USA > Texas > Harris County > Houston > A thumb-nail history of the city of Houston, Texas, from its founding in 1836 to the year 1912 > Part 2
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A THUMB-NAIL HISTORY OF
ularly on the reduced debt. Since that day the city has been free from great financial embarrassment.
It seems strange to say in one breath that Hous- ton has the best and the most dangerous form of government that could possibly be conceived. And yet that is literally true. The form, as all know, gives almost absolute power to a few men chosen, not by wards as was done formerly, but by all the people of the city regardless of ward and sub-ward divisions. The advantages of this method are ap- parent, for the Mayor, or Chairman, and each Com- missioner represents the whole city and not any par- ticular part of it. Each is responsible to the whole people and not, as formerly, to that one part of it where he might chance to have lived and from which he was chosen by the votes of his friends and neigh- bors only. He owes no political debt to any single ward and it becomes his duty to legislate for the good of the city as a whole and not for any sub- division of it.
The dangerous feature is the power the commis- sion form gives a few men. Should a dishonest or incompetent Board of Commissioners chance to se- cure election, the result might be disastrous before the people awoke to their peril and took steps to check it. Of course such a condition as that is very unlikely to occur, still there is a possibility of its oc- curring and in that one thing alone lies the danger.
The mere fact that there is danger in the form, assures its safety, for it puts the voters on their guard and they are more careful than ever they were under the old method, in selecting their serv- ants, so that it is almost impossible for unworthy or
23
THE CITY OF HOUSTON, TEXAS
incompetent men to be elected. If the commission had nothing else to recommend it, this placing the voters on their guard would be a sufficient indorse- ment of its merits.
The evolution of the Commission idea has been slow and tedious, and it is remarkable that it has taken great disasters to impress its merits on the minds of interested communities. Following the two great yellow fever epidemics of 1878 and 1879 in Memphis, Tenn., the people of that city found themselves bankrupt and forced to adopt the un- tried and desperate remedy of ceasing to be an in- corporated city and becoming a taxing district un- der a commission. That was, as a matter of fact, the first time the commission idea was applied prac- tically to the management and direction of munici- pal affairs. It was not until the great disaster at Galveston on September 8, 1900, that anything like a practical commission for the government of a city was devised. Galveston, by act of the Legislature, was granted a new charter which did away with the old mayor and board of aldermen and placed mu- nicipal affairs in the hands of five commissioners- a mayor, or chairman, a commissioner of finance, a commissioner of streets and alleys, a commissioner of water works, lights, etc., a commissioner of po- lice and fire departments. These are all elected by the whole vote of the city and each commissioner is given full charge of his department and held re- sponsible for its working. The other commissioners have the authority to overrule and veto any unde- sirable act of any one of their members, but this has never been necessary, for the ability and honesty of the men thus far elected by the people have been
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A THUMB-NAIL HISTORY OF
such as to render unnecessary the exercise of the veto power by the other commissioners. If argu- ment were necessary to show the merits of the Com- mission form of municipal government, the suc- cess of that in Galveston would be all sufficient.
The success of the Galveston Commission attract- ed wide attention and in 1904 the plan was submit- ted to the voters of Houston and, they having adopt- ed it, the next year a new charter was granted the city, under the terms of which Houston became a Commission city.
Houston's charter differs in many respects from those of Galveston, Dallas and other cities that have gone under commission rule. Its practical work- ing is so well shown in an address delivered by Mayor Rice before the Chicago Commercial Club in December, 1910, that it may be well to take the following points from that address so as to best il- lustrate the commission :
"The essential differences between the old form of municipal government and the commission form are three," said the mayor. "The substitution of a smaller number of aldermen, elected from the city at large, in place of a large number of aldermen, elected from different wards or subdivisions of the city; vesting of a co-ordinate power in the mayor as in the city council to dismiss any officer of the city government, except the controller, at any time without cause, and the essential provisions safe- guarding the granting of municipal franchises. In- stead of a body of twelve aldermen, elected from
COL. CHAS. STEWART (DECEASED) Former Prominent Attorney and Member Congress
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THE CITY OF HOUSTON, TEXAS
different wards or subdivisions of the city, under the Houston system four aldermen are elected from the body of the city by the votes of all the citizens, in the same way in which the mayor is elected. These four aldermen, together with the mayor, con- stitute the city council or legislative department of the city government. The executive power is vest- ed in the mayor, but by an ordinance, for the ad- ministration of the city's affairs, a large part of executive or administrative power is subdivided into different departments, and a committee is placed over each department, and one of the four aldermen, nominated by the mayor, is what is known as the active chairman.
