In United States local government, a consolidated city-county is a city and county that have been merged into one unified jurisdiction. As such it is simultaneously a city, which is a municipal corporation, and a county, which is an administrative division of a state. It has the powers and responsibilities of both types of entities.

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 recognized by its state as a legal territorial entity separate from surrounding or adjoining counties. 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.

Not considering Hawaii, which has no independent cities, the Midwest and Upper South have the highest concentration of large consolidated city-county governments in the United States, including Indianapolis, Indiana; Nashville, Tennessee; Jacksonville, Florida; Louisville, Kentucky; Kansas City, Kansas; and Lexington, Kentucky. Currently, the largest consolidated city-county in the United States by population is Philadelphia, Pennsylvania, while the largest by land-area is Sitka, Alaska.


According to information compiled by former Albuquerque mayor David Rusk, 105 referenda 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.[1]

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 in which some cities and towns 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 monies to the cities and counties, but otherwise has very little authority beyond this small power of the purse.

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 borough, being coterminous with a county, 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.

Similar 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 ancient City of London and 32 London boroughs. The single square mile that comprises the City of London is only a tiny part of the London as a capital city, which takes up 607 square miles.

In the Canadian province of Ontario, there exist several single-tier municipalities which serve the same sort of functions as American consolidated city-counties. One example of this is the City of Toronto, which was created in 1998 from the amalgamation of the central government and the six constituent municipalities of the Metropolitan Municipality of Toronto (a type of regional municipality) which was originally created in 1954.

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 a consolidated city-county, 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; and South Korea, where Seoul is a special city, while six other cities (Busan, Daegu, Daejeon, Gwangju, Incheon, and Ulsan) are metropolitan cities. Additionally, the Australian Capital Territory government in Australia performs all municipal functions of the city of Canberra, and thus functions as an integrated city-territory. Similarly, the City of Tokyo merged with the prefecture to form Tokyo metropolis in 1943.


In eight 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".[2]

These consolidated cities are:[2]

List of consolidated city-counties

Consolidated since their creation



Merged with some independent municipalities

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."[22] 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.

Potentially consolidated

  • Aurora, Colorado, split between three counties, explored the creation of a new consolidated city-county in 1996; the effort subsequently failed in a referendum. However, five years later nearby Broomfield was successful in creating a new city-county from portions of the four counties it had been a part of. Encouraged by Broomfield's experience, an Aurora city councilman has proposed consolidation again in 2006.[23] This was not accomplished in 2006 or 2007, and no bills to accomplish consolidation were introduced in the 2008 session of the Colorado legislature.
  • A proposal has been made to merge Johnson County, Kansas and Wyandotte County, Kansas and the cities located in those two into a single consolidated city-county, name to be determined.[24]
  • In 2005, The Plain Dealer in Cleveland, Ohio published a series of articles exploring the possibility of the city's merging with Cuyahoga County.[25]
  • Miami-Dade County, Florida provides city-level[clarification needed] police, fire-rescue, sanitation, and other services to many of the municipalities within its borders.
  • A report was released in April 2008 recommending the merger of the governments of the City of Pittsburgh, Pennsylvania and that of Allegheny County. This plan has been endorsed by the mayor of Pittsburgh and the Chief Executive of Allegheny County, but needs approval by the City and County councils and from the state legislature before a referendum can be put forth for the voters to approve such a merger.
  • The independent City of St. Louis, Missouri and that of St. Louis County. The city of St. Louis seceded from St. Louis County in the 1870s and is not part of any county in the state of Missouri. Regional leaders have since proposed several plans to reunify the City and County, each one rejected by voters.[26]

Considered consolidation

Formerly consolidated

  • The City of Boston and Suffolk County, Massachusetts operated with a consolidated government for most of the twentieth century with Boston providing office space, auditors, budget, personnel and financial oversight for Suffolk County. This was not a true consolidation because three municipalities – Chelsea, Revere and Winthrop – were never annexed into Boston and remained separate jurisdictions within Suffolk County; however, the City of Boston held complete control of the county by law. The special relationship between Boston and Suffolk County ended in 1999 as part of the gradual abolition of county governments through much of the state with all county employees and powers transferred to Commonwealth of Massachusetts control. The only remaining powers and duties for the City of Boston in regards to the county is ceremonial in which the Suffolk County Register of Deeds is issued the oath of office at the start of a term as well as calls for a meeting to hold a special election to fill the office should there be a failure to elect someone to the office or should a vacancy occur.

