Bradley County Commission approves 20-year growth boundary and annexation interlocal agreement, 14-0

The Bradley County Commission voted unanimously at its April 2025 voting session to adopt an updated 20-year urban growth boundary and to approve an annexation interlocal agreement with the cities of Cleveland and Charleston.

The agreement, dated 04/03/2025 and presented to the commission alongside the map, outlines new limits on noncontiguous annexation by referendum inside and outside the growth boundary, commitments by the cities to annex and assume maintenance of certain road segments and bridges, and a mechanism to address fire-tax revenue impacts. Commissioner Slater moved to approve the growth-policy coordinating committee's recommendation and the interlocal agreement; Commissioner Winters seconded. The motion passed 14-0.

Why it matters: The boundary and agreement set the framework for how Cleveland and Charleston may expand by annexation for the next 20 years, including which roads the cities will absorb and how the parties will address lost tax revenue for fire services.

Key provisions in the written agreement as presented to the commission state that the cities agree not to pursue annexation by referendum both outside and inside the growth boundary; that the city will annex and maintain county-owned road segments that meet city standards and exceed 1,000 linear feet; and that the county shall approve annexation of county-maintained roads and opened/unopened alleys when statutory annexation provisions are used. The agreement specifically names Tasso Road Northeast (through the last neighborhood driveway) and sections of Minnis Road for annexation by the City of Cleveland.

The agreement also creates a six-person fire-tax committee charged with recommending, by Aug. 1, 2025, a methodology to hold the county harmless for any defined period for loss in fire tax revenue. Until the committee reaches a majority recommendation, the City of Cleveland must pay the current fire tax amount for any annexed property for one year from the annexation date, the document says.

Mayor Ricky Davis, who opened the meeting's discussion of the growth plan, described the interlocal agreement as the result of months of negotiation and public input and urged the commission to approve it, saying the proposal "represents a good deal for the people of Bradley County and the residents of the cities of Cleveland and Charleston." The mayor also stressed that forced annexation is prohibited under state law and that property owners cannot be annexed without their consent.

Commission discussion focused on the legal and practical relationship between the growth-map filing (which limits amendments for a multi-year period) and the interlocal agreement's 20-year term. Commissioners were told the agreement is drafted to remain in effect for 20 years or until a subsequent amendment of the growth plan by any party, whichever comes first. After clarifying questions, the commission approved the substitute motion to accept the map and the interlocal agreement.

The commission's vote was recorded as 14 in favor, none opposed. Commissioners recorded as voting yes were: Alford; Krafft; Blake; Collins; Gilbert; Thompson; Goins; Slater; Mason; Ledford; Rogers; Winters; Beatty; and Hughes.

The body will transmit the adopted map and agreement to the appropriate state offices and return the matter to city partners for their formal steps under the interlocal agreement.