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 the loest cfniiprcmiise that could he eftected. Moiinvvhile the sense of 
 responsibility for results was lost. In the lai'gt;st cities, where the 
 evils of inetiicieiicy have l»cen most severely felt, the present tendency 
 is to lodge with the mayor the power to aj)point, or at least 
 nominate all the executive officers of the city. It is doul)tfiil whether 
 a high degree of efficient a(h)iinistration can so well he obtained in 
 any other way. If this powei-, so lodged with the mayor, is made a 
 part of a consistent sy.stem by which the rcsponsibilitj' goes with the 
 power with ecjual step, tln' dangei's to the city resulting from the 
 system are really less than those which How fiom other methods. Power 
 without resp(msil)ility is always dangerous; but power, with respon- 
 .sibility to a constituency which can readily call it to account, is not 
 dangerous. It is the first recpiisite to efficient administi'ation. A city 
 is not so much a little state as it is a great corporation. So long as 
 we can look to our provincialiind federal governmentsito protect us in our 
 liberties as citizens, we need have no fear in forming our city govern- . 
 ments for the purpose of doing efficiently the work that a city govern- 
 ment ought to do. The system prevailing in Brooklyn, N. Y. , f<n' join- 
 iiag responsibility with power, seems as nearly ideal as any that we 
 have heai'd of. The mayor is elected for a term of two years, and takes 
 office on the first of .lanuary. The great administrative departments 
 of the city are carried on for him, for one month, by the appointees of 
 his predecessor. On the 1 st of February it l)ecomes the duty of the mayor 
 to appointor confirm, without confirmation by the common cov.ucil, all 
 the heads of executive depaitments. These ajipointiut-nts are made oi- 
 ratified for a term of two years, so that each incoming mayor enjoys the 
 opportunity of making an administration in harmony with himself. Un- 
 der these conditions, an administration is formed foi' which the mayor not 
 only should l)e willing to be responsible, but for which he must be respon- 
 sible. It is a fact worthy of note, that few heads of departments have 
 changed with change of mayor. In practice, the people of Bi'ooklyn 
 understand that for all administrative failure, in any part of the city 
 goverment, the mayor is finally responsible. Complaint, naturally, is 
 made first to the head of a department. If the complaint involves the 
 head of a department himself, it is made to the mayor. If the 
 mayor corrects the evil, that, of course, is the end of it. If he does 
 not, he makes himself directly responsible for it. When a new mayor 
 is to be elected, canvass is conducted admittedly upon the theory that 
 the outgoing mayor, so far as the people are concerned, is responsible 
 for all the acts of hia administration. Naturally this makes a long line 
 for the mayor to defend, and conspicuous failurs is pretty certain to re- 
 ceive an emphatic verdict. There may, indeed, be poor administration 
 \inder this system, but there cannot be poor administration for 
 which nobody is responsible. The remedy is understood, and can 
 
 / . I 
 
»*T**7"' 
 
 1)0 applied at Mill by the people of the city. It was contended 
 by the commission apj)ointe<l by (lov. Tilden to report upon the 
 goveinment of cities, "That there should reside, in the hands of the 
 governor, for safety's sake, the power to remove a mayor." Theic can 
 1)6 no serious objection to this reserved power of removal. Practically 
 it would be resorted t<i very infrequent if at all. But by all means let 
 it exist, if it will satisfy us to make a strong executive. Until some 
 such systeni is had, of concentrating in tlie executive head of the city, 
 power and responsibility equal to the demands of the situation, it is 
 useless to expect a tiuly ethcient city government. The second condi- 
 tion of efficient administration is that executive woT-k should Ije com- 
 mitted to one man. It seems strange that among so ])ractical a people 
 as we are, it shouhl be necessary to emphasize this j)lain truth. Yet there 
 is scarcely a city which does not violate, in its city government, the dic- 
 tates of this maxim, which sums up the whole testimony of human ex- 
 perience. The old Ronuvns, when they had five a(pieducts, jjlaced every 
 one of them under the charge and supervision of a single man. Our fore- 
 fathers placed each of the executive depaitments of the general govern- 
 ment in the care of a single ofHeer. Who supposes, for a moment, tliat 
 the post office system of England for instance, could have been developed 
 to its present condition, except along the line of administration of ex- 
 ecutive work by single individuals? All the great interests affected by 
 the Finance Department are comitted without hesitation l)y civilized 
 nations to a single Finance Minister. Yet when it comes to the 
 cities, and the small concerns, comparatively, which are affected by 
 them, we appear to be afraid to lodge the administration of the depart- 
 ment of city works, or the fire department, oi' the police department 
 in single heads. If human experience teaches anything with greater 
 emphasis than executive work to be well done should be connnitted to 
 one man, it teaches that the feeblest of all forms of administration is 
 bycommittee. Y'et, in our city — in most cities, the committees of the 
 common council are practically the executive arm of the city govern- 
 ment, the nominal executive having but little inherent power. Our 
 city, therefore, must not expect to attain to a high degree of efficient 
 administration until they will commit to a single head each of the 
 executive departments of the city. The principle of personal respon- 
 sibility on the part of one n\an to his superior must permeate the de- 
 partments from top to bottom before it becomes resonable to expect any 
 high standard of efficiency. There may, indeed, be failure of executive 
 work under these conditions if the head of a department be in fact a 
 poor executive, but the mayor ought to be given the right not only to 
 practically appoint his heads of department, but a similar power to 
 cause their removal, so that when experience has demonstrated any 
 appointment to have been a mistake, he can remedy it, and so properly 
 
