USA > Pennsylvania > Philadelphia County > Philadelphia > Municipal government history and politics, Vol. V > Part 13
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The total value of the water-works, grounds, &c., is now esti- mated to be not far from eight million dollars, and the yearly revenue about eight hundred thousand dollars. The Water Commissioner, under the present charter, must be a duly quali- fied engineer. All contracts for work, supplies, &c., ordered by the Water Department, must be approved by the Board of Public Improvements. The water rates are fixed by the Assembly, but they must be at prices which will produce a revenue sufficient at least to pay the interest upon the city water-bonds, and the running expenses of the Water-works Department.
THE HARBOR AND WHARF COMMISSIONER
Is specially charged with the execution of all ordinances of the city relating to dykes, wharf and levee, steamboats and all other boats, vessels, and rafts. He must give personal atten- tion and devote the whole of his time to the duties of his office. A separate account is kept on the city books of all moneys collected from harbor tax, wharfage dues, or other sources relating to harbor.
THE PARK COMMISSIONER
Has as his duty the care of all the public parks, places, and squares which are under the control of the city. St. Louis is well provided with breathing-places for its people. Besides many smaller openings in the older part of the city, there are Lafayette Park, containing thirty acres, one of the oldest parks in St. Louis ; Tower-Grove Park, of two hundred and seventy- six acres, the gift of Henry Shaw ; and the great Forest Park, of thirteen hundred and seventy-two acres, purchased by the city in 1872 and brought within the city limits by the adoption of the charter of 1877. At that time Forest Park had already cost the city more than a million and a quarter dollars, and annually about thirty thousand dollars are spent in its care and adornment.
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THE PRESIDENT OF THE BOARD OF PUBLIC IMPROVEMENTS
Has charge of all public improvements not specially delegated to the other members of the board. He has also a general supervision over the departments of all the commissioners belonging to the board. It is his duty to authenticate all special tax-bills against property-owners, made out and certified to him by the head of the department by which the work has been done.
It is not necessary to emphasize the importance and value of such a board of public officers to a city like St. Louis. The highest professional talent is called for, and has uni- formly been secured.
POLICE DEPARTMENT.
In early days watchmen or " patrolmen " guarded the citi- izens of St. Louis, taking the place of the village constable of a century ago. In the year 1808 a town ordinance for the first time defined the duties and privileges of the patrolmen. In 1839 the office of city constable was abolished, and provis- ion was made for the appointment by the Mayor of a City Mar- shal. By an ordinance of the same year the "City Guards " were organized as a police force and the City Marshal made ex-officio Captain. In 1841, by a city ordinance, the guard was to consist of a captain, three lieutenants, and twenty-eight privates. One of the conditions of membership in the guard was that the candidate should be "in no way interested in any tavern, coffee-house, or tippling-shop in the city," and should be able to read and write the English language. In 1846 an "independent police" was established, which seems to have been a sort of a detective agency. Complaint was made by the Mayor in 1848 that thirty men were insufficient to guard the rapidly extending city, and between 1848 and 1850 the force was increased by ten new members, and was pronounced very efficient. The police was first put into uni-
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form in May, 1854. An ordinance of 1856 reorganized the force, which was then but little changed for several years.
The present metropolitan police force of St. Louis was estab- lished by an Act of the Legislature in 1861. The police board consists of four commissioners appointed by the Governor of the State, and the Mayor, who is ex officio a member, and it has the entire control and management of the police force of the city. It is expressly provided in the act of establishment that the police organization shall be entirely independent of the city government, and only brief mention of this department need be made here. The officers of the police are : one chief of police, six captains, forty-five sergeants, and four hundred and forty patrolmen, besides turnkeys, janitors, hostlers, &c., making in all a total of five hundred and ninety-three men connected with the department, costing the city upward of half a million dollars yearly. Besides the regular police force about two hundred private watchmen are employed at the expense of their employers. They are, however, sworn in by the police board, wear a distinctive uniform, and may be called upon to assist the regular force, if desired.
FIRE DEPARTMENT.
