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Royal Commission on Municipal Corporations (1835)

First Report:  Parliamentary. Papers. 1835/xxiii.

Defects in the Constitutions of Municipal= =20 Corporations, according to the Commissioners of 1835

After the passing of the 1832 Reform Act = the next=20 logical step in the reform of the constitution was that of the = Municipal=20 Corporations. There were about 250 of these towns, each of which at = some time=20 in the past had received a Royal Charter to have its own council or=20 corporation. There were great variations in how the corporations were = chosen=20 and how they functioned but in over 180 of them, only the members of = the=20 Corporation were allowed to vote. Normally they re-elected themselves = or=20 brought friends and relatives onto the council. The Commission found = generally=20 that power was held by a small number of people because so few = townsfolk could=20 vote. They also found evidence of corruption with the council members = becoming=20 rich at the expense of the town's inhabitants.

Following the same procedures that had been adopted for the = investigation=20 of the Poor = Laws,=20 in July 1833 the Whig = government=20 set up a Royal Commission was set up to investigate the working of = local=20 councils. The Commission's secretary was Joseph = Parkes, a=20 radical lawyer. 285 towns were investigated, most of which were found = to be=20 unsatisfactory. As a result of the Commission's findings, a Bill was = drawn up=20 and brought to the House of Commons by Lord John = Russell in=20 June 1835.

The Bill went through the House of Commons without too much = difficulty but=20 the House of Lords proved more difficult. Most of the closed = corporations were=20 controlled by Tories = and the=20 Tory peers claimed that the Bill was an attack on privileges and = property.=20 They had used the same reasons to oppose the abolition of rotten = boroughs=20 during the 1832 Reform Act campaign. The Lords made some amendments to = the=20 Bill but, thanks to the efforts of the Duke of = Wellington=20 and Sir = Robert=20 Peel, the Tory Lords were restrained from throwing out the Bill=20 altogether. The legislation went onto the Statute Book in September = 1835.

The following extracts are from the Report and demonstrate some of = the=20 worst defects of local government.

  1. ... The most common and most striking defect= in the=20 constitution of the Municipal Corporations of England and Wales = is, that=20 the corporate bodies exist independently of the communities among = which they=20 are found. The Corporations look upon themselves, and are considered = by the=20 inhabitants, as separate and exclusive bodies; they have powers and = privileges=20 within the towns and cities from which they are named, but in most = places all=20 identity of interest between the Corporation and the inhabitants has=20 disappeared. This is the case even where the Corporation includes a = large body=20 of inhabitant freemen: it appears in a more striking degree, as the = powers of=20 the Corporation have been restricted to smaller numbers of the = resident=20 population, and still more glaringly, when the local privileges have = been=20 conferred on non-resident freemen, to the exclusion of the inhabitants = to whom=20 they rightfully ought to belong.

  2. The importance which the privilege of electing Members of = Parliament has=20 conferred upon Corporate Towns, or rather upon the governing bodies = there, and=20 the rewards for political services, which are brought within the reach = of the=20 ruling corporators, have caused this function to be considered in many = places=20 as the sole object of their institution. In some Boroughs this right = has=20 survived all other traces of municipal authority. The custom of = keeping the=20 number of corporators as low as possible may be referred to this = cause, rather=20 than to the desire of monopolizing the municipal authority, which has = been=20 coveted only as the means of securing die other and more highly prized = privilege.=20

