[722]*722LANDAU, J.
In this action for declaratory and injunctive relief, the City of Eugene (City) seeks to compel defendant to connect her residence, located outside the City’s corporate limits, to the City’s sanitary sewer system. Defendant contends that the City cannot compel an extraterritorial connection without providing notice to the affected property owner, holding hearings and establishing the inadequacy of her current system. The City contends that state statutes either expressly or impliedly authorize it to compel connection on demand. Both parties moved for summary judgment. The trial court granted the City’s motion, denied defendant’s motion and entered judgment requiring defendant to connect to the City’s sewer system. On appeal, defendant contends that the trial court erred in granting the City’s motion and in denying hers. We agree and reverse and remand for entry of judgment in favor of defendant.
The relevant facts are not in dispute. Defendant owns real property in Lane County in what is known as the “River Road” area. Although the area around the property is bordered on three sides by property within the City, defendant’s property is located approximately one-half mile outside the City’s corporate limits. There is a house on defendant’s property, which contains plumbing fixtures that discharge wastewater. The City created a local improvement district for the purposes of installation and operation of sanitary sewers. Defendant’s property is located within the local improvement district and is within 160 feet of a City sanitary sewer line that apparently is located on a right-of-way in the unincorporated area. The City demanded that defendant connect her house to the City system. Defendant declined.
In its complaint, the City claimed authority to compel individuals outside the City limits to connect to the City system under Eugene Municipal Code section 6.471(1), which provides:
“[W]ithin the city or within a local improvement district for wastewater sewers created by the council, all structures in which plumbing fixtures are installed or which discharge wastewater and are located within 160 feet of the city [723]*723wastewater system or of a public right-of-way containing the city wastewater system shall be connected to the city wastewater system in a manner prescribed by this code and shall discharge all wastewater into such system.”
In her answer, defendant alleged that, among other things, the City lacks authority to compel owners of property located outside the City’s municipal boundaries to connect to the City system. Eugene Code section 6.471(1), she contended, is invalid because it is inconsistent with state law and Lane County ordinances that limit the extent to which cities may exercise authority beyond their corporate boundaries.
In her motion for summary judgment, defendant contended that, although other statutes and ordinances may authorize cities to compel extraterritorial sewer connections, the City did not comply with the requirements of any of them. Specifically, defendant noted that Lane County Code section 9.410 et seq permits cities to compel extraterritorial connections only after notice to affected property owners and express findings “that the property is serviced by an inadequate sewerage disposal system.”
In its motion for summary judgment, the City conceded that Lane County Code section 9.410 provides authority to compel extraterritorial sewer connections only on specified conditions and further conceded that it had not complied with any of those conditions. The City nevertheless contended that it derives its authority to compel extraterritorial connections from ORS 224.020, which provides authority to do “all things * * * which may be deemed necessary or essential for the proper disposal of sewerage and drainage from the city and adjacent territory.”
Defendant replied that, among other things, the City reads too much into ORS 224.020. According to defendant, the statute speaks to the authority of the City to acquire extraterritorial property, by purchase or condemnation, to construct and maintain a sewerage system, and — in that context — to do whatever is necessary to dispose of sewage and drainage from the adjacent territory. Alternatively, defendant argued that, even if ORS 224.020 applies, the authority it creates is limited to “adjacent” territory, and her property is not adjacent to any City boundary. The City replied that [724]*724her property is located in “adjacent territory” to the City, and that is all the statute requires.
On appeal, the parties reassert essentially the same arguments. Defendant argues that the City lacks authority to compel extraterritorial sewerage system connection simply on demand and without proof of need as required in Lane County Code section 9.410 et seq. The City contends that either ORS 224.020 expressly grants it the authority to demand connection without any proof of need or that that statute and others on the general subject of sewerage system construction impliedly create such authority.1
A city generally may exercise authority only within its corporate limits. Eugene McQuillin, 11 The Law of Municipal Corporations § 31.16, 226-27 (3d ed 1991) (cities generally do not have authority to construct sewer systems beyond city limits). The sole exception to that general rule is that a city may exercise authority outside its boundaries when a jurisdiction from which it draws its power to act — a county or the state — grants it that authority. See, e.g., State v. Port of Astoria, 79 Or 1, 19, 154 P 399 (1916) (“permission to employ extramural authority must be granted to cities and towns before the privilege can be exercised”). Thus, for example, a city cannot levy a special assessment district that includes land outside the city limits, unless a statute confers on that city the authority to do so. City of Klamath Falls v. Lewis, 24 Or App 703, 705, 546 P2d 1113 (1976). See also generally McQuillin, 14 The Law of Municipal Corporations § 38.52, 200 (3d ed 1987).
