City government

“ Wherever it has been put into the constitution of a state a larger municipal vision has been created and a new brand of municipal administration has appeared. Thus it is a significant fact that many of the most advanced forms of city government have grown up in the cities which have enjoyed constitutional home rule. Given the right to determine its own destiny, the city becomes the hope, instead of the despair, of democracy. And the test which democracy receives will be a fair one. ”

“ For one thing, the problems of city government have become, with the growth and organization of city life, so complicated that it is no longer desirable to leave them to the control of men whose only qualification for handling them consists in the fact that they have succeeded in gaining office through the ordinary machinery of ward politics. ”

“ If we wish to destroy the life of the city, make it impotent to discharge the functions for which it was organized, then, and then only, it might be feasible to place over it a commission.
But, Honorable Judges, authorities are agreed that cities must be allowed greater freedom of action in local affairs, that municipal home rule is indispensable. The governments of our large cities have been dominated to such an extent by the state legislatures, usually partisan and irresponsible to the locality concerned, that in many cases self-government has become a term, hollow and without meaning. ”

“ Shall the city own its own street railways, its markets, its water and gas supply, its telephones, and its water fronts? Shall this or that duty be delegated to the city or to the state, or shall it be left to the chance performance of individuals or corporations? These are some of the many questions of supreme importance that meet us at every point, and the better we understand the true nature and structure of our government, the better shall we be able to give intelligent answers. ”

“ But we have advocated numerous reforms and have pointed out countless instances of municipal success under various forms, yet all based upon the same fundamental principle, that there be separately constituted departments of government. One of the fatal objections to the gentlemen's proposition is that they are attempting to blanket the whole country with one arbitrary form, regardless of differing conditions. They have completely ignored our cases of successful city government. We demand that they explain them. ”

“ In larger villages boards of health and other boards and commissions exist to administer various forms of public service. The village may also have its minor court presided over by a justice of the peace.
CITY GOVERNMENT When villages or towns reach a certain population usually fixed by state law, they may be incorporated as cities. The change that takes place is simply one of elaborating the governing machinery and giving to it larger powers to correspond with the larger needs of city life. The complex problems of city government we shall not attempt to study in this book. ”

“ These are some of the conditions that are peculiar to city life; and we find here the reasons why the government in a city must undertake a large number of functions. At every point the safety of the citizen and his property must be guarded; and in a great many ways the conveniences of life must be supplied by the city or under the control of city officials. Thus we account for the fact that city government is complex—the principal source of the difficulties and the evils that we find in connection with administrative departments. ”

“ A city is only a political subdivision of the State, made for the convenient administration of the government. It is an instrumentality, with powers more or less enlarged, according to the requirements of the public, and which may be increased or repealed at the will of the legislature. ”

“ It was the constitution of the English city or borough that determined the constitution of the first city governments established in this country; and here, too, a distinct tendency toward oligarchy, with its attendant evils, began to make itself felt. The city government, instead of being freely elected by the people, was, after the pattern of the English borough, a self-perpetuating corporation with a very limited responsibility to the citizens in general. ”

“ Places containing a large and close population need a different government from that of ordinary towns or townships. Many of the laws regulating the affairs of towns thinly inhabited, are not suited to a place where many thousand persons are closely settled. Besides, the electors in such a place would be too numerous to meet in a single assembly for the election of officers or the transaction of other public business.
§2. Whenever, therefore, the inhabitants of any place become so numerous as to require a city government, they petition the legislature for a law incorporating them into a city. ”

“ City governments thus constituted are something like state governments in miniature. The relation of the mayor to the city council is somewhat like that of the governor to the state legislature, and of the president to the national congress. In theory nothing could well be more republican, or more unlike such city governments as those of New York and Philadelphia before the Revolution. ”

“ This scheme of city government has all the advantages of the commission plan and some of its defects. The detailed work falls on the city manager who is qualified to do it. There is a single, responsible head of the administration. When a citizen has any complaint to make, he knows exactly where to go. ”

“ A community organized to comply with the foregoing requirements—divided into wards, having a council made up of aldermen from those wards, having a council authorized to levy taxes at its discretion, having a municipal court, having regularly employed police acting under the direction of the mayor—is a city, as the term is generally used in the United States.
Another reason for establishing a city government is frequently potent, although unmentioned. The pride of the community can be thereby indulged, and more citizens can have their ambition to hold public office gratified. ”

“ The city is organized, like the state government, on the plan of distributed powers and diffused responsibility. It contains, as a rule, an elaborate system of checks which affords little opportunity for the prompt and effective expression of local public opinion in the administration of municipal affairs. At the same time, it gives the municipal authorities power to inaugurate and carry out policies to which local public sentiment may be strongly opposed. This is seen in the control which the mayor and council quite generally exercise over the matter of municipal franchises. ”

“ City and county government should be consolidated in cities like Chicago, Philadelphia, Cleveland, and Los Angeles.
182 CHAPTER X
CITY GOVERNMENT The purpose of this chapter is to explain who the city authorities are and what they do.
To be a city a place must have a charter. What is a City?—The poet Cowper once said that “God made the country and man made the town”, a remark which was not intended to flatter the cities. Nor is there any reason why life in a crowded community should particularly appeal to poets although it may have a strong fascination for more worldly-minded men. ”