"The mayor and all four aldermen are members of each committee. The active chairman of the committee practically has control of the administra- tion of the department, unless his views are over- ruled by the whole committee, but by the organiza- tion of the committees the active chairman does the work, to a certain extent, under the supervision and direction of the mayor, who is, in the last analysis, the head of each committee and the person in whom the executive power of the municipal government ultimately rests.
"Under the old system of government, by which twelve aldermen were elected from as many differ- ent precincts of the city, it frequently happened that unfit men came to represent certain wards of the city council. Now, unless a man has sufficient standing and reputation throughout the body of
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A THUMB-NAIL HISTORY OF
the city as a fit man for the office of alderman he will not be elected. Again, each alderman under the present system represents the whole city. Under the old system the conduct of public business was con- tinually obstructed by a system of petty log-rolling going on among and between the representatives of the numerous sub-divisions of the city. Then, too, the smallness of the number of aldermen now affords opportunity for the transaction of business.
"An executive session is held previous to each meeting of the city council, at which matters to come before the council are discussed and action deter- mined on. The small number of aldermen enables the city administration to act on all matters of im- portance as a unit. In other words, the system makes it possible to administer the affairs of the city in a prompt and business-like way.
"This is one of the strongest arguments in favor of the present commission form of government, for with a majority of the aldermen always in session, public business can be, and is, promptly attended to. It is no longer necessary to go before the city coun- cil with petitions to have something done. Any citi- zen who desires to have a street paved, taxes adjust- ed, a nuisance abated, or anything else, has only to call at the mayor's office and have the matter promptly adjusted. After a hearing, the matter is decided by the council in the presence of the appli- cant. To illustrate the great difference between this method and the old one, the following compari- son is made: By the old method a petition was ad-
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THE CITY OF HOUSTON, TEXAS
dressed to the council. This was referred to a com- mittee, which acted when convenient. Then a re- port to the council was made by the committee. After the action of the council it went to the mayor and from him to someone else for execution. The people do not pay their taxes for such treatment. They want their business attended to promptly and that is what is being done under the commission."
The coming July the commission will have been in existence seven years, and during that time it has accomplished wonders. In '1905 the floating debt of the city was about $400,000. Every cent of that has been wiped out and the taxpayers have been given, out of the treasury, without the issuance of a single bond for any one of the items, the follow- ing permanent improvements:
City Attorney, Law Library. ... . $ 974.10
Assessor and Collector, Block Book
System 10,000.00
City Hall, Furniture and Fixtures 1,123.67
Police Department 4,096.03
Fire Department Buildings and
Equipments 66,239.67
Electrical Department 37,461.47
Health Department 7,340.94
Parks 116,451.09
Streets and Bridges 71,004.96
Asphalt Plant 3,000.00
Auditorium 390,340.92
Ship Channel 102,536.05
Sewers 132,047.56
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A THUMB-NAIL HISTORY OF
Paving Streets 221,006.00
Water Department, Extension of Mains and Improvements 325,757.33
Wharves and Slips 33,109.89
School Buildings 356,477.20
Total Improvements $1,878,966.88
Extraordinary Expenses.
Storrie Certificates $ 73,300.00
Refund Paving Certificates 141,418.68
Sinking Fund
120,220.00
$334,938.68
This makes a grand total of $2,213,905.56, all of which was paid out of current revenues, and the elimination of a floating debt amounting to a little more than $400,000. One need go no further than those figures to be convinced of the benefits and ad- vantages of Commission form of government.