That exception to the general rule has been qualified further by a requirement that any grant of extramural authority be “clearly expressed.” As the Supreme Court explained in Richards et al v. City of Portland et al, 121 Or 340, 345, 255 P 326 (1927):
[725]*725“It is elementary that a municipality, acting either in its governmental or proprietary capacity, can do so only by virtue of express or implied authority conferred upon it. Ordinarily, the jurisdiction of a municipality ceases at its boundaries and for it to exercise extraterritorial jurisdiction its powers to do so must be clearly expressed[.]”
In other words, although municipal authority generally may derive from express or implied grants from the state, the power to act beyond municipal boundaries may not be implied and instead must be based on an expressed — indeed, on a “clearly expressed” — conferral of authority.
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[722]*722LANDAU, J.
In this action for declaratory and injunctive relief, the City of Eugene (City) seeks to compel defendant to connect her residence, located outside the City’s corporate limits, to the City’s sanitary sewer system. Defendant contends that the City cannot compel an extraterritorial connection without providing notice to the affected property owner, holding hearings and establishing the inadequacy of her current system. The City contends that state statutes either expressly or impliedly authorize it to compel connection on demand. Both parties moved for summary judgment. The trial court granted the City’s motion, denied defendant’s motion and entered judgment requiring defendant to connect to the City’s sewer system. On appeal, defendant contends that the trial court erred in granting the City’s motion and in denying hers. We agree and reverse and remand for entry of judgment in favor of defendant.
The relevant facts are not in dispute. Defendant owns real property in Lane County in what is known as the “River Road” area. Although the area around the property is bordered on three sides by property within the City, defendant’s property is located approximately one-half mile outside the City’s corporate limits. There is a house on defendant’s property, which contains plumbing fixtures that discharge wastewater. The City created a local improvement district for the purposes of installation and operation of sanitary sewers. Defendant’s property is located within the local improvement district and is within 160 feet of a City sanitary sewer line that apparently is located on a right-of-way in the unincorporated area. The City demanded that defendant connect her house to the City system. Defendant declined.
In its complaint, the City claimed authority to compel individuals outside the City limits to connect to the City system under Eugene Municipal Code section 6.471(1), which provides:
“[W]ithin the city or within a local improvement district for wastewater sewers created by the council, all structures in which plumbing fixtures are installed or which discharge wastewater and are located within 160 feet of the city [723]*723wastewater system or of a public right-of-way containing the city wastewater system shall be connected to the city wastewater system in a manner prescribed by this code and shall discharge all wastewater into such system.”
In her answer, defendant alleged that, among other things, the City lacks authority to compel owners of property located outside the City’s municipal boundaries to connect to the City system. Eugene Code section 6.471(1), she contended, is invalid because it is inconsistent with state law and Lane County ordinances that limit the extent to which cities may exercise authority beyond their corporate boundaries.
In her motion for summary judgment, defendant contended that, although other statutes and ordinances may authorize cities to compel extraterritorial sewer connections, the City did not comply with the requirements of any of them. Specifically, defendant noted that Lane County Code section 9.410 et seq permits cities to compel extraterritorial connections only after notice to affected property owners and express findings “that the property is serviced by an inadequate sewerage disposal system.”
In its motion for summary judgment, the City conceded that Lane County Code section 9.410 provides authority to compel extraterritorial sewer connections only on specified conditions and further conceded that it had not complied with any of those conditions. The City nevertheless contended that it derives its authority to compel extraterritorial connections from ORS 224.020, which provides authority to do “all things * * * which may be deemed necessary or essential for the proper disposal of sewerage and drainage from the city and adjacent territory.”
Defendant replied that, among other things, the City reads too much into ORS 224.020. According to defendant, the statute speaks to the authority of the City to acquire extraterritorial property, by purchase or condemnation, to construct and maintain a sewerage system, and — in that context — to do whatever is necessary to dispose of sewage and drainage from the adjacent territory. Alternatively, defendant argued that, even if ORS 224.020 applies, the authority it creates is limited to “adjacent” territory, and her property is not adjacent to any City boundary. The City replied that [724]*724her property is located in “adjacent territory” to the City, and that is all the statute requires.
