<P> As one textbook produced for use in Texas schools has openly acknowledged, Texas counties are prone to inefficient operations and are vulnerable to corruption, for several reasons . First, most of them do not have a merit system but operate on a spoils system, so that many county employees obtain their positions through loyalty to a particular political party and commissioner rather than whether they actually have the skills and experience appropriate to their positions . Second, most counties have not centralized purchasing into a single procurement department which would be able to seek quantity discounts and carefully scrutinize bids and contract awards for unusual patterns . Third, in 90 percent of Texas counties, each commissioner is individually responsible for planning and executing their own road construction and maintenance program for their own precinct, which results in poor coordination and duplicate construction machinery . </P> <P> Cities may be either general law or home rule . Once a city reaches 5,000 in population, it may submit a ballot petition to create a "city charter" and operate under home rule status (they will maintain that status even if the population falls under 5,000) and may choose its own form of government (weak or strong mayor - council, commission, council - manager). Cities under general law status have only those powers authorized by the State . Annexation policies are highly dependent on whether the city is general law (annexation can only occur with the consent of the landowners) or home rule (no consent is required, but if the city fails to provide essential services, the landowners can petition for de-annexation), and city boundaries can cross county ones . The city council can be elected either at - large or from single - member districts . Ballots are on a nonpartisan basis (though, generally, the political affiliation of the candidates is commonly known). </P> <P> With the exception of the Stafford Municipal School District, all 1,000 + school districts in Texas are "independent" school districts . State law requires seven trustees, which can be elected either at - large or from single - member districts . Ballots are non-partisan . The Texas Education Agency has state authority to order consolidation of school districts, generally for repeated failing performance, as was the case with the Wilmer - Hutchins Independent School District . </P> <P> In addition, state law allows the creation of special districts, such as hospital districts or water supply districts . </P>

Where did the county form of government began