“ City officials have confined their efforts to the routine affairs of their office, and have so often spent their spare time and the city's money freely for the satisfaction of their personal interests that municipal government has gained the reputation of being notoriously corrupt, and has been left to ward politicians by the better class of citizens. Nevertheless, municipal government represents the principle of control and stands in the background as the preserver of the interests of all the people. ”

“ The common councilmen, 206 in number, are also elected by the people, and their legislative power within the city is practically supreme; parliament does not think of overruling it. And the city government thus constituted is one of the most clean-handed and efficient in the world. ”

“ The elimination of ward representation in city government is a recent advance toward the unit idea. It is sometimes expressed in the commission form of government, sometimes in a single city council elected at large. From the viewpoint of city planning the most notable advantage of this simplified form of government is that the administration represents the entire city and is not a collection of representatives from the several parts of the city. Other advantages due to a saving in time and money caused by a smaller body with a businesslike procedure, are no doubt real. ”

“ The city government is vested in a mayor, elected every two years, a municipal council, and the usual administrative departments, all appointed by the executive, and all, excepting that of public works, where the power is given to a single head, governed by boards. ”

“ But the thing which the town lacks, as compared with the complete city, is very different in America from what it is in England. In America it is municipal government—with mayor, aldermen, and common council—which must be added to the town in order to make it a city. ”

“ Give the city a proper sphere of local autonomy. Co-ordinate the departments of government, so as to establish responsibility and secure harmonious action. Simplify present city organization without destroying the two branches of government. Introduce new and improving methods, such as non-partisan primaries, civil service, uniform municipal accounting, and publicity of proceedings. Remedy bad social and economic conditions. Arouse civic interest. Do this, and there is no necessity for such a radical and revolutionary change as the universal adoption of a commission form. ”

“ The value of local self-government as a training for the duties of citizenship has been very great, and in many parts of the country, especially where the funds dealt with are small, elections are not fought and offices not distributed upon party lines.
§ 12. The tendency, now so marked in nearly all civilized countries, to the development of urban communities has been nowhere more marked than in the United States. The increase in the range and importance of municipal functions has been not less striking than the growth of urban City Government. population. ”

“ These institutions share in all the benefits of the city government, are guarded by its police, are protected by its fire department, are approached by streets lighted, cleaned, and paved at its expense, and, in the event of their unlawful destruction, the municipality would be liable to respond in damages for their full value—all this for the accommodation of a small fraction of the people. ”

“ The Philadelphia City Hall Building affords a good example of how far this lack of local responsibility may sometimes carry the legislature in the exercise of local powers, and in the imposition of financial burdens on cities. ”

“ The real ground seems to me the recognition of the fact that the form of government which had its origin in the town meeting and was well suited to the needs of a small community based on primary relations is not suitable to the government of the changing and heterogeneous populations of cities of three or four millions. ”

“ In contrast, the City Manager has the power to appoint the chief officials of the various city government departments, the responsibility for enforcing city ordinances and resolutions, the obligation of attending City Council meetings and of making suggestions and recommendations to the Council, the duty of keeping the City Council informed of general and specific activities of the city including its financial status, the task of preparing and submitting a proposed budget to the City Council and the duty of carrying out miscellaneous functions assigned to him by the City Council. ”

“ Streets and avenues have since been laid out and completed, squares and public grounds enclosed and ornamented, until the city which bears his name, although comparatively inconsiderable in numbers and wealth, has become quite fit to be the seat of government of a great and united people. ”

“ We want our Mayors and City Councillors and Aldermen, and municipal laws to protect the weak, the virtuous, the pure, and holy, and restrain the wicked, the riotous, the thief, and debauchee, and to maintain order in the community. We have a number of towns and cities extending for some five hundred miles, and it is ne-cessary that we should have a government to regulate and manage affairs in our midst. We are forced into this position, we cannot help ourselves, and hence we become a Territory, and have our Governor, Judges, Marshal, and Secretary of State sent us by the United States ”

“ The city alone has anything really important to gain or to lose from their proper or improper treatment; and its legal responsibility should be as complete as its economic localization is real.
There is no need of discussing in any detail the way in which a municipal government which does enjoy the advantage of home rule and an efficient organization can contribute to the work of national economic and social reconstruction. Public opinion is tending to accept much more advanced ideas in this field of municipal reform than it is in any other part of the political battle-field. ”

“ The city is provided with 3 commodious and handsome market houses, each of which is the centre of a busy trade.—The government is vested in a mayor, a common council comprising 26 members, 2 from each of the 13 wards, a comptroller, city attorney, street commissioner, treasurer, superintendent of education, city engineer, overseer of the poor, and 3 assessors, all of whom are elected by the people for a term of two years. ”

“ The mayor is the chief executive of the city. It is his duty to see that the laws are enforced. He appoints a number of subordinate officers, and in most cities may veto the acts of the city council. The duties of the city attorney, the city clerk, the assessor, the collector, the treasurer, the school board, and the superintendent of schools are similar to those of township and county officers of the same name. The city engineer has charge of the construction of sewers and the improvement of parks. ”