The first ordinance for the formation of fire companies in St. Louis was passed by the Town Trustees in 1810. These companies were named "Leather-bucket Companies," and they served well enough until 1822, when the first fire-engine was purchased. In 1835 a municipal ordinance was passed requir- ing citizens to have fire-buckets ready for use. By 1841 St. Louis had regular fire companies. In 1850 an Inspector of the Fire Department was appointed by the Mayor, and from that time until the establishment of a paid fire department in 1857 volunteer companies increased in number and in influ- ence. By the present charter the fire department is under the control and supervision of a "Chief of the Fire Department," appointed by the Mayor for four years. He has one first
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assistant and four assistant engineers. It is also the duty of the chief of the fire department to inspect all buildings in pro- cess of construction, and to see that all ordinances relating to building are carried into effect.
HEALTH DEPARTMENT.
The charter of 1877 created this department to be managed as provided in the charter and by ordinances of the city. The Board of Health consists of the Mayor, who is also its presi- dent, the presiding officer of the Council, a Police Commis- sioner, designated by the Mayor, and two regular practising physicians who shall have the same qualifications as the Mayor. An officer called a Health Commissioner appointed by the Mayor is also a member of the Board of Health. The Health Commissioner has general supervision over the public health. It is his duty to see that all laws and ordi- nances concerning the health of the city are enforced. He has power to make such rules as will be for the sanitary wel- fare of the city, subject to the approval of the Board of Health ; to cause the removal of nuisances, when so declared by the Board of Health; to take measures to suppress and mitigate contagious or epidemic diseases ; to issue burial per- mits, and keep careful records of the same; and to appoint all employés of the Board of Health and all who may per- form any duties under their direction, excepting the Superin- tendent of the City Hospital, Superintendent of the Female Hospital, Superintendent of the Insane Asylum, and a Super- intendent of Quarantine, when necessary, who are appointed by the Mayor. The appointments of the Health Commis- sioner are to be approved by the Board of Health.
SCHOOL BOARD.
The first English school in St. Louis was established in 1804, and, like many others which were liberally patronized 3
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in those early days, was a private school. The first board of trustees for public schools in St. Louis was established by the Legislature of the State in 1815. In 1833 another act con- stituted a body politic and corporate by the name and style of the "Board of President and Directors of the St. Louis Public Schools." The powers of this board were vested in a president and board of directors, consisting of two persons to be elected in each ward. The Mayor and Aldermen for the time being were not eligible to election. Members were to be elected for three years, one-third to go out of office at the end of every year. Success attended all these efforts to establish free schools in St. Louis, and this success did much for the interests of public schools throughout the State. In 1856 the Legislature passed a law appropriating twenty-five per centum of the State revenue for free schools. Of the sum thus appropriated St. Louis received a revenue of $27,456. The total income of the St. Louis schools was then upward of $87,000. In 1879 the Legislature passed an Act contain- ing the following clause concerning the preservation of a per- manent school fund in St. Louis and other parts of the State :
" All school lands heretofore granted by the General Assem- bly to any city or town, or the inhabitants thereof, for the purposes of public education, including all lands set apart or granted by the general government of the United States to this State, and lying within the limits of such city or town, for support of schools, and granted to, or placed in charge of such city, town, or incorporated board as aforesaid, shall constitute the permanent fund of such city or town, only the income of which shall be used for the support of the public schools in . such city or town." The effect of this act was to remove doubts as to the status of the government land-grants, which constituted the greater part of this fund.
Under the present charter the School Board is composed of twenty-eight members, one from each ward, elected for three years. They are divided into three classes, one-third of the members, as nearly as is practicable, being elected each year.
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They have the power, not only to govern the schools, choose their executive officers, and care for the large property belong- ing to the public schools, but to determine the rate of taxation each year for school purposes, which taxes are collected through the collectors of the city of St. Louis.
