Opinion ID: 2023779
Heading Depth: 1
Heading Rank: 5

Heading: Annexation Procedure and the Standard of Review

Text: The framework of Indiana's annexation laws has long featured three basic stages: (1) legislative adoption of an ordinance annexing certain territory and pledging to deliver certain services within a fixed period; (2) an opportunity for remonstrance by affected landowners, and (3) judicial review. Although the applicable statutes have undergone many changes over the years, certain general propositions of law have long applied. The statutes invest exclusive authority to annex territory in the governing body of a municipality. City of Aurora v. Bryant, 240 Ind. 492, 165 N.E.2d 141 (1960). Annexation is a legislative function and becomes a question subject to judicial cognizance only upon review as provided by statute. City of Indianapolis v. Wynn, 239 Ind. 567, 157 N.E.2d 828 (1959). Indeed, to the extent annexation statutes have seemed to require courts to make determinations of a non-judicial nature, courts have refused, finding themselves to be without the power to do so under the separation of powers clause of the Indiana Constitution, Art. 3 § 1. See, e.g., In re City of Mishawaka, 259 Ind. 530, 289 N.E.2d 510 (1972). A court is not authorized to act unless a remonstrance is filed; if a remonstrance is not filed, the annexation becomes effective. Wynn, 239 Ind. 567, 157 N.E.2d 828. The effect of filing a remonstrance is to abate the culmination of the annexation pending review in the courts, where the burden is on the municipality to sustain the annexation by showing that it has complied with the requirements of the statute. Id. Because the city's authority to annex territory is defined by statute, the court's duty is to determine whether the city has exceeded its authority and met the conditions imposed by the statute. King v. City of Bloomington, 239 Ind. 548, 159 N.E.2d 563 (1959); Bryant, 165 N.E.2d at 147. City of Hobart v. Chidester, 596 N.E.2d 1374 (Ind. 1992). Even though the burden of pleading is on the remonstrator, the burden of proof is on the municipality to demonstrate compliance with the statute. The court sits without a jury and enters judgment on the question of annexation after receiving evidence and hearing argument from both parties. Ind. Code Ann. § 36-4-3-12 (West 1997). Once the trial court has decided whether to approve an annexation ordinance, either the municipality or the remonstrators may appeal. Where, as here, special findings are volunteered by the trial court, we apply the standard of review set out in Trial Rule 52. Chidester v. City of Hobart, 631 N.E.2d 908 (Ind.1994). Issues of fact are reviewed for sufficiency of the evidence, and the appellate court looks to the record only for evidence favorable to the judgment. Id. at 910. Questions of law, of course, are purely the stuff of appellate work, and we review them de novo. MacLeod v. Hunter, 671 N.E.2d 177, 178 (Ind.Ct.App.1996). While annexation appeals commonly revolve around disputes over the provision of services, the adequacy of the City's fiscal plan is not at issue in this case. Instead, the dispute focuses on rather more technical matters relating to whether the land in question is adequately urban to meet the code requirements for annexation. The urban character provisions of our present law permit annexation if the land is contiguous to the municipality and if one of the following is true: (A) The resident population density of the territory sought to be annexed is at least three (3) persons per acre; (B) Sixty percent (60%) of the territory is subdivided; (C) The territory is zoned for commercial, business, or industrial uses. Ind.Code Ann. § 36-4-3-13(b) (West Supp. 1997). Relatively rural territory may also be annexed without meeting any of these three standards if it is needed and can be used by the municipality for its development in the reasonably near future. Ind.Code Ann. § 36-4-3-13(c)(2) (West Supp.1997).