    Hence a great number of Corporations have been preserved solely as=20 political engines, and the towns to which they belong derive no = benefit, but=20 often much injury, from their existence. To maintain the political = ascendancy=20 of a party, or the political influence of a family, has been the one = end and=20 object for which the powers intrusted to a numerous class of these = bodies have=20 been exercised. This object has been systematically pursued in the = admission=20 of freemen, resident or non-resident; in the selection of municipal=20 functionaries for the council and the magistracy; in the appointment = of=20 subordinate officers and the local police; in the administration of = charities=20 entrusted to the municipal authorities; in the expenditure of the = corporate=20 revenues, and in the management of the corporate property. The most = flagrant=20 abuses have arisen from this perversion of municipal privileges to = political=20 objects. The Commissioners have generally found that those = Corporations which=20 have not possessed the Parliamentary franchise, have most faithfully=20 discharged the duties of town government, and have acquired, more than = others,=20 the confidence and good-will of the communities to which they belong. = This has=20 been the case in some, even where the ruling bodies are strictly = self-elected,=20 and where the general character of their constitutions is open to the=20 objections.. common to the great majority of Corporations. Very few = large=20 corporate towns were without Members of Parliament, even before the = Reform=20 Act, so that many instances cannot be given from among them. The = Corporations=20 of Leeds, Lynn and Doncaster may be cited as turning their attention = to their=20 municipal duties more sedulously than the majority. Among the small = towns,=20 deserving the same character, we refer to the Corporations of Louth, = Bideford,=20 Maidenhead, Beccles, South Molton and Stratford-upon-Avon.

  3. In the few boroughs in which the powers of local = government are=20 vested in a numerous body of freemen, the general character of the = governing=20 body is vitiated by the defects of its organization, which have = already been=20 pointed out. The exclusive and party spirit which belongs to the whole = corporate body, appears in a still more marked manner in the councils = by which=20 inmost cases it is governed. It has been stated that the members of = these=20 councils are usually self-elected, and hold their offices for life. = They are=20 commonly of one political party, and their proceedings are mainly = directed to=20 secure and perpetuate the ascendancy of the party to which they = belong.=20 Individuals of adverse political opinions are, in most cases, = systematically=20 excluded from the governing body. Since the repeal of the Corpo= ration=20 and Test Acts, and the removal of the civil disabilit= ies of=20 the Catholics, very few instances occur in which either Catholics or=20 Dissenters, who often form a numerous, respectable and wealthy = portion of=20 the inhabitants, have been chosen into the governing body of the = corporation.=20 These councils, which embody the opinions of a single party, are = entrusted=20 with the nomination of magistrates, of the civil and criminal judges, = often of=20 the superintendents of police, and are or ought to be the leaden in = every=20 measure that concerns the interests and prosperity of the town. So far = from=20 being the representatives either of the population or of the property = of the=20 town, they do not represent even the privileged class of freemen; and = being=20 elected for life, their proceedings are unchecked by any feeling of=20 responsibility. The discharge of the functions with which they are = entrusted,=20 is rendered difficult by the dislike and suspicion which the manner of = their=20 election inevitably entails upon them.

  4. To this system may be traced the carelessness often observed in = the=20 execution of their duties; and persons well qualified for the council = are=20 excluded, sometimes for want of vacancies, sometimes through the = rejection of=20 the electing body, some times through the refusal of such persons to = identify=20 themselves with a system of which they disapprove. The common council = of the=20 city of London presents a striking exception to the system of = self-election=20 for life, and it affords a remarkable instance of the absence of those = evils=20 which we refer to it. The common councilmen of this city are annually = elected=20 by a numerous constituency, yet changes seldom happen among them. The=20 important requisites of experience in the functionary, and the power = of=20 control in the electors, are there effectually united, and produce = that=20 efficiency and confidence which are wanting in most other corporate = towns. The=20 history of the common council of London is that of a body which has = watched=20 vigilantly over the interests of its constituents, and for a long = series of=20 years has studied to improve the corporate institutions with great=20 earnestness, unremitting caution, and scrupulous justice.

  5. It is part of the general system of close Corporations that all = their=20 affairs should be managed with the strictest secrecy, sometimes = secured by=20 oaths administered to the member of the common council. The = inhabitants who=20 are subject to the authority of the Corporation, have frequently very=20 imperfect information, as to its nature and extent; they are ignorant = whether=20 it derives its sanction from prescription, from charters, or from = bye-laws;=20 and the only mode by which they can obtain information is often = through the=20 troublesome and expensive process of an application for a mandamus= or=20 quo warranto. The bye-laws which are made, as well as those = which are=20 repealed, are seldom published, and the public is generally = unacquainted with=20 their provisions, except from common rumour. This ignorance is = sometimes=20 shared by the members of the Corporation. Hence violations of the = charters and=20 bye-laws have been often made with impunity.

