A majority of the qualified voters of an annexed area may petition the City Council to disannex the area if the city fails or refuses to provide services or to cause services to be provided within the area or if construction of any new facilities has not begun within two (2) years or substantially completed within four and one-half (4-1/2) years after the date of annexation. If the area is disannexed, it may not be annexed again within five (5) years.