Opinion ID: 2217945
Heading Depth: 1
Heading Rank: 4

Heading: Compliance with Statutory Requirements.

Text: Des Moines next contends that even if the board had jurisdiction to consider the West Des Moines petition, that petition failed to meet the statutory requirements of chapter 368. More specifically, Des Moines asserts that the initial petition West Des Moines filed with the board was not signed by all property owners of the proposed annexation territory as required by section 368.7. According to Des Moines, this failure was not cured by West Des Moines' first addendum which changed the description of the territory to exclude property whose owners had not signed the initial petition, and that all property owners that did sign the first petition did not sign the changed description. Des Moines also points out that when certain property owners requested to withdraw their signatures from the petition because they never consented to the changed description, their requests were denied. Consequently, Des Moines contends that by denying the requests to withdraw, the board effectively changed the nature of the proceedings from voluntary to involuntary without regard to the procedural requirements for involuntary annexation. Des Moines further asserts that West Des Moines' second addendum did not cure the invalid signatures on the initial petition. Des Moines argues that the signatures were invalid because some were penned by individuals acting without authorization for property owned by corporations, while others were allegedly penned by persons lacking authority to sign. Des Moines also contends that the subsequent ratification of those signatures was invalid. Finally, Des Moines claims that certain documents contained in the second addendum were never presented to, or proved by, the West Des Moines city council. At the outset, we note our previous holding that a failure to literally comply with every word of our annexation statutes is not fatal. See Mason City v. Aeling, 209 N.W.2d 8, 11 (Iowa 1973). Substantial compliance with prescribed procedural law is sufficient, and legislation establishing the method by which municipal corporate boundaries may be extended is to be liberally construed in favor of the public. See City of Clinton v. Owners of Property, Etc., 191 N.W.2d 671, 674 (Iowa 1971). It is apparent from chapter 368 that there is a distinction between voluntary and involuntary annexations. When all residents of a territory desire to be annexed to a city, and therefore make application for annexation, the need to have all available information regarding topography, services and the like is not great. Nor is a hearing to determine both sides of the issue necessary. Requiring the technical elements for an involuntary annexation be met, as set forth in section 368.11, for a voluntary annexation within another city's urbanized area, would render meaningless the distinction between voluntary and involuntary annexations. The entire statutory scheme of chapter 368 demonstrates an intent to have the city development board oversee and approve orderly city development. The legislature treats voluntary annexations differently to encourage these arrangements by removing the more costly and involved procedures governing involuntary annexations. Applying the provisions of sections 368.11, .12, .14, .15, .16, .17, .18 and .19 is unnecessary, and would thwart the legislative scheme of distinguishing between voluntary and involuntary annexations. Accordingly, we find that the requirements of division III of chapter 368 for involuntary annexations with regard to the petition, appointment of the committee, public hearing, approval or disapproval by the committee, and the election are not strictly applicable to voluntary annexations. We are satisfied that the challenged petition of West Des Moines substantially complies with the statutory requirements set out in chapter 368. We are also satisfied that none of the parties, nor the applicant property owners, were misinformed or misled by the minor changes permitted by the board in the legal description of the annexation territory, and that requiring all consenting property owners to sign a new petition for annexation, because a few pieces of property would not be included in the newly described annexation territory, would unduly thwart the voluntary annexation process. The argument by Des Moines that all of the owners of land in a territory adjoining West Des Moines did not request the annexation is unpersuasive. Sections 368.1(10) and .7 by definition of territory appear to contemplate the existence of islands of unannexed land which would not prevent an annexation of other land. In any event, the evidence before the board was sufficient to allow the finding that the petitioning owners had complied with the statute in this voluntary annexation. Moreover, we agree with the board that its jurisdiction cannot be defeated by the attempted withdrawal of some petitioning owners after the board's jurisdiction was obtained. This belated withdrawal, Des Moines argues, resulted in the annexed territory having less than 200 feet of common boundary with West Des Moines, thus failing to meet the requirement of section 368.1(11). We hold that jurisdiction was legally obtained by the board and was not ousted by any withdrawal. Cf. Ward v. Incorporated Town of Clover Hills, 240 Iowa 900, 906, 38 N.W.2d 109, 113 (1949).