  6. In some cases the duties of the mayor have been totally = neglected, either from want of capacity or from wane of will; = occasionally=20 from non-residence. At Hartlepool, where the mayor is chosen in = rotation from=20 the capital burgesses, many of whom are non-resident, it sometimes = happens=20 that the mayor never attends even worn into office. At Winchester, the = present=20 high steward was chosen mayor during an important litigation in which = the=20 Corporation was involved. He was the son of the patron, and was = admitted a=20 freeman the year before his election as mayor. The mayor was ex officio = a member=20 of the committee for conducting the litigation; but be appointed a = deputy, and=20 entered on the records of the Corporation a protest of his ignorance = of all=20 relating to it. At Durham, the mayor of the year 1831-2 refused to = render the=20 usual account of receipts to the common council.  The mayor of = Grampound=20 left the borough upon its disfranchisement, and the corporation books = and=20 accounts have not been found-since. No new mayor was elected after the = disfranchisement, until the year in which the present Commission = issued. In=20 some boroughs, the same mayor is continued from year to year; and in = others,=20 as at Cambridge and Tenby, it has been the custom to elect two or = three=20 persons in rotation. The effect of entrusting the election to the = freemen,=20 constituted as those freemen now generally are, is to degrade the = office in=20 the estimation of the persons robe governed. At Maidstone, the = election is=20 merely a struggle to try the strength of opposing parties without any = personal=20 preference, and bribes are given by persons wishing to avoid being = elected.=20

  7. The method of appointing the Recorder is often very objectionable. = At=20 Newport, in the Isle of Wight, the recorder is appointed formally by = the Crown=20 on the nomination of the whole corporation, but practically on the = dictation=20 of the patron. On one occasion, a nobleman was chosen recorder there, = whose=20 connexion with the Corporation consisted in his being a trustee for = the=20 managing the property of a deceased patron. At Woodstock, the = recorder's=20 office has been vacant for several years, because the patron's nominee = was=20 opposed. The Recorders of some boroughs are elected by a constituency = of=20 freemen, such as we have already characterised. At Berwick-upon-Tweed, = a=20 Recorder so chosen, tries capital felonies. This officer also unites = functions=20 in some cases, which are improperly joined. This occurs, when he lives = in the=20 neighbourhood, and discharges the duties of a resident magistrate, at = the same=20 time that he is by virtue of his office, the presiding judge of the = Criminal=20 Court. In many instances he performs no duties whatever, and his = nominal=20 connexion with the borough is only a form through which he exercises = over it=20 an unwarrantable control.=20

    The charters have often empowered the Recorder to appoint a deputy. = The=20 exercise of this power is occasionally useful; but the practice of = appointing=20 a deputy permanently to discharge all the duties of the Recorder is = very=20 mischievous. Not only is the appointment placed in the hands of an=20 irresponsible individual, but the difficulty of finding qualified = persons to=20 fill the situation is increased. Many persons would accept the office = of=20 principal, who would decline the office of deputy.

  8. The party spirit which pervades the Municipal councils, = extends=20 itself to the magistracy, which is appointed by those bodies, and from = their=20 members. The magistrates are usually chosen from the aldermen, and the = aldermen are generally political partisans. Hence, even in those cases = in=20 which injustice is not absolutely committed, a strong suspicion of it = is=20 excited, and the local tribunals cease to inspire respect The = corporate=20 Magistrates, generally speaking, are not looked upon by the = inhabitants with=20 favour or respect, and are often regarded with positive distrust and=20 dislike.

  9. The corporate magistrates are often selected from a class = incompetent to=20 the discharge of judicial functions, and the consequence has been a = great=20 defect in the administration of justice. At East Retford, a = respectable=20 witness, who had been clerk to the magistrates, declared that one of = the=20 magistrates was in the habit of conversing familiarly with the = culprits=20 brought before him, and endeavoured to impress them with the idea that = he was=20 performing an unwilling office. On one occasion he saw the magistrate = fighting=20 with a prisoner, and struggling with him on the floor. At Malmesbury, = the=20 magistrates are often unable to write or read. At Wenlock blank = warrants have=20 been signed by the magistrates: in one case a blank warrant of = commitment was=20 granted by mistake, instead of one of apprehension, and the constable = had it=20 in his possession for several weeks before he executed it. The = jurisdiction of=20 the borough magistrates at Wenlock is exclusive; it extends over 17 = parishes,=20 and contains a population exceeding 17,000 persons.=20

    Even when the corporate magistrates belong to a superior class, = they are=20 often selected from the senior aldermen only, who, from age and = infirmities,=20 soon become incapable of performing the functions of their office, = while a=20 mistaken notion of dignity keeps them from resigning it.