The officers elected by the Board are : a president and vice- president from their own number, elected annually ; a super- intendent, two assistant-superintendents, a secretary, a trea- surer, an attorney, a bailiff, an architect, and a supply agent, all for the term of three years. A committee of three is ap- pointed every year by the president, one of whom must be a member of the board and the others good accountants and citi- zens of St. Louis, to examine all accounts, vouchers, &c., of the secretary and treasurer, and the books and accounts of the bailiff and supply agent and report concerning the same to the board. It is the duty of the bailiff, an officer not always found in Boards of Education, to take charge of the real estate held by the board, to exercise supervision over the tenants of the board, to act as clerk of the auditing committee, to act as sergeant-at-arms at the sessions of the board, and to attend to various other matters not specially intrusted to any other offi- cer. All elections of teachers are in the hands of the board, the appointments being made for one year upon the recom- mendation of a standing committee of the board called the "teachers' committee." The board also appoint all janitors and other necessary employés.
ASSESSMENT OF PROPERTY.
The city of St. Louis is assessed by a Board of Assessors, consisting of a president, elected by the qualified voters of the city, and one assessor from each assessment district, appointed by the Mayor and confirmed by the Council. The Assembly determines the limits of assessment districts, and can change them at any time. Property is assessed by the district asses- sors within their districts between the first day of August of
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each year and the first day of January following, and the assessment books are to contain as nearly as possible a full and complete statement of all taxable property in the city, to be completed by the third Monday in March of each year. Clerks and assistants in the assessor's office are appointed by the president of the board.
A BOARD OF EQUALIZATION
Consists of the President of the Board of Assessors and four real estate owners in the city of St. Louis, who are appointed annually on the second Monday in March, by the Judges of the Circuit Court of the Eighth Judicial Circuit. This Board meets on the third Monday of March annually and remains in session four weeks. Its duty is to hear and determine all appeals from the decisions of the Board of Assessors, to adjust and correct the assessment books, if necessary, and to keep accurate reports of its proceedings for record in the office of the President. A certified ordinance establishing the percent- age of taxes for the current year is delivered to the President of the Board of Assessors by the Municipal Assembly by the fourth Monday in May of each year.
THE COLLECTOR
Collects all revenue derived from all sources except water- taxes. All collections are paid into the City Treasury daily and triplicate receipts taken for them, one of which is filed with the Auditor and one with the Comptroller. The Collec- tor may appoint Deputies, may revoke his appointments at pleasure, may require bonds of his Deputies, but he is him- self responsible for all moneys collected and for all acts of his Deputies.
A RECORDER OF VOTES
Is appointed by the Mayor to hold his office for four years. The Register furnishes him with registration books in which
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names of qualified voters are entered upon their taking the required oath, which it is the duty of the Recorder to ad- minister.
A BOARD OF REVISION
Is also appointed by the Mayor consisting of one reputable citizen from each ward whose duty it is to meet with the Recorder of Votes at his office thirty days before each general election to examine the registration and make such corrections as their own knowledge or competent testimony may show to be needed. Of this Board the Mayor is ex officio President. They sit from day to day, not exceeding ten days, until they have completed their revisory work.
OFFICERS OF THE CITY.
The following are the officers of the city of St. Louis under the present charter, both elective and appointive :-
Elective :- Mayor, Comptroller, Treasurer, Auditor, Register,
Collector of Revenue, Marshal, Inspector of Weights and Measures,
President of the Board of Assessors, who appoints one Chief Deputy, nine District Assessors being appointed by the Mayor,
Coroner, who names a Deputy,
Sheriff, who names thirty Deputies, Recorder of Deeds,
Public Administrator,
President of Board of Public Improvements.
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Appointive :- Board of Public Improvements, consisting of Street Commissioner, Water Commissioner, Harbor and Wharf Commissioner, Park Commissioner, Sewer Commissioner, Assessor and Collector of Water Rates,
Commissioner of Public Buildings,
Commissioner of Supplies,
Inspector of Boilers, Health Commissioner,
City Counsellor and Assistant,
Jury Commissioner, Recorder of Votes, Jailer,
Superintendent of Work-house,
Two Judges of Police Courts and two Clerks of the same, City Attorney and Assistant, Chief Engineer of Fire Department and five Assistants,
Commissioners of Mullanphy Relief Fund, Board of Police Commissioners,
Dead Animal Contractor, Lamp Light Contractor,
City Gas Inspector, City Slop Contractor.
