia Municipal League; Dr. Weldon Cooper, Director, Bureau of Public Administration, University of Virginia, Charlottesville; Richard C. Holmquist, Executive Director, Virginia Industrialization Group, Richmond; J. Clifford Hutt, Attorney at Law member, Board of Supervisors, Westmoreland County, Montross, and president of the League of Virginia Counties; Carlton C. Massey, County Executive, Fairfax County; A. L. Philpott, Attorney at Law and member of the House of Delegates, Bassett; duVal Radford, Attorney at Law and former member of the House of Delegates, Bedford; Jas. W. Roberts, Businessman and member of the House of Delegates, Norfolk; Lewis H. Vaden, Treasurer of Virginia, Richmond; and Landon R. Wyatt, Businessman and member of the Senate of Virginia; Danville. John B. Boatwright, Jr. and G. M. Lapsley served as Secretary and Recording Secretary, respectively, to the Committee. Dr. George W. Jennings, Professor of Economics, University of Richmond, served as Consultant to the Committee.

The Committee made an examination of the Constitution and statutes of Virginia as they relate to the various types of governmental subdivisions and of the statutes relating to annexation and consolidation of these political subdivisions. It gave consideration to practices and procedures of other states relating to the creation and functioning of similar agencies of government. The Committee also sought the views of judges, attorneys, certified public accountants, and engineers throughout the State who have been involved in annexation and consolidation proceedings. The Committee held public hearings in and toured various rapidly developing areas of the State and sought the views of the governmental officials and of the public in those areas.

Based on its study the Committee submitted its report to the Council. The Council has carefully reviewed the report of the Committee and submits the following report consisting of its recommendations, the reasons therefor, and legislation to carry the recommendations into effect.