USA > Illinois > Cook County > History of Cook County, Illinois : being a general survey of Cook County history, including a condensed history of Chicago and special account of districts outside the city limits : from the earliest settlement to the present time, volume II > Part 43
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A municipal lodging house for the city was demanded. The police stations were thrown open to sufferers during the severe weather, and it was declared to be a matter of economy as well as humanity that the city should own at least one municipal lodg- ing house. It meant the control of worthless and dissolute char-
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Proposed Piers and Harbor
old Bar
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Chicago Harbor as first designed in 1834.
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acters and probably their amélioration and final return to de- cency and competence. The proposition that the city should own crematories was called to the attention of the public. For years the city had been accustomed to deposit its filth on low lands in clay holes and to cover the same slightly but not permanently. The rapid expansion of the residence district called for reform in this respect, and finally came the demand that garbage and perishable matter of all descriptions should be reduced to ashes in crematories. Accordingly, during 1900 the city appropriated $100,000 for the purpose of introducing this innovation. There was established at the House of Correction a garbage incinerating plant, which showed a capacity to dispose of thirty tons of garbage per day.
During the year, also, the city made an appropriation for estab- lishing a municipal library. Late in the year, everything being in readiness, this institution was thrown open to the public. A bureau of statistics was added to the municipal library a little later. Ex- perts to examine the special assessment rebate funds and accounts were appointed. These rebate accounts had long been a disgrace to the city. No satisfactory material had yet been found to meet all the requirements of Chicago street traffic. The most satisfactory product was dressed granite block pavement. Notwithstanding the great cost of this pavement, it was believed to be the cheapest in the end. A wide-tire ordinance was proposed.
The wonderful growth of the Department of Public Works dur- ing recent years was noted. The department was so gigantic and its branches so numerous and apparently complicated that perhaps more than one head should be appointed to direct its affairs. It was recommended that the department be divided into three or four in- dependent sections with suitable heads and branches. Many thought that the water department should be an independent body and should include the functions of pumping stations, construction of new pumping stations, building of new tunnels, extension of water mains, and laying water service pipes.
An important problem yet unsettled was that of street railway franchises. Definite action was deferred because it was not yet settled whether the ninety-nine-year franchise of 1865 was legal and therefore operative. It was now learned that the ninety-nine year lease did not rest upon as solid a foundation as the street rail- way companies desired the public to believe. Its weaknesses were pointed out and claims under it were declared to be unfounded.
Early in May, 1901, the local transportation committee decided to appoint three subcommittees-one to investigate the street car service, one to consider subways, and one to settle the terms of new franchise grants. The committee practically decided at this time that the city should assume the initiative concerning the whole sub- ject of street railway operations. Up to this date the Council had shown an unaccountable subserviency to the plans of the street car
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companies and a strange submission to the inconveniences of street car operations. This servile policy had prevailed since the Civil War and had blanketed the city with inefficiency since 1883. A change was now demanded and inaugurated.
The special assessment nightmare became a bucking bronco in 1901. One victim said that in being made rich by special assess- ments as had been promised, he was reduced to abject poverty be- cause there were no buyers of his property. The vast increase in value promised did not accompany the alleged improvement made under the special assessment. Thus the procedure amounted to confiscation and was therefore unconstitutional. But there was now displayed a more rational view, less inconsiderate action, and an approaching dawn of common sense in municipal proceedings, rather than a covert partisan intrigue to court public favor in order to secure political advantage, popularity, prestige and power.
The city administration of 1901 made no secret of its wish to secure a greater revenue. It was known that an assessable valua- tion of $276,000,000 under the 5 per cent limitation meant the curbing of greatly desired municipal operations. It was not ex- pected that the high valuation of 1899 would be maintained, but it was hoped that the valuation of 1900 would not be reduced. The just assessment of city corporations, it was known, meant suitable revenue for municipal expenses. In their extremity, threatened with insufficient revenue, the city government concluded to attack the validity of the 5 per cent limitation.
In his message of May, 1903, Mayor Harrison stated that the traction question was the most important one then before the city for settlement. The recent passage by the Legislature of the Muel- ler bill, granting to municipalities the rights to own, control and operate street car lines, made it possible to include in a franchise to a railway company a municipal ownership clause which would protect the city without injury to the company. This law was passed upon the recommendation of many citizens of Chicago and was a step so far in advance as to attract general attention. The public opinion law, which likewise was recently passed, made it possible to submit proposed ordinances to the people. These laws were adopted in anticipation of the expiration of the railway fran- chises during the approaching July. At this date there was a further popular demand for the municipal ownership of public util- ities. It was the announced maxim of many at this date that "The streets belong to the people." Accordingly, there was a general demand for the extension of street railway franchises for a limited period in order that the companies might be enabled to put into immediate effect needed reforms in the interest of the people. The street car service was poor, the cable power was out of date, and the people, therefore, demanded that improvements should take place at once and that war between the city authorities and the rail-
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way companies should end upon the basis of the policy prescribed in the recent enactments of the Legislature. It was maintained by many that no public franchise in which the municipality was not a partner or did not receive full and adequate compensation should be made. The mistake of 1865 in granting the ninety-nine-year franchises was admitted and terminated at this time.
