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Most U.S. states are split into counties, and all land is within one of those, but much of the land remains solely under county jurisdiction, not within any incorporated city or town. A city can annex a parcel of land by request of the property owner, or a larger area by vote of the residents. Cities usually have to be contiguous, but this can include thin strips along roadways, allowing them to annex far-out properties. Here’s a map of Orlando annexation by decade: http://www.ci.orlando.fl.us/gis/pdf/GeneralCityMaps/Annexations%20Map%2011x17%20General.pdf In some places you can see the individual parcels that were annexed or left out.