On appeal, the parties reassert essentially the same arguments. Defendant argues that the City lacks authority to compel extraterritorial sewerage system connection simply on demand and without proof of need as required in Lane County Code section 9.410 et seq. The City contends that either ORS 224.020 expressly grants it the authority to demand connection without any proof of need or that that statute and others on the general subject of sewerage system construction impliedly create such authority.1
A city generally may exercise authority only within its corporate limits. Eugene McQuillin, 11 The Law of Municipal Corporations § 31.16, 226-27 (3d ed 1991) (cities generally do not have authority to construct sewer systems beyond city limits). The sole exception to that general rule is that a city may exercise authority outside its boundaries when a jurisdiction from which it draws its power to act — a county or the state — grants it that authority. See, e.g., State v. Port of Astoria, 79 Or 1, 19, 154 P 399 (1916) (“permission to employ extramural authority must be granted to cities and towns before the privilege can be exercised”). Thus, for example, a city cannot levy a special assessment district that includes land outside the city limits, unless a statute confers on that city the authority to do so. City of Klamath Falls v. Lewis, 24 Or App 703, 705, 546 P2d 1113 (1976). See also generally McQuillin, 14 The Law of Municipal Corporations § 38.52, 200 (3d ed 1987).
That exception to the general rule has been qualified further by a requirement that any grant of extramural authority be “clearly expressed.” As the Supreme Court explained in Richards et al v. City of Portland et al, 121 Or 340, 345, 255 P 326 (1927):
[725]*725“It is elementary that a municipality, acting either in its governmental or proprietary capacity, can do so only by virtue of express or implied authority conferred upon it. Ordinarily, the jurisdiction of a municipality ceases at its boundaries and for it to exercise extraterritorial jurisdiction its powers to do so must be clearly expressed[.]”
In other words, although municipal authority generally may derive from express or implied grants from the state, the power to act beyond municipal boundaries may not be implied and instead must be based on an expressed — indeed, on a “clearly expressed” — conferral of authority.
In this case, the City contends that it obtains its “clearly expressed” conferral of extraterritorial authority from the last sentence of ORS 224.020. The complete statute provides:
“Whenever the council of any city deems it necessary or expedient to construct a sewer partially within and partially without the city, or to construct a sewer outlet, or do any other work, acts or things without the city for proper disposal of sewerage and drainage, the city, through its council, may acquire by purchase, condemnation or otherwise, any property rights of way, easement and other rights without the city as may be needed or deemed essential for the construction of the sewer, sewer outlet, or other works. It may also provide for and do all things which may be necessary or deemed essential for proper construction of such sewer, sewer outlet, and for other works, acts and things which may be deemed necessary or essential for the proper disposal of sewerage and drainage from the city and adjacent territory.”
ORS 224.020. In examining the intended scope of the authority conferred by that statute, we do not parse the meaning of the words in a vacuum. We consider other statutes in pari materia, if not strictly speaking as “context” of the statute— because the other statutes were later enacted, see Stull v. Hoke, 326 Or 72, 79-80, 948 P2d 722 (1997)-then certainly because of our obligation to give full meaning and effect to all [726]*726relevant statutory provisions. In that regard, we note that at least two other statutes do confer authority on municipalities to act beyond their boundaries with respect to the construction of sewers, both subject to substantial conditions.
First, ORS 225.030 provides that cities that own a system of waterworks “may sell, supply and dispose of water * * * from such system” both within and without the city limits and “may make contracts in reference to the sale and disposal of water * * * from such system * * *.”2 The statute has been construed to allow individuals outside city limits voluntarily to contract with a city to provide sewer services. Bell v. City of Corvallis, 25 Or App 821, 828-29, 551 P2d 125, rev den (1976).
Second, ORS 222.840 et seq provides that cities may compel annexation of unincorporated areas within an urban growth boundary, without consent by the owners of the property, to construct sewage, garbage or other treatment works.3 Cities may do so, however, only after giving notice to the property owners, conducting hearings and making express [727]*727findings that a danger to public healthjustifi.es the compelled annexation. ORS 222.870; ORS 222.875.4
We also note that there exists a Lane County ordinance that confers authority on the City to compel extramural connection to the City sewer system in limited circumstances. To rely on that ordinance, however, the City must provide notice to affected property owners, conduct hearings and make express findings “that the property is serviced by an inadequate sewerage disposal system.” Lane County Code § 9.420.5 Interestingly, that code provision originated with a request by the City for an ordinance clearly conferring authority to compel extramural connections, because the City believed it needed such an ordinance to satisfy a federal Environmental Protection Agency sewerage construction grant requirement that there be authority to require nonresidents to connect to the City system. At the time, the City believed that the other statutes aforementioned did not confer authority on it to compel extramural sewer system connections. Since the adoption of that county code provision, however, the City concluded that it was too time consuming and expensive to provide notice to property owners and to [728]*728hold hearings.6 Accordingly, the City enacted its own ordinance, Eugene Code section 6.471, which purports to authorize the City to compel any structures located within 160 feet of the City’s jurisdiction to connect to the City’s sewerage system.
