Given the postwar migration of residents, businesses, and jobs, the city's tax base declined. It had difficulty funding education, sanitation, and traffic control within the city limits. In addition, residents in unincorporated suburbs had difficulty obtaining municipal services, such as sewage and building code enforcement. In 1958, a study recommended the city of Jacksonville begin annexing outlying communities to create the needed larger geographic tax base to improve services throughout the county. Voters outside the city limits rejected annexation plans in six referendums between 1960 and 1965.