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advantages annexation area needing common area wide assessments Board of Supervisors charter township city of Flint common problems contribute corporate unit cost costly county government densely settled areas densely settled fringe distribution duplication economical elected established existing problems existing township existing units facilities federated plan Flint area Flint community Flint Metropolitan Area form of government fringe residents functions future Genesee County governmental bodies governmental organization governmental structure home rule incorporation integrated approach joint effort jurisdiction limited ment metropolitan district multiple units needing common services officials organizational structure overall permit population clusters provide the services provision of services Report resi residential respect sale of service school districts segmented approach separate cities service deficiences service needs single governmental solve square mile tax burden taxation tion township government uniform tax unit of government urban services urban type services urbanized area vice needs villages vrould wealth whole area