  10. The evils resulting from the ignorance and inefficiency = of the=20 borough magistrates, are heightened by gross defects in other parts of = the=20 judicial system. The juries of the borough courts are often = exclusively taken=20 from the freemen, who, besides being composed of an inferior class, = are=20 strongly tainted with party feelings. Northampton furnishes a strong = instance=20 of this. At Carmarthen, verdicts are frequently given against justice, = from=20 party bias. The population of that town is 10,000, but the jurors are = chosen=20 from a small body of 178 burgesses. At the spring assizes of 5833, a = true bill=20 was found by the grand jury of the borough for a capital felony. The = grand=20 jury consisted of 20 burgesses; of these, 17 belonged to the = Corporation=20 party, and the foreman was the committing magistrate. The panel of the = petty=20 jury contained 46 persons belonging to the Corporation parry, 12 of = the=20 defendants' party, and only two neutrals. An application was made to = the=20 judge, to order the indictment to be tried in Carmarthenshire.  = The trial=20 took place there, and the defendants were acquitted. The very answer = to this=20 statement was given by one of the sheriffs, who said that there was = not a sufficient number of = respectable=20 persons of the defendants' party, to enable them to summon a grand = jury=20 equally from both sides, and that the Petty jury was summoned from = those=20 burgesses who had not attended the previous assizes. At Haverford = West, where=20 none but burgesses can serve on the juries, there are only 141 = burgesses, and=20 not 50 who are fit to serve on them: the juries there have been openly = reprimanded by judges and magistrates for improper acquittals of = burgesses=20 upon criminal prosecutions; the practice has not been checked by such=20 reprimands, and the general opinion is, that it is "impossible to = convict a=20 burgess."

  11. The police belonging to Municipal Corporations is for = the most=20 part very sufficient, and for supplying the deficiency, resort is had = to local=20 Acts. The superintendence of the police, and the powers necessary for=20 watching, paving, lighting. cleaning and supplying the towns with = water,=20 instead of being entrusted to the municipal authorities, are for the = most part=20 committed by these Acts to various independent bodies; although none = of these=20 towns are too extensive to be embraced by one system of municipal = government;=20 for instance, every quarter of the town of Bath is under the care of a = separate board, except one, which is totally unprotected. Much = confusion=20 results from this divided authority. The powers of local taxation, and = the=20 superintendence of matters so closely connected with the comfort and = well=20 being of the inhabitants, which are now exercised by these bodies, = appear to=20 belong precisely to that class of objects for which corporate = authority was=20 originally conferred; but great dissatisfaction would prevail among = the=20 inhabitants, if these powers were entrusted to the Municipal = Corporations as=20 at present constituted. In several towns much apathy is now shown by = the=20 inhabitants with respect to the municipal benefits conferred by these = Acts; in=20 Southampton, where the consent of the inhabitants is required to bring = them=20 within the powers of a local Act, nearly half of the town has refused = the=20 benefit of it. Great jealousy often exists between the officers of = police,=20 acting under the Corporation and those under the Commissioners of = these local=20 Acts, and the corporate body seldom rakes any active share in the = duties of=20 the board, of which its members form a part. At Bristol, a notoriously = ineffective police cannot be improved, chiefly in consequence of the = jealousy=20 with which the Corporation is regarded by the inhabitants. At Hull, in = consequence of the disunion between the governing body and the = inhabitants,=20 chiefly arising out of a dispute about the tolls and duties, only = seven=20 persons attended to suppress a riot, out of 5,000 who had been sworn = in as=20 special constables, and on another similar occasion none attended. At=20 Coventry, serious riots and disturbances frequently occur, and the = officers of=20 police, being usually selected from one political party, are often = active in=20 fomenting them. In some instances, the separate and conflicting = authority of=20 the Commissioners is avowedly used as a check and counterbalance to = the=20 political influence of the Corporation. At Leeds, no persons are = elected=20 Commissioners of Police whose political principles are not opposed to = those of=20 the Corporation.=20

