PHILADELPHIA 1681-1887: A History of Municipal Development.
Reading edition
BY EDWARD P. ALLINSON, A. M., AND BOIES PENROSE, A. B., OF THE PHILADELPHIA BAR.
While several general histories of Philadelphia have been written, there is no history of that city as a municipal corporation. Such a work is now offered, based upon the Acts of Assembly, the City Ordinances, the State Reports, and many other authorities. Numerous manuscripts in the Pennsylvania Historical Society, in Public Libraries, and in the Departments at Philadelphia and Harrisburg have also been consulted, and important facts found therein are now for the first time published.
The development of the government of Philadelphia affords a peculiarly interesting study, and is full of instruction to the student of municipal questions. The first charter granted by the original proprietor, William Penn, created a close, self-elected corporation, consisting of the "Mayor, Recorder and Common Council," holding office for life. Such corporations survived in England from medieval times to the passage of the Reform Act of 1835. The corporation of Philadelphia possessed practically no power of taxation, and few and extremely limited powers of any kind. As a rapidly growing city required greater municipal powers, the legislature instead of increasing the powers of the corporation which, being self-elected, was held in distrust by the citizens, established from time to time various independent boards, commissions, and trusts for the control of taxation, streets, poor, etc. These boards were subsequently transformed into the city departments as they exist to-day. The State and municipal legislation, extending over two centuries, is extremely varied and frequently experimental. It affords instruction illustrative of almost every form of municipal expedient and constitution.
The development of the city government of Philadelphia has been carefully traced through many changes in the powers and duties of the mayor, in the election and powers of the subordinate executive officers, in the position and relation of the various departments, in the legislative and executive powers of councils, in the frequently shifting distribution of executive power between the mayor and councils, and in the procedure of councils. In 1885 an Act of Assembly was passed providing for a new government for Philadelphia which embodies the latest ideas upon municipal questions.
The history of the government of the city thus begins with the medieval charter of most contracted character, and ends with the liberal provisions of the Reform Act of 1885. It furnishes illustrations of almost every phase of municipal development. The story cannot fail to interest all those who believe that the question of better government for our great cities is one of critical importance, and who are aware of the fact that this question is already receiving widespread attention. The subject had become so serious in 1876 that Governor Hartranft, in his message of that year, called the attention of the Legislature to it in the following succinct and forcible statement: "There is no political problem that at the present moment occasions so much just alarm and is obtaining more anxious thought than the government of cities."
The consideration of the subject naturally resolves itself into five sharply-defined periods, to each of which a chapter has been devoted, as indicated by the following summary, which, while not exhaustive, will suggest the general scope.
CHAPTER I. First Period, 1681-1701. — Founding of the city. — Functions of the Provincial Council. — Slight but certain evidence of some organized city government prior to Penn's Charter.
CHAPTER II. Second Period, 1701-1789. — Penn's authority. — Charter of 1701. — Attributes of the Proprietary Charter; its medieval character. — Integral parts of the corporation. — Arbitrary nature and limited powers. — Acts of Legislature creating independent commissions. — Miscellaneous acts and ordinances. — The Revolution. — Abrogation of Charter. — Legislative government. — Summary.
CHAPTER III. Third Period, 1789-1854. — Character of Second Charter. — Causes leading to its passage. — A modern municipal corporation. — Supplements. — Departments. — Concentration of authority. — Councils. — Bicameral system adopted. — Officers, how appointed or elected. — Diminishing powers of the mayor. — Introduction of standing committees. — Finance. — Debt. — Revenue. — Review of the period.
CHAPTER IV. Fourth Period, 1854-1887. — Act of consolidation. — Causes leading to its passage. — Features of New Charter. — Supplements. — Extent of territory covered by consolidation. — Character of outlying districts. — New Constitution. — Relation of city and county. — Summary of changes effected. — Twenty-five quasi-independent departments established. — Encroachment of legislative upon executive powers. — Resulting Citizens' Reform movement. — Committee of one hundred. — Contracts. — Debt. — Delusive methods of finance. — Reform movement in councils. — Causes leading to the passage of the Bullit Bill. — Review of the period.
CHAPTER V. Fifth Period. — Text of the Act of 1885. — History of the passage of the Bullit Bill. — Changes by it effected in the organic law. — Conclusions.
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