See also


  1. ^ Kate Linebaugh, Threats to Town Halls Stir Voter Backlash, The Wall Street Journal, June 8, 2011
  2. ^ a b Population Estimates Geography Archived 2010-02-23 at the Wayback Machine., United States Census Bureau, 2006-06-19. Retrieved 2007-09-07.
  3. ^ "Anchorage, Alaska: The Official Municipality of Anchorage, Alaska website". Retrieved 22 March 2017. 
  4. ^ a b "Colorado Municipal Incorporations". State of Colorado, Department of Personnel & Administration, Colorado State Archives. December 1, 2004. Retrieved November 24, 2006. 
  5. ^ "City and County of Broomfield - Official Website - Official Website". Retrieved 22 March 2017. 
  6. ^ "Government". Retrieved 22 March 2017. 
  7. ^ "Archived copy". Archived from the original on 2011-07-19. Retrieved 2011-07-07. 
  8. ^ Website of the Community of Anaconda
  9. ^ a b Kent Moreland. "Map of Trousdale County". Hartsville-Trousdale County Chamber of Commerce. Retrieved 2016-02-25. 
  10. ^ "Welcome to TPCG". Retrieved 22 March 2017. 
  11. ^ Website of Lexington-Fayette Urban County Government Archived March 28, 1997, at the Wayback Machine.
  12. ^ "HB 1171 - Macon-Bibb County; create and incorporate new political body corporate". Archived from the original on 2012-10-30. 
  13. ^ a b c d e f g h i j k l m n o p q r s t u v w x y City-County Consolidation Proposals, 1921 - Present Archived 2012-07-19 at the Wayback Machine., National Association of Counties. Retrieved 2011-02-11.
  14. ^ "The Effects on City-County Consolidation" (PDF). ai.org. Retrieved 25 March 2018. 
  15. ^ a b c d e Consolidation pass for Macon and Bibb county in the 2012 vote.CONSOLIDATION OF CITY AND COUNTY GOVERNMENTS: ATTEMPTS IN FIVE CITIES Archived January 20, 2013, at the Wayback Machine.. Retrieved 2010-09-14.
  16. ^ "Payne City merger dead for 2013". The Macon Telegraph. February 27, 2013. Archived from the original on October 16, 2013. Retrieved August 10, 2013. 
  17. ^ "Welcome to NYC.gov - City of New York". Retrieved 22 March 2017. 
  18. ^ Camden County Government - Board of Commissioners - February 10, 2006 Archived July 31, 2007, at the Wayback Machine.
  19. ^ Indy.gov. "City of Indianapolis and Marion County". Retrieved 22 March 2017. 
  20. ^ "LouisvilleKy.gov". Retrieved 22 March 2017. 
  21. ^ "Government". Retrieved 22 March 2017. 
  22. ^ "Legislative Information System". Retrieved 22 March 2017. 
  23. ^ City and County of Aurora? by J.C. O'Connell. The Aurora Daily Sun & Sentinel, January 30, 2006.
  24. ^ Johnson-Wyandotte merger? by Jesse Truesdale. The [Bonner Springs] Chieftain, February 2, 2006.
  25. ^ A Region Divided Archived 2007-02-10 at the Wayback Machine.. Special series of The [Cleveland] Plain Dealer, published throughout 2005.
  26. ^ St. Louis Five-Year Consolidated Plan Strategy 2006-2010
  27. ^ a b c d e f "Some Major City-County Consolidation Referenda in the 20th Century". 
  28. ^ Maryland General Assembly, 1999 Regular Session, House Bill 402
  29. ^ One Buffalo Archived April 16, 2007, at the Wayback Machine.