    An ineffectual attempt to obviate the evils resulting from the want = of a=20 well-organized system is made in some towns by subscriptions for = private=20 watchmen. At Winchester, after a local Act had been obtained, its = powers were=20 found to be insufficient, and the town is now watched by private = subscription,=20 to which the commissioners contribute =C2=A3100 from the rate.

    The superintendence of the paving and lighting. &c., of the = various=20 towns is in the same unsatisfactory state, but, in this branch of = police, the=20 want of a single presiding authority leads perhaps to less evil and=20 inconvenience.

  12. In general, the corporate funds are but partially = applied to=20 municipal purposes, such as the preservation of the peace by an = efficient=20 police, or in watching or lighting the town, &c.; but they are = frequently=20 expended in feasting, and in paying the salaries of unimportant = officers. In=20 some cases, in which the funds are expended on public purposes, such = as=20 building public works, or other objects of local improvement, an = expense has=20 been incurred much beyond what would be necessary if due care had been = taken.=20 This had happened at Exeter, in consequence of the plan of avoiding = public=20 contract, and of proceeding without adequate estimates. These abuses = often=20 originate in the negligence of the corporate bodies, but more = frequently in=20 the opportunity afforded to them of obliging members of their own = body, or the=20 friends and relations of such members.

  13. Some Corporations consider that their property has been vested in = them=20 solely as trustees for the public; but, in most cases, this truth is=20 acknowledged only when forced on their attention, is received with = difficulty=20 and qualification, and is continually forgotten. Few Corporations = admit any=20 positive obligation to expend the surplus of their income for objects = of=20 public advantage. Such expenditure is regarded as a spontaneous act of = private=20 generosity, rather than a well-considered application of the public = revenue,=20 and the credit to which the Corporation, in such a case, generally = considers=20 itself entitled, is not that of judicious administrators, but of = liberal=20 benefactors. Even in these cases, party and sectarian purposes often = prevail=20 in its application.

  14. From this erroneous but strongly rooted opinion, that the property = of the=20 Corporations is held in trust for the benefit of the corporate body = only,=20 distinguishing that body from the community with which it is locally=20 connected, the transition is not difficult to the opinion that = individual=20 corporators may justifiably derive a personal benefit from that = property. At=20 Cambridge, the practice of turning the Corporation property to the = profit of=20 individuals was avowed and defended by a member of the council.=20

    In conclusion, we report to YOUR MAJESTY that there prevails = amongst the=20 inhabitants of a great majority of the incorporated towns a general, = and, in=20 our opinion, a just dissatisfaction with their Municipal Institutions; = a=20 distrust of the self-elected Municipal Councils, whose powers are = subject to=20 no popular control, and whose acts and proceedings being secret, are = unchecked=20 by the influence of public opinion; a distrust of the Municipal = Magistracy,=20 tainting with suspicion the local administration of justice, and often = accompanied with contempt of the persons by whom the law is = administered; a=20 discontent under the burthens of Local Taxation, while revenues that = ought to=20 be applied for the public advantage arc diverted from their legitimate = use,=20 and are sometimes wastefully bestowed for the benefit of individuals,=20 sometimes squandered for purposes injurious to the character and = morals of the=20 people. We therefore fed it to be our duty to represent to YOUR = MAJESTY that=20 the existing Municipal Corporations of England and Wales neither = possess nor=20 deserve the confidence or respect of YOUR MAJESTY'S subjects, and that = a=20 thorough reform must be elected, before they can become, what we = humbly submit=20 to YOUR MAJESTY they ought to be, useful and efficient instruments of = local=20 government.

    We humbly submit this our Report to YOUR MAJESTY'S Royal = Consideration.=20

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