Discussion * LEGAL FEASIBILITY STUDY OF THE COMBINATION OF THE CITY AND COUNTY OF ST. LOUIS Index Description of Proposed Combination . .. . Background Organization of Analysis...) eee ee ee Principles of Statutory Construction Basic Constitutional Questions ...... . Scope of the "Fifth Power" a. Purpose of the Fifth Power... b. Consolidation of Municipalities General Impact of the Federal Constitution and Laws a. Federal Voting Rights Act b. Equal Protection Clause Procedural Questions»... -)- eee Summary of Procedures Required Under.Section 30... eee ee ee Form of Petition for Appointment of a Board of Freeholders .......- Limitation of Scope of Authority of Board of Freeholders .....+.+ + Number of Signatures Required on Petition . . Pag eerie aay ge Qualifications of Freeholders ......~ “Fresholder®: 6 6 ee es Elector” ; i: 6+ ae eo WO . “Resident ea Hea oe Party Affiliation. 1.0111 a b © a 1 12 14 q7 17 19 20 20 21 23 27 27 28 31 32 3310. 1 12. Appointment of Freeholders Responsibilities of Freeholders ... . Resulting Entity as a Charter Entity . Amendment of Charter of Resulting Entity sq 22s fs pe pee else es County Offices . Form of Ballot...) . ee ee Alternative Procedures... . 1... Structure of Resulting Entity 1 au 10 Changes in County Charter Amendment of Codes and Ordinances Future Annexation... - Consolidation of Authorities... ... Consolidation of other Entities . . GMA ep tec sees et ttat sce ie Main b. Courts .. eerie aa ce. Other Entities 11)... Preservation of Special Districts . a. School Districts .......-.., b. Other Districts : Zoning and Land Use Planning... .. State Laws... Consolidation of Taxing and Special Function Districts ara Township Structure . . . Outstanding Commitments of Governmental Units 1. Bonded Indebtedness .--.-. +... .~ aide a5 37 38 43 44 45 46 48 48 48 51 51 54 54 57 60 62 62 62 63 63 64 65 662. Existing Contractual Indebtedness ... ~~. 72 3. Employment Considerations ......... 72 a. Elected and Appointed Officials... . 74 b. Civil Service Employees. ....... 75 c Union Arrangements .......... 77 4. Pension Benefits... . ip ig tit Ce Ponationlbeueaies et tetanic einen teiGS 1 Hancock Amendment aaa ea 2 General Tax Considerations ......... 88 a. Limits on Taxing Authority ...... 88 b. Equalization of Tax Rates... . 1. . 92 c. Special Taxing Districts .... 1. 92 d. Reassessment... .... 5... 93 e. Sharing of Earnings Taxes... ... . 94 F, Miscellaneous Issues pepe ee TG 94 1. School Desegregation Case ... . ao . 94 2. Federal Grants and Programs .. . . . 95 a. Block Grants vs 3 6 5 + 4 fia 790 bo UDAG fae eu : 97 asset AUS a eee eee eae eee een eee Og d. Revenue Sharing. 2. 98 3. Wellston Bankruptcy... 1... . 2... 100 4, Pending Litigation... ..... 2... . 100 G. Transition Issues...) ee 202 1. Filling of Offices of New Entity. .... . 101 2. | @ransition Committee. {55 4) 6.0. 2 202 3. Control of Actions of Constituent Entities During Transition... ... . . . 102 Summary of Structural Considerations... ....... . 102 willie