PUBLIC INSTITUTIONS.
The following are the public Institutions of the city : City Poor House, Insane Asylum, Work House, House of Refuge, Court House,
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City Hall, Four Courts, City Dispensary, City Morgue, Fourteen Public Markets.
A careful study of the charter of the city of St. Louis will convince any impartial man of its great worth as a frame-work for a system of municipal government. The length of the term of its municipal officers ; the carefully-framed provisions to secure honest registration of voters and an honest vote at the polls ; the guards and checks upon all who administer the financial affairs of the city ; the provisions against an undue increase of the public debt ; the plan by which the important offices filled by the Mayor's appointment are not vacant until the beginning of the third year of his term of office, so that as rewards of political work done during a heated campaign they are too far in the dim distance to prejudice seriously the merits of an election ;- these are a few of its important advan- tages as a plan of city government. Since its adoption it has worked well and but few amendments have been suggested. A bill now before the State Legislature provides for a change in the composition of and mode of election to the School Board which will undoubtedly, if passed, improve that most important branch of the city government. This provides for a Board of twenty-one members, of whom seven are to be elected on a general ticket and the remaining fourteen by districts made by consolidating the twenty-eight city wards ; members to serve four years, divided into two classes. A more man- ageable number is thus provided and a method of election is secured which will insure comparative freedom from that bane of good administration of city affairs in any branch of its government-the ward politician. The "Machine" is bitterly opposing the bill, and at this writing, March 1, 1887, its pas- sage seems doubtful. Many cases may be found where, since the adoption of the scheme and charter, its provisions have
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been distorted, abused and violated. A good charter does not purify human nature. Eternal vigilance is the price of good government in any city, under any method of municipal administration.
It may not seem to be giving the highest praise to the framers of the charter of St. Louis to say that without their labors we should be much worse off than we are; but it is not saying too much to claim for the result of their work greater ease of administration, better safe-guards against rascality, and broader opportunities for successful municipal management than was possible under any previous system by which St. Louis has been governed since the granting of her first charter, sixty-five years ago.
V-VI
LOCAL GOVERNMENT
IN
CANADA
JOHNS HOPKINS UNIVERSITY STUDIES IN HISTORICAL AND POLITICAL SCIENCE
HERBERT B. ADAMS, Editor
History is past Politics and Politics present History - Freeman
FIFTH SERIES
V-VI
Local Government in Canada
AN HISTORICAL STUDY
BY JOHN GEORGE BOURINOT
Clerk of the House of Commons of Canada; Honorary Secretary of the Royal Society of Canada, etc. Author of " Parliamentary Practice and Procedure ; with an Introductory Account of the Origin and Growth of Parliamentary Institutions in the Dominion of Canada," etc.
BALTIMORE PUBLICATION AGENCY OF THE JOHNS HOPKINS UNIVERSITY MAY and JUNE, 1887
COPYRIGHT, 1887, BY N. MURRAY.
JOHN MURPHY & CO., PRINTERS, BALTIMORE.
TABLE OF CONTENTS.
PAGE.
I. Introduction
7
II. The French Regime, 1608-1760. 10
III. Lower Canada, 1760-1840.
20
IV. Upper Canada, 1792-1840. 30
V. The Maritime Provinces :-
1. Nova Scotia
42
2. New Brunswick
47
3. Prince Edward Island
51
VI. The Establishment of Municipal Institutions in the Provinces of the Dominion 55
VII. Conclusion
66
APPENDIX :-
Success of the Municipal System of Ontario. 70
LOCAL GOVERNMENT IN CANADA.1
" Local assemblies of citizens constitute the strength of free nations. Municipal institutions are to liberty what primary schools are to science; they bring it within the people's reach; they teach men how to use and how to enjoy it. A nation may establish a system of free government, but without the spirit of municipal institutions, it cannot have the spirit of liberty."-DE TOCQUEVILLE, Democracy in America, Vol. I. Ch. v ..
I .- INTRODUCTORY.