With those relevant, related provisions in mind, we turn to the language of ORS 224.020. The first sentence of the statute plainly is limited to a grant of authority to acquire extraterritorial property rights needed to construct a city sewer system. It affords no authority to compel anyone to connect with such a system. The second sentence authorizes cities to take other actions “which may be necessary or deemed essential for proper construction of such sewer * * That, too, provides no authority for extraterritorial connections. Finally, the statute permits cities to take other action “necessary or essential for the proper disposal of sewerage and drainage from the city and adjacent territory.” That provision, by its terms, does not mention compelling extraterritorial connection. That comes as no surprise, given its immediate context, which is authorization to acquire extraterritorial property to facilitate the construction of a city sewer system, not the acquisition of additional sewage to collect through the system. There is mention of disposal of sewerage and drainage from “adjacent territory.” We find the City’s contention that those two words constitute an express authorization to compel extraterritorial connection implausible, however, for several reasons.
First, the text of the statute itself militates against such a construction. To construe “adjacent territory” as the [729]*729City suggests ignores the context of the statute’s authorization to acquire extraterritorial property and take other measures to ensure the proper construction and operation of the system that a city may construct. Nowhere does ORS 224.020 speak to the subject of acquiring additional sewage for that system to process through compelling connection to households located outside city limits.
Second, the reference to “adjacent territory” also must be considered in the context of the other statutes mentioned above, which permit persons outside city limits voluntarily to connect to a city sewer system. ORS 224.020, in fact, has been mentioned in the context of voluntary contracts to provide service to persons in territory adjacent to a city. Bell, 25 Or App at 826-27. In that light, the reference to “adjacent territory” makes perfect sense and is consistent with other relevant statutes.
Third, the City’s reading of the term “adjacent territory” to authorize compelled extraterritorial sewerage system connections on mere demand conflicts with ORS 222.840 et seq, which expressly allows cities to compel extraterritorial connections, but only after notice, hearings and findings of public health necessity or existing system inadequacies. ORS 222.875. If the City is correct that it lawfully may enact an ordinance that simply declares that any structure within a certain distance from the City’s boundaries must connect to the City sewer system — without notice to affected landowners, without any hearings and without any findings as to the adequacy of existing systems — then ORS 222.840 et seq effectively has been eviscerated. We are constrained not to interpret statutes in a maimer that renders the legislature’s handiwork meaningless, if possible. ORS 174.010.7
[730]*730The City insists that the authority to construct systems to dispose of waste from “adjacent territory” must imply the authority to collect it. The City’s argument, however, is a non sequitur. Particularly in light of the aforementioned statutes that permit voluntary extraterritorial sewer system connections, it does not necessarily follow that the reference in ORS 224.020 to disposal of waste from “adjacent territory” means that the City can compel involuntary sewer system connection.8
The City alternatively argues that ORS 454.805 “specifically recognizes a municipality’s authority to require property owners to connect their homes to the sewer system.” In that regard, the City certainly is correct, but its observation does not advance its cause. ORS 454.805 provides that “[w]hen a municipality requires property owners to connect their homes” to a city sewer system, it may assess the installation costs against the property owners. The statute does not mention requiring property owners located outside a city’s boundaries to connect to any system. In any event, it is not contested that a municipality, in some circumstances, may compel extraterritorial sewer system connections; that much is clear from ORS 222.840 et seq. The question is whether a [731]*731city may do so by mere declaration, without notice to affected landowners, opportunity for a hearing and findings of public health need or existing system inadequacies. ORS 454.805 says nothing about that.
The City also argues that ORS 454.215(1) similarly authorizes it to compel owners of property outside its municipal boundaries to connect to its sewer system. That statute provides, in relevant part:
“Any municipality may own, acquire, construct, equip, operate and maintain, either within or without its statutory or corporate limits, in whole or in part, disposal systems with all appurtenances necessary, useful or convenient for the collection, treatment and disposal of sewage. The municipality may acquire by gift, grant, purchase or condemnation necessary lands and rights of way therefor, either within or without its statutory or corporate limits.”
ORS 454.215(1). The statute thus clearly authorizes the acquisition of property outside of municipal boundaries to facilitate the operation of a city’s sewer system. Nowhere, however, does it expressly or impliedly authorize compelling the addition of customers to the system.
In short, none of the City’s arguments supports its ultimate contention that it has statutory authority merely to declare by ordinance that property located outside of its municipal boundaries must connect to its sewage disposal system. None of the statutes on which it relies grants it such extraterritorial authority. At the very least, those statutes are reasonably capable of more than one construction and do not satisfy the “clearly expressed” grant of extramural authority that the law requires. Richards, 121 Or at 345. We conclude, therefore, that the trial court erred in granting the City’s summary judgment motion and in denying defendant’s motion.
Reversed and remanded for entry of judgment in favor of defendant.