In 1932, there were only of hard-surfaced secondary roads, out of almost . By 1972, there were only of unpaved secondary roads in Virginia's system. The state's secondary roads system had also grown by 30% from its original size, despite the large geographical areas (and miles of roadway) lost over the years to expanding and additional independent cities and incorporated towns. In the years from 1952 to 1976, virtually all of the counties in the extreme southeastern portion of the state in the Hampton Roads region became consolidated into independent cities; Princess Anne County, Norfolk County, Nansemond County, Elizabeth City County, and Warwick County all became extinct, although as previously noted, Warwick County was never in the state secondary road system, and Nansemond County received a special exception to stay in the system for an additional 30 years, which ended in 2006. In most other areas of the state, additional towns became incorporated and/or converted to independent city status, and both groups grew in territory, primarily through annexations, such as large portions of Chesterfield County that were annexed by the City of Richmond in 1944 and 1970. However, despite VDOT's (and its predecessor agencies') accomplishments, the relationship between the counties and the state highway officials since 1932 has always been somewhat strained. The 1932 Act took not only financial responsibility from the counties and transferred it to the state, but power and authority as well. Under the Code of Virginia, as amended, "The Boards of Supervisors or other governing bodies...shall have no control, supervision, management, and jurisdiction over...the secondary system of state highways" (§33.1-69). Late in the 20th century, the problems inherent in this arrangement became especially apparent with regards to the secondary roads system in many fast-growing suburban counties outside incorporated towns and cities. A state-sponsored study in 1998 focusing on 14 of the fastest-growing counties identified such issues as drainage, speed limits, and planning and coordination of roads with development as those local leaders felt should be within their ability to control, while the authority to do so was in fact, held by a state agency instead. Citizens seeking accountability, accused both the various county and VDOT officials of finger-pointing. According to the report, "Such an arrangement is unusual among the 50 states." In the early 21st century, the Virginia General Assembly was considering legislation to allow some counties to choose to resume control and care for the secondary highways within their boundaries. James City County, with a population that grew by 56% between 1980 and 1990 according to the 1998 VDOT study, was reported by the local news media to be under consideration for a pilot project of this type.