  30. ^ "Des Moines, Polk County reject merger". Retrieved 22 March 2017. 
  31. ^ a b "NCSU Innovation Online". Archived from the original on September 19, 2006. Retrieved 2006-12-01.  , by Diane Cherry
  32. ^ 79(R) SJR 9 in the Texas State Legislature
  33. ^ "The Consolidate Debate - Evansville Living Magazine". Retrieved 22 March 2017. 
  34. ^ Langhorne, Thomas B. (November 6, 2012). "UPDATE: Voters resoundingly reject proposal to merge Evansville, Vanderburgh County governments". Evansville Courier & Press. Retrieved February 20, 2013. 
  35. ^ "Alaska Division of Community Advocacy". Archived from the original on 21 December 2004. Retrieved 22 March 2017. 
  36. ^ "Voters reject metro government in Lincoln Co". WATE. 2008-02-08. Archived from the original on 2011-12-13. Retrieved 2010-10-06. 
  37. ^ Debate stirs on consolidation Archived 2007-09-30 at the Wayback Machine., by Benjamin Lanka. The [Fort Wayne] Journal Gazette, March 5, 2006.
  38. ^ Kirby, Cassondra (November 3, 2004). "Article: Voters in Franklin and Frankfort counties, Ky., reject government merger". AccessMyLibrary. Lexington, KY: Lexington Herald-Leader. Retrieved 8 June 2010. 
  39. ^ "Microsoft Word - All CONSLDLS 2006bev _3_.doc" (PDF). Archived from the original on April 9, 2008. Retrieved 2008-03-20. 
  40. ^ [1]"Stephens Floats City Merger Idea", Arkansas Business, December 5, 2002
  41. ^ Business Backs Consolidated Government, by Kate Miller. Memphis Business Journal, March 15, 2002.
  42. ^ "The Commercial Appeal". The Commercial Appeal. Retrieved 25 March 2018. 
  43. ^ "Muncie & Delaware County Reorganization Committee". Archived from the original on 21 June 2011. Retrieved 22 March 2017. 
  44. ^ "City of Orlando / Orange County Consolidation of Services Study Commission". Archived from the original on December 10, 2006. Retrieved 2006-12-12. 
  45. ^ "Paducah, McCracken County residents reject metro merger". The Henderson Gleaner. Henderson, Kentucky. Associated Press. November 7, 2012. Retrieved February 13, 2013. 
  46. ^ "Pittsburgh Post-Gazette - News Links". Retrieved 22 March 2017. 
  47. ^ "The Pittsburgh Press - Google News Archive Search". Retrieved 22 March 2017. 
  48. ^ Town Meeting: Louisville mayor offers primer on uniting city-county government, By Jeffrey Cohan. Pittsburgh Post Gazette, October 1, 2004.
  49. ^ a b Rawlins, Elizabeth. "The Investigation Begins: State lawmakers looking at consolidating Savannah, Chatham County". wtoc.com. Retrieved 25 March 2018. 
  50. ^ Rawlins, Elizabeth. "WTOC Investigates: Could consolidation save Savannah, Chatham County taxpayers millions?". wtoc.com. Retrieved 25 March 2018. 
  51. ^ McDermott, Kevin. "Krewson, Stenger back latest push for city-county coordination". stltoday.com. Retrieved 25 March 2018. 
  52. ^ "The Possibility Of Lincoln And Minnehaha Counties Merging". KELOLAND News. Retrieved 25 March 2018. 
  53. ^ Skepticism greets 'Unigov' summit, by Tom Troy. The Toledo Blade, March 4, 2004.
  54. ^ Shawnee County Government and Consolidation, by Richard V. Eckert. 2005-05-02.

External links