Unquestionably the magnificent form of govern- ment that Houston has, and the thoroughly busi- ness-like manner in which the affairs of the city are administered, have had their effect in establishing confidence in the stability of the city both at home and abroad. Though the commission may not have caused it, the fact remains that co-incident with the establishment of the commission Houston began to grow and expand in the most marvelous way. Strangers who come here and find a large and beau- tiful city are amazed to learn that modern Houston
29
THE CITY OF HOUSTON, TEXAS
is only about seven years old. That is a fact, how- ever, for all the great strides forward, all the large corporations, all the great business enterprises, are less than ten years old, while the city has more than doubled her population in seven years.
Houston is today a city of skyscrapers and large buildings, and their number is being added to monthly. There are today a number of new ones going up and nearly every principal street in the city is the scene of building activity. There are ho- tels completed and being constructed; office build- ings, business buildings, bank buildings, to say noth- ing of the hundreds of residences being constructed. Houston stands in a class of its own when it comes to apartment houses, for there are more and finer ones here than in any other Texas city. They are nearly all strictly up to date and several of them are luxurious and costly affairs.
Just what Houston is doing today and how it is being done is well shown in the reports made by the mayor and the commissioners and heads of depart- ments at the close of the fiscal year, February 29, 1912. Mayor Rice says :
Gentlemen: According to the law, I submit the annual report of the various departments and the budget for the ensuing year.
You will notice that the appropriations recom- mended and the budget called for is some $200,000 in excess of last year. One-half alone being in- crease of the interest and sinking funds on bonds and additional school appropriations.
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A THUMB-NAIL HISTORY OF
The rapid growth of the city, and its numerous requirements, means that the growth, if yearly maintained, as it has for the past several years, the city of Houston must expend annually more reve- nue to maintain in efficiency the various depart- ments and satisfy local conditions.
I shall briefly discuss the important demands of the city and make recommendations for their im- provements and needs.
The water department is in splendid condition and with the extension of mains this year will prob- ably place every one within the limits of the city of Houston in easy access of pure water and charging the lowest rate for consumption.
Houston has an efficient and up-to-date fire de- partment, and but for the unfortunate fire which occurred in the manufacturing district on the north side of the city during a tremendous gale, would have probably maintained the smallest loss in any one year since Houston's growth. I call attention to this great conflagration from a commercial stand- point, as the great losses from the immense quanti- ties of cotton and manufactories destroyed ran into large sums of money. While numerous small homes were destroyed, yet, I am glad to state, the majority of those thus afflicted asked for no assistance and are making plans to reconstruct their homes upon a better and safer basis.
For those who were left destitute, too much praise can not be given to the United Charities and the kind citizens who came forward and cheerfully made
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THE CITY OF HOUSTON, TEXAS
subscriptions for relief. Knowing the character of people who make up this community, and feeling confident of their generosity and grit, I, as mayor, declined all outside help and subsequent events justified my position. While deeply grateful for all offers of aid from all parts of the country, Hous- ton demonstrated that her people can and will take care of almost any calamity that may overtake them. I recommend that an appropriation of $25,000 be made for a new fire station and equipment at West- moreland station, as suggested by Fire Commis- sioner Kohlhauff.
I call your attention to the annual report of streets and bridges. It demonstrates what an im- mense amount of work and expense it requires to drain and make passable the streets in a level coun- try like ours. A great viaduct connecting the north and south sides of the city is now under good head- way and promises when completed to be one of the most substantial structures in the State, as well as giving rapid transportation for the people. Near- ly all the bridges over Buffalo Bayou are out of date and fail to properly accommodate the traffic. I recommend that the bridges at San Jacinto and Preston streets be removed and that more substan- tial bridges be constructed out of reinforced con- crete. I also recommend that a reinforced concrete bridge be built over Buffalo Bayou at the foot of Texas avenue, which will relieve congestion of traf- fic on both Washington and Preston avenues.
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A THUMB-NAIL HISTORY OF
Houston avenue viaduct, now being constructed, will give immense relief to that section of the city.
During the past year $500,000 of bonds were voted for school purposes, and several school houses will be constructed during the fiscal year, which will give the additional facilities that are so badly need- ed in our growing city.
