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144 The Practice of Local Gor,ernrr'tent Planning ~ i ments may have some force.However, when_independent governmental units I are constructing facilities, the advice is usually only advisory. Annexation At the urban fringe, newly developing areas seek to be annexed to a municipality so as to save on certain urban services, such as police protection, fire protection,and public utilities. A few states;such as Illinois, permit the exe- cution of annexation agreements whereby local governments and private devel- opers may negotiate as to public facility improvement costs. Even in states without such enabling laws, governments frequently have exercised such nego- tiating powers because of their strong bargaining position. Again, the issue here is the shifts and balances between private and public expenditures for capital facilities. Official maps Several states have provisions whereby local government can adopt official map ordinances. These ordinances permit local governments to specify the location of particular improvements—such as future park sites or the right-of-way for a future street—on a map.The designation of such a site on the official map puts private property owners on notice of a governments intention to construct a public facility. Placement of land within such an area may permit governments to deny zoning and building permits so that the even- tual cost of acquisition may not become prohibitive. However,there is usually a strict time limit(between one and three years)by the end of which a public body must purchase or condemn the land. Cost–revenue studies as a management tool' • Up to this point the emphasis in this chapter has been on public revenue and cost issues, relating to planning,that focus on citywide policy issues. Sources of revenue, intergovernmental aid. the budgeting function, and capital improve- ments programming tend to be comprehensive views that relate to fundamental broad policy issues. This section deals with the public revenue and cost factors involved when government is regulating new development or redevelopment. These techniques are used to help analyze or manage a particular development at a specific time and place. The concept of comparing public costs and revenues of a particular develop- ment proposal had its modern roots in the planning field in the late 1930s. The 1920s had seen a large amount of subdividing of properties into residential neighborhoods that were "premature" in that they remained forever vacant. A number of communities were trying to renew these "dead" subdivisions and would prepare simple analyses that showed how much more money would flow into the city treasury if the land were developed with improvements instead of remaining tax delinquent. Beginning in the late 1940s and the 1950s cost–revenue concepts were used in both central city and suburban planning situations.In the central city context urban renewal project.reports would frequently contain estimates showing how little tax revenue was now being generated by a'deteriorated neighborhood and how much it cost to service that neighborhood; these reports would then com- pare revenues and expenditures of the area after renewal. In the suburban context the 1950s was a time of:aggressive annexation in many communities. Because planning agencies did not control the precise loca- tion of urban development,they had to take annexation requests from wherever they came and in whatever location. The cost of extending major sewer and water lines and serving new populations encouraged planners and public admin- istrators to study the costs and revenues of annexing a particular area. By the late 1960s and early 1970s the focus of cost–revenue studies shifted to the problem of growth management. This came about through a combination of factors: inflation and the resulting increasing public costs for all services; a