I propose to give in this paper an historical review of the origin and growth of the municipal system of Canada. Such a review suggested itself to me after a careful perusal of the valuable series of essays that are appearing from the press of the Johns Hopkins University in the State of Maryland. These studies are remarkable for the information they give on a subject to which historians of the United States have hitherto devoted very little attention. The papers that have already been published with respect to the local institutions of , Virginia, of Maryland, and of the New England States, enable us to follow step by step the progress of the people in self-government. Under the conviction that a similar paper on local government in Canada may be of some value to students of political science in the absence of any work or treatise hitherto devoted to the subject, I shall endeavor to evolve out of a chaos of old documents, statutes, and histories
1 Read in abstract before the Royal Society of Canada, 27th May, 1886. 7
.
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such facts as may give a tolerably accurate idea of the gradual development of those local institutions on which must always rest, in a great measure, the whole fabric of popular liberty.
Such a subject ought to be interesting to every Canadian, but especially to the historical student. The former may care to learn something of the history of those institutions which perform so important a part in the economy of his daily life. The latter must find a deeper attraction in tracing the origin of the municipal government of this country even to those ancient institutions, which, very many centuries ago, kept alive a spirit of liberty among our English forefathers and among the German nations.1
The Dominion of Canada now extends over a territory between the Atlantic and Pacific Oceans, almost equal in area to that of the United States. Its organized divisions consist of the provinces of Prince Edward Island, Nova · Scotia, New Brunswick, Quebec, Ontario, Manitoba, and British Columbia, each of which possesses a very liberal system of representative government. Every province has a Lieutenant-Governor, appointed by the government of the Dominion, and a Legislature composed in Nova Scotia, New Brunswick and Quebec, of a Legislative Council nominated by the Crown, and of a Legislative Assembly elected by the people on a very liberal franchise. In Manitoba, British Columbia, 0 and Ontario there is no Second Chamber, while in Prince Edward Island that body is elected by the people. The Northwest Territories, which extend from Manitoba to the
1 "The origin of local government in England, like that of our civil liberty, must be sought in the primitive but well-ordered communities of our Saxon forefathers. .... The German nations, as described by Cæsar and Tacitus, were nothing but associations of self-governed villages, or larger districts, occupied by separate families, or clans, among whom there was not even the shadow of a common national allegiance, except for the purpose of war. Such was the organization of the Saxons, Jutes and Angles, when they first settled in England."-Cobden Club Essays, 1875, Local Government in England, by Hon. G. C. Brodrick, p. 3.
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frontier of British Columbia-territories out of which may be formed many States as large and fertile as Minnesota-are as yet divided into mere territorial districts, over which preside a Lieutenant-Governor, appointed by the Ottawa Government, and a Council, partly nominated by the Crown, and partly elected by the people. In all of the provinces, as well as in the principal settlements, villages, and towns of the North- west, now exists a system of municipal institutions which are the growth of the experience of the past forty years, since the people of the old provinces of Canada have grown in popula- tion and wealth, and have fully recognized the necessity of managing their purely municipal and local affairs in councils elected by themselves. These municipal institutions are the creation, and are under the jurisdiction, of the Provincial Legislatures, in accordance with the constitution, known as the British North America Act, 1867, which gives the control of all general national affairs to the Federal Government, and the administration of all local matters to the Legislatures of the provinces. As the municipal institutions of Canada, in the first instance, owe their existence to statutory enactments of the Legislatures of the provinces, so they can be amended only by the authority of the same superior bodies.
The political history of Canada may be divided into three important epochs. First of all, there was the era of the French Régime which lasted for about a century and a half, from the 3rd of July, 1608, when Champlain established his scat of government on the picturesque heights of Quebec, until 1760, when France gave up the contest with England for the supremacy on the Continent of America. Then came the period from 1760 to 1840, when the provinces slowly increased in population under British Rule, and gained valuable experience in the working of representative institu- tions. Then followed the important and interesting period from 1840 to 1867, when the political liberties of the people were enlarged, and they were given responsible government in the full sense of the term. Since 1867, the various provinces,
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