Both the school board and city commissioners have for some time been acquiring additional prop- erty for school sites and play grounds for the chil- dren, and I believe in the near future that Houston's schools and playgrounds will be a model for any city to copy.
As we have no swimming pools for boys or girls in this community, upon the recommendation of Mrs. James A. Baker, president of the Settlement association, who is taking a deep interest in their welfare, I suggest that a natitorium be constructed on the new Rusk school site, and that the feature be gradually extended to every other school in this city. I think Superintendent Horn's recommendation, that all public schools should be used as social cen- ters, be adopted. These school grounds and build- ings cost the taxpayer a great deal of money and should be utilized in various ways. School children are dismissed daily at 3 p. m. and there is no reason after that time why the immediate neighborhood should not use the building for any social custom they desire without going to the expense of renting halls. By such gatherings in a public building, that they have helped to construct, the people will not
PAUL BREMOND Pioneer Railway Builder
33
THE CITY OF HOUSTON, TEXAS
only become better acquainted, but better satisfied with taxation.
The city of Houston should no longer wait for a park system. Land is becoming dearer every year. While the city has purchased additional park ground during the year, yet we are very deficient in this respect. We have a splendid board of park commissioners and I recommend that the city of Houston issue at least $250,000 park bonds or more this year in order to secure a good start in this re- spect.
Now that the auditorium is completed I recom- mend that it be used for the best interest of the community. I am very anxious to see the social conditions of our people improved, especially on Sundays. On the first of May next Houston will have one of the finest bands in the United States. It will be maintained by the city. Not only will there be instrumental music, but some of the best vocal music in the country.
In addition to the musical part of the after- noons' and nights' entertainments on Sunday there can be secured good, wholesome picture shows, lec- tures and other entertainments that will tend to edu- cate the people and make them happy and content- ed. All these entertainments will be free for the people and especially to the working classes will this program be satisfactory, as they can enjoy the best music and best lectures at absolutely no cost. Once inaugurated and well established, I believe this work of our city government will go a long ways to-
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A THUMB-NAIL HISTORY OF
ward exterminating some of the vicious tendencies that trouble our cities.
This government, in fulfilling its promises, cre- ated a public service department last year, and ap- pointed a commissioner for that purpose. I recom- mend that every citizen read Mr. Gaston's report and know what has been accomplished.
I am glad to state that the efficiency of the police department is gradually being raised, and I trust in the near future that it will be up to the standard.
During the present year the Somers system of taxation has been established in Houston, at the sug- gestion of Commissioner Pastoriza. It seems to be a very efficient system, just and equitable to all. The tax board has adopted the system of assessing land values at 90 per cent and improvements at 25 per cent of their value. Under this system the val- uations have been increased from $77,000,000 to $123,000,000, which is very great. All tax prob- lems are difficult, and very few, if any, are satis- factory. I would suggest that the citizens thor- oughly investigate this system and understand it. If it is satisfactory, so much the better; if not, then some better plan should be proposed. The city coun- cil will not be arbitrary, but will be glad to listen to any one or all citizens upon this subject. Last year the tax rate was $1.70 per $100. This year it has been reduced to $1.30 per hundred for all purposes, being the lowest rate of any large city in the State.
With the exception of a few cases of meningitis, which have existed in Houston for the past several
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THE CITY OF HOUSTON, TEXAS
months, the health of this community has been splen- did. Too much praise can not be given our health officer, Dr. G. W. Larendon, and specialist, Dr. F. J. Slataper, and their associates for the way the health department has been managed. On account of the amount of work and the risks that these gen- tlemen are required to run I am decidedly in favor of increasing their respective salaries.
Now that the national government will soon com- mence work upon our waterway, I suggest that the city acquire more territory at the turning basin. I suggest steps be taken to condemn all land that is needed for practical purposes, and also that the city of Houston build and maintain a modern dredgeboat on the channel. 1129709
The city has recently adopted a front-foot plan of pavement. It is a great step forward in progress and means that Houston will now go forward with rapid strides. Already petitions have been placed with the council for over ten miles of pavement. I caution the people that no permanent pavement should be made until all water, gas and sewer mains are first laid. I earnestly recommend that a million dollars be issued in bonds for sanitary and storm sewers alone.