 
 -•>i 
 

 ))C lield re8jK)iisil)le at every iiioinent for etiicicnt iulininistration iu 
 all parts of the city governnieiit. 
 
 The next element in efficient administration on tlie part of a eity 
 government is that it should work togetlier. The })olic!e dopaitment, 
 for example, touches in its daily duties the dcpailiiient of city works, 
 the healtli de))artment, the fire department, and the l)nilding depart- 
 Uient. 'i'lie ordinances aft'ecting all these departments dejjend for their 
 enforcement up(m the efllciency an.t co-operation of the ])olice. The 
 failure to co-operate with one anotlier, so fre(juently fouml in the ex- 
 ecutive lieada of departments s])rings in the main from the absence of 
 any tie compelling tliem to lealize a common resposihility. Tliey are, 
 indeed, officers of the same city, but that is all. His department is his 
 business, and nobody else's. If they are nominated by the mayor and 
 confirmed by the council, such ajjpointmcnts usually involve the 
 feeling that they represent this or tliat personal interest. The 
 idea of a common responsibility to work together for the public 
 interest nevei' pi'csents itself undei' such conditions. It hapj)ens, 
 theiefoie, that city governments often are loose ends, very much 
 as the planets M'ould be if the law of gravitation were suspended. 
 Collisions in the heavens would not be more certain in tlie pi-esenee of 
 such a suspensi(m of the law of gravity, than conflicts between depart- 
 ments are ceitain in a city government which is lield to no conmiou 
 responsibility. This element of i-cs])onsibility to a conunon head can 
 only be effectively obtained through the appointment of all such offi- 
 cials by the mayor of the city. This relation gives to a city govern- 
 ment precisely the element which is needed a responsibility to a com- 
 mon head Avho is himself iesponsil)le to the people of the city. A gov- 
 ernment so ordered, as compared with a government in which the heads 
 of departments feel each one independent of all the others, would pre- 
 sent precisely such a result as that which so fiequentl3' is seen upon the 
 football field, where a fifteen which is in the habit of playing together 
 ♦lefeats a fifteen made up of better individual players who liave not 
 been in the habit of playing together. 
 
 The same conditions which result in the higest degree of efficiency 
 happily result also in the gi-eatest measuie of popular control. It would 
 be impossible to get the judgemenf of the people at the same election 
 upon all laws of the legislature. In the same way, it is impossiblo for 
 the people of a eity to discriminate intelligently as to many officials at a 
 single election. To tell the people that they must elect one officer this 
 year and another officer next year, and still another officer a third 
 year before they can get control of even a single department of the city 
 government, is <"o enter upon at ask which is hopeless from the beginning. 
 To tell the peopl ; that they must choose a good mayor, because the 
 
 ± 
 
 ■M.^-'<.AAi. - —J- 
 
6 
 
 mayor will (U;lui'iiiine the (jhanuitef of the (;ity govei'iinicnt in all it^t 
 pai-ts, is to inaUc a j)ro|)OHitioii wliidi i« ua.sily uiidei'Htood and easily 
 a(;tc(l upon. Wlii-ii flio wliok' cliai'actoi' of llu' fity govt'i-umi-ut is at 
 issue, the newest eiti/en ean l)u inade to appi'eciate its importance ; ami 
 when the fluty devolving up<in him is simplj' to make choiee between 
 two names or thiec', he is entii'ely competent to disehai'ge that <luty 
 intelligently. As a eonse(|iienee, a eity government whieh is organized 
 u])on tile line of direct responsiKility of all its parts to the niayoi', and 
 through him to the ])eople, is precisely that torn) of government over 
 which the people of the city can exercise the most complete control. 
 The recpiisites for efficient administi-ation and j)o]»ular control, there, 
 foi'e, go hand in hand. 
 