During the past six years the traction question had undergone almost a complete revolution in public opinion. Prior to that time the citizens were satisfied, perhaps, with existing street railway accommodations, small reductions in the fares, and franchises for inadequate compensation. Now they demanded a waiver of the ninety-nine-year act, the reference of extension ordinances to popu- lar vote, the enactment of municipal ownership legislation, and a limitation to the periods of franchises. Thus public opinion on this subject completely changed in about half a dozen years.
During 1902-03 great improvement in street paving was effected. Poor material was discovered and rejected and the best possible product was obtained and substituted. The charter revision consti- tutional amendment, though adopted in garbled form by the Legis- lature, and though the union of city and county was prevented, was yet a considerable advance in the direction of consolidation. A cru- sade to clean the streets was carried out with excellent results. However, it was admitted that the city could not be kept clean without the cooperation of the people.
A deplorable condition in the contractor's department was cor- rected. Stone men, sand men, material men and paving contractors formed combinations to defraud property owners and the city. Many of these dishonest practices were unearthed and crushed. Combinations to control all the bids on any contract were success- fully formed and carried into effect. Such frauds could be avoided if the city should on its own account complete the improvements in progress. The mayor emphatically endorsed the direct employment system. He therefore recommended the creation of a department of construction as a coordinate branch of the city government.
It was declared at this time that during the previous few years nearly all attempts to bribe an alderman were immediately made public by the men approached, whereas in former years such at- tempts were muzzled and secreted by aldermen who perhaps later succumbed to the corrupting influences. No longer, it was ostenta- tiously claimed, did the City Council regard public property as the legitimate spoils of success at the polls. The public welfare was now regarded as the first consideration rather than as the sole bene- fit of a party machine or a hungry horde of spoilsmen and heelers. Vast improvements in every department of the city government were effected. The immense growth of the municipality forced officers to adopt systematic operations everywhere under the ad- ministration. The tendency to differentiate was anticipated and
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new departments were instituted as soon as required. Mistakes were made, but were corrected as fast as discovered. There was no comparison, it was claimed, between the city administration of this date and that of only half a dozen years before.
The importance of reducing as far as possible the danger to the public at electric line intersections and crossings was duly consid- ered. There was almost a craze that proper precautions for the public welfare should be taken. The elevation of tracks, construc- tion of subways, guards and gates at crossings, and every other con- trivance to reduce danger were suggested and introduced. Low- level sewerage and high-pressure water systems were adopted and extended. A pneumatic tube system to keep up with the pro- gressive times was demanded. Never before did Chicago as a whole adopt and put in use so many modern and important improve- ments and enterprises.
The important advance of divorcing to a considerable extent the public schools from politics was made. Scandal under the old order of school affairs was avoided, but it was admitted that numerous faults were yet contained in the public school system of the city. Chicago at this date was and for many years before had been the storm center of labor problems and had suffered grievously under the afflictions. It was conceded that gambling and the accompanying vices had not been checked and controlled to the extent required by public morals and welfare. The difficulty of handling such questions was recognized. During the past six years it had come to be the practice of the city, which could not be said before, to require railroad companies to maintain street crossings in good condition, and where tracks had been elevated to keep the viaducts in good condition. This was more important than realized at first glance, as there were hundreds of such viaducts and crossings in the city.
Particular attention was called to the notable success achieved by the corporation counsel office. An immense volume of business, larger and better than ever before in the history of the city, was transacted. The duties and activities of the office were so extended and so improved by the employment of able counsel as to attract general attention by the saving accomplished. Important cases which in former years would have been wholly dropped and al- lowed to go by default were fought to a conclusion and in most instances were won by the city. It was shown that under the new order of the corporation counsel's office the department was bene- fited ten times over for all outlay due to expenses and attorney hire. The controller's report showed that the debt of the city during 1902 was. reduced $2,137,863. At this date the water department com- prised eight large pumping stations and two small ones, five intake cribs and about thirty-eight miles of tunnels. Several new bascule bridges were built. In every department of the city administration
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improvement was noted, notwithstanding that faults still existed and dishonesty was occasionally revealed. Particular attention was called to the value of the intercepting sewers, and to the progress made by the Board of Local Improvements. The police and fire departments and the civil service commission rendered satisfactory service. The department of supplies was managed with excellent judgment and economy.