A short time paving bond can be issued, redeem- able at the rate of, say, $200,000 per year, which will give immediate relief in regard to the pave- ments and not increase the bonded indebtedness.
The city needs a city jail and additional fire- proof rooms to the city hall to preserve city records.
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A THUMB-NAIL HISTORY OF
I recommend that an annex to the city hall be con- structed to care for all these various features.
Thanking you for your hearty co-operation, I am, Respectfully,
H. B. RICE.
An idea of what it costs to run a big city like Houston may be formed from the following recom- mendations, made by the mayor, for the coming year:
Mayor and commissioners $ 13,600
Controller and secretary 7,500
Law department 12,000
Treasurer 620
Assessor and collector 18,000
City Hall 4,000
Elections 1,000
Damages 1,000
Interest on bonds 265,000
Sinking fund 140,000
Miscellaneous expenses 15,000
Electric lights 50,000
Police 110,000
Corporation court 2,500
Fire department 125,000
Health department 25,000
Scavenger department
13,000
Electrical department 8,000
City engineer 20,000
Streets and bridges 100,000
Repair of shell and gravel streets . . 25,000
Sewer department 25,000
THE CITY OF HOUSTON, TEXAS 37
Garbage department
25,000
Market
7,000
Schools
210,000
Parks
10,000
Carnegie library
10,000
Refunding certificates
21,000
Buffalo Bayou
5,000
Mayor's emergency fund
1,000
Westmoreland fire station and equip-
ment
25,000
Water Department-
General expenses
$ 80,000
Interest
55,000
Sinking fund
28,000
Total
$1,458,220
Perhaps more interest attaches to the report of City Tax Commissioner J. J. Pastoriza this year than to any of the others, because of some radical changes that have been made in methods of taxation during the year just closed.
He states in his report that in the beginning of 1911 the city officials were confronted with the ne- cessity of raising the assessment over $12,000,000 to produce the additional revenue needed. He says that while the work for 1911 was fairly well done, the experience gained has convinced him of the ne- cessity of a scientific plan of assessment. The Somers system largely solved the problem with its system of equalizing the value by a mathematical rule for cal- culation. A contract was entered into with the Man-
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A THUMB-NAIL HISTORY OF
ufacturers' Appraisal Company of Cleveland to in- stall the system and for the past four months that work has been in progress.
In his report Commissioner Pastoriza says: "The application of the Somers system has revealed the fact that portions of many streets of Houston, some of them of exceeding value, are being used by indi- vidual citizens and corporations without bringing the city any rental or compensation whatever, and I recommend therefore that I be given authority to immediately institute suits to recover this valuable property for the city and to have removed such buildings or other obstructions as now occupy them.
"I also discovered that the area of many pieces of land were not accurately stated upon the block maps. There was not sufficient time to enable me to have these lands surveyed for the 1912 assess- ment, and I ask to be given authority to have these lands surveyed and that the engineering department be instructed to place at my disposal such help as is necessary to do this work without interruption and with the least delay possible."
The report shows that the tax rate was reduced from $1.70 in 1910 to $1.30 on the $100 in 1911.
"To the average mind this might indicate a re- duction in the rate of taxation," explains Commis- sioner Pastoriza in his report, "but Houston is a growing city, growing at a rate which few people realize, and the ever increasing need for street pav- ing, drainage, sewers, extension of water mains, schools and playgrounds, for police and fire pro-
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THE CITY OF HOUSTON, TEXAS
tection and a hundred and one improvements not enumerated, calls for an ever increasing revenue.
"In conclusion permit me to say that we do not claim our values are absolutely correct, but we do claim that they have been equalized as nearly as is possible, and that if our valuation of any particular piece of property in a block is considered too high, at least everybody else in that block and in the block across the street will be equally high; if we are low, everybody in that block and across the street will be equally low and there will be no discrimination. We have learned that it is not so much a question in the mind of a taxpayer whether our values are too high or too low, so long as we assess everybody the same, and only make the rate high enough to give the administration sufficient money to economically administer its affairs."
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