I don't claim to know how The Woodlands governs itself. After reading this article, I'm still not sure that I understand it. Besides, as someone who's always lived in a big city, the idea of there not being some kind of Mayor and City Council is a little weird to me. But hey, it works for them, and that's what matters.
I figure the propositions to change their structure of governance to comply with the terms of the agreement with the city of Houston regarding annexation will pass easily enough, but I got a bit of a chuckle out of this paragraph:
A special tax district would allow The Woodlands Development Company to protect its investment and continue building without any local municipal restraints, say those opposed to expanding the district.