In 1903 the traction question was easily the most important. Before this date the traction interests were aggressive, defiant and exacting. They assumed that they were entitled under the law of 1865 to an almost unlimited use of the city streets. Later, finding that some doubts as to the righteousness of their course existed, they practiced every strategy, direct and indirect, to secure what they desired. By means of shrewd tactics they hoped to secure by stealth what was refused them openly. At no time were the citizens willing to grant the demands of the traction companies nor to admit that the ninety-nine-year law was in force and valid. The citizens finally, by nieans of the "little ballot," demanded a final settlement of the whole question. The people were at last determined to elim- inate from all future consideration, as soon as practicable, the rights claimed by the traction companies under the law of 1865 commonly known as the ninety-nine year act. The companies at once resorted to obstructive tactics, hoping to postpone the inevitable as long as possible. When they saw the end approaching they resorted to the artifice of asking for a long lease. It was stated that one company was willing to surrender its alleged rights under the ninety-nine- year act in consideration of a twenty-year franchise. Another company was ready to forego a definite long-term franchise in con- sideration of an official acknowledgment of the rightfulness of its ninety-nine-year act claims. However, through the "little ballot" the people determined in favor of immediate municipal ownership of the traction properties. This vote had the effect of bringing the traction companies to their senses. The Council favored the policy that after ten years from the grant of the franchise the city should have the right, upon payment of fair compensation, to assume con- trol of the traction properties. "Public officials and the best public sentiment for several years had been of one mind in demanding a waiver of the ninety-nine-year act rights, if any existed, as essential to any future extension ordinances."
In 1904 the citizens voted to proceed at once to acquire municipal control of the lines of surface transportation and demanded that in the interim the city should give the company a bare license to occupy the streets. Notwithstanding the citizens thus decided. there was a strong sentiment that the city should not own and operate the railway properties. It was realized that the munici- pality, not being experienced, would have great difficulty in doing so. Besides, if it should assume ownership of the property, the
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companies would have to be paid for the same. This meant the issuance of a large amount of bonds. In other words, it meant a vast increase in the indebtedness of the city. These questions were duly considered by the people and the sentiment continued to spread that municipal ownership along the lines at first projected was more or less a delusion and might not be so beneficial to the city as was at first thought. Should the city now issue additional bonds to purchase the railway properties? was the question. It was imperative that the tunnels in the rivers should be lowered soon and that the center-pier bridges should be removed. All of this meant a vast increase in the bonded indebtedness of the city.
Among the subjects discussed at the close of 1903 were the fol- lowing: That the city should sell to private citizens gas and electric current from the city product; that the city should have the right to regulate gas; that dramshops should be required to close at midnight; that race-horse gambling should be broken up; › that the good work of the Municipal Voters' League merited com- mendation from the city and the citizens; that the schools should be removed from political influences; and that an increase in mu- nicipal revenues to meet the needs of the great city should at once be made.
During 1903 the corporation counsel's office was managed with unusual ability and success. Improved system and discipline in the management of all cases were shown. It was considered by the best lawyers connected with the office that the ninety-nine-year act would be held invalid if tested in the upper courts. The pro- ceedings of the office during the year 1903 were marked by devo- tion and fidelity to the interests of the city. During 1903 the con- troller's office, notwithstanding an insufficiency of revenue, was conducted successfully and satisfactorily. Though the needs of the city were constantly growing, the revenue remained about the same year after year. The controller throughout the year practiced strict economy and utilized the revenues on hand to the best possible advantage. The audit bureau of the controller's office was an im- portant branch of the department. It meant a complete audit and understanding of all expenses at the time they were made. A record of the city's real estate was revised and perfected. During the year a notable achievement was the successful culmination of the work of adjusting the accounts and rewriting the records of special assessments from 1871 down to date. This work had progressed for nearly three years and covered 4,300,000 individual assessments, aggregating a total of $95,500,000. The work con- tained over 200,000 sheets of manuscript and typewritten matter. One of the benefits derived from this work was the recovery by the city of $550,000 of delinquent taxes and the payment of rebates aggregating over $400,000 to property owners. Another improve- ment was the adoption of a system of daily checking and supervis-
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ing the proceedings of the police courts. These courts were put upon a paying basis, the revenue therefrom in 1903 being over $163,000 and the expenses over $117,000, leaving a net earning of over $46,000.
During the year 1904 new bascule bridges were opened at West Division street and at North Western avenue, both designed and built by the city of Chicago. The Sanitary Board also constructed a bascule bridge at Loomis street. Contracts for the same type of bridges at Archer avenue and North avenue were let. Twenty permits for the construction of over 3,600 feet of new dock on the Calumet and Chicago rivers and on Lake Michigan were issued. The Sanitary Board in widening the South branch to 200 feet dredged away tracts amounting to over 53,000 cubic yards. The South Park commissioners dredged over 508,000 cubic yards from the outer harbor of Chicago and deposited the same in Grant park. Private dock owners dredged away 458,000 cubic yards of earth. Satisfactory progress in constructing the various intercepting sew- ers was made during the year. The Department of Health made a satisfactory showing. A total of 2,614 fewer deaths than during the previous year was announced. A reduction under 1903 of 1,224 deaths of children under 5 years of age was reported. This result was attributed to the improvement in the milk and other child food supplies. It was noted that for many years there had been a constant improvement in the death rate of the city. Formerly this improvement was attributed to modern sanitary conditions and the activity of the health department. Now it was attributed mainly to the food and water supplies. During the year there were in service 2,316 patrolmen, the smallest number since 1891. Not- withstanding the reduction, the department was efficient and its service, as a whole, satisfactory. The department adopted the fin- ger-print system of identification. A bureau of records, which be- gan operations on January 1, 1905, was established. The House of Correction cared for 11,647 inmates. The average daily popu- lation of the institution was 1,723. At the close of 1904 the fire department embraced 100 engine companies, twenty-eight hook and ladder companies, including one water tower, and fifteen chemical engines and one hose company. There were also five fire-boats in service. The Civil Service commission reported steady progress. The department of supplies made, as usual, a creditable report. There were 19,584 orders for materials, supplies and repair work, involving an expenditure of over $707,000. In the building depart- ment a new and complete system of records was established. There were eighteen inspectors, and 48,192 inspections were made.
The Bureau of Statistics made a point of disseminating informa- tion throughout the city concerning every department of the public service. The city treasurer's office received from the several de- partments of the city and county deposits aggregating $50,232,-
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007.80, and dispersed on warrants issued by the city controller $47,999,947.04. The important work done by the city sealer should not be overlooked. There were inspected by this department 729,- 963 cases, of which 42,234 were condemned.
A new municipal playground at West Chicago avenue, east of Lincoln street, was opened. The area of 200 by 125 feet was taxed to its utmost capacity. There were during the year nine municipal playgrounds in successful operation. The popularity of these breathing places was shown by their crowded condition. Others were in contemplation.
Mayor Edward F. Dunne, in his annual message of April 11, 1906, congratulated the City Council on the advance made during the past year in municipal management. He said: "Throughout its governmental branches progress has been achieved along many lines that make for justice and equality in all things to all our citi- zens and for the good of the whole public." The rate of gas was reduced 15 cents per thousand feet. Although the water system had cost over $34,000,000, it was being maintained at a less cost than ever before. It was thought necessary to increase the numeri- cal strength of the police department. The death rate for 1905 was 13.67 per thousand population, almost the lowest in the history of the city. In the previous year it was 13.62. This was lower than that of any other city of the same population in the world. Statistics proved that the general property tax per capita in Chi- cago was less than in any other of the ten largest cities in the United States.
The settlement of the ninety-nine-year act case removed a bar- rier that for years unnecessarily proved a stumbling block to mu- nicipal progress. At the recent election the citizens had decided in favor of municipal ownership of street car lines and for the issu- ance of street railway certificates to provide the means for taking over the street railway property. They had approved the ordinance adopted on January 18, 1906, which authorized the city "to con- struct, acquire, purchase, own and maintain street railways within its corporate limits and to provide the means therefor." To accom- plish this result the city might issue and dispose of interest-bearing certificates to a sum not exceeding $75,000,000. As this was the policy upon which Mr. Dunne was elected mayor of Chicago and as the people had signified their approval of such policy, the mayor announced his intention of putting the same into execution as soon as practicable. The Supreme court of the United States had re- cently ruled that franchises had already expired on practically all of the street car lines of the city. The so-called ninety-nine-year act was declared merely a wraith conjured up by the traction com- pany to frighten the people. Every bar had been removed so that now all street railway lines and branches could be brought under municipal control. This was an accomplishment that had been
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sought for many years and the mayor congratulated the public on having at last cleared the subject and made the railway subservient to the people's welfare. He suggested that steps for an early re- habilitation and modernization of the present street railway system of Chicago should at once be taken. If this could be accomplished by some satisfactory arrangements with the existing street railway companies, it should be done. Otherwise the city should at once take steps to construct an entirely new and independent system, which should be wholly controlled and owned by the municipality. In the latter case existing companies should then be regarded as trespassers upon the public streets and as such should be removed therefrom. Condemnation proceedings would drive them from the streets. He suggested that the "contract plan" which had been previously outlined in July, 1905, should be put into effect in order to establish at an early date municipal ownership of the entire street railway system of Chicago by construction, by purchase or con- demnation. These steps should be taken at once in order to correct the abuses then practiced by the street railways under private own- ership.
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