 Honesty. 
 A system of city government, no matter how good, does not purify 
 human nature, and care must he taken to kee[) comparatively clear of 
 the "ward j)olitician,"" the "machine." Kternal vigilance i.s the ])rice 
 of good government in any city under any form of nmnicipal adminis' 
 tration. Halifax so far has been exceptionally fortunate in having 
 oiKcials of the sti'ictest ))robity. 
 
 T]\ti honesty of a city government de])en(ls u])on the character of the 
 men of which it is composed. These men must bo not simply hone.st in 
 the negative sense that they will not l)e dishonest, but they must be 
 aggressively honest in the sense that they will not wink at dishonesty 
 in others. They niU.st also be men of strong pails, ca])able of resisting 
 hnmense ]n'essui'e from outside. "Wheresoever the carcass is, thei'c the 
 eagles will be gathered together," and so long as oui' cities are making 
 large disbursements, not only for current work but for pennanent 
 improvements, it is certain the city officials will l»e suriounded 
 by men who seek to profit at the expense of the city. Experience 
 and common prudence demonstrate the importance of publicity 
 and clearly defined methods as to all official acts involving the use or 
 appropriation of m )ney, but back of all such safeguards must lie the 
 sense of personal responsibility on the part of tiie olKcial. Happily the 
 same system which leads to the greatest efliciency and the greatest 
 measure of popular control gives also the greatest security in the di- 
 rection of honesty. When responsibility is personal and cannot be 
 shared with or put off upon others, an official is compelled to watch his 
 steps with far more care than when all action depends upon the result 
 of so many officials that no single one is responsible. Again, when re- 
 sponsibility is personal, the praise for well-doing is persc-'nil, as well as 
 the fear of punishment. Sometimes it would seem as if too little ac- 
 count were made of the better side of human nature in our attitude to- 
 ward all public officials. The inspiration to the best work surely is found, 
 
 5U-' 
 
 ■ tjt'i 
 
mi the part of officials as woll ai on tlic piii-t of private citizens, in tlu; 
 recognition l>y others of work lliiit ilesi'ives reei>!.Miition. Sueli re'eog- 
 nition it is inii)ossil)le to expect wiien lesponsiliility and power are hotii 
 divided and sliared. 
 
 KcoNOMv wrriiotT I'ausimosy. 
 
 It is reasonable and a wise ])recantion tliat tiie power of purse should 
 not he given to the executive <le])artnient, whiiih, however, necessarily 
 must administer and largely (muiIioI expenditures.. Tlie approjjriations 
 for each department are [)laced upon the hoolvs of the pi'o))er oHici'i' 
 to the credit of tliat depariiruuit, and all nirreiif fix/x'iidi/itrex on ac- 
 count of salaries and the like are made without furthei' action hytheeoun- 
 eil. Special items, like an increase of the jjolice force, or tlu! construction 
 of a building, must he voted hv the council, even though the sum haslteen 
 placed in the estinuit(!s spe(Mtically foi' that purpose. In other words, 
 the niayoi', while he is armeil with comj)lete ])owers of administration, 
 does not control the purse strings, either as to deteiniining the amount 
 of money to be under his control, nor as to the use of the money, ex- 
 cept in current ways, after it has been appropiiated. Our juesent 
 <lependency on the legislature to boriow moncj' is a wise provision. 
 An appeal to the legislature for authority to l»oirow involves publicity. 
 It t.akes time to obtain it, and publicity and time are all that is needed 
 .^to prevent the passage of measures wliieh are generally felt to be 
 dangerims or ba<l. Publicity and time, on the other hand, tell in favor 
 of measures which carry their own argument with them, or which are 
 capable of l)eing sustained by argument, "^riie experience of cities in 
 dealing with legislatures has denuMistrated, however, the importance of 
 insisting up(m the following points : First, that the legislature shall 
 not pass maiulatory laws compelling a city tft spend money which it 
 may not wish to spend. All such laws should c(mvey simply the au- 
 thority to Itorrow or to spend, ami the responsibility of acting under 
 that authority should be lodged in the pi'o])er city authorities, 
 so that the people of the city may hold their own ofticers responsible 
 for action under the law. Experience has further taught the imjjort- 
 ance of this point, that when special work is to be undertaken by a 
 city, work for which its ordinar}' organization is nut well adapted, so 
 that it becomes necessary to create new agencies for the purpose, the 
 selection of the man or men to whom such special work is committed 
 should be lodged with the city authorities, •subject to the same con- 
 ditions of constant responsibility as are the usu'al administrative 
 <lepartments. A commission named by the legislature is a Provincial 
 body, ai.d is responsible to no one except the legislature of the province. 
 Not even the Governor-in-Council can call it to account. Commission- 
 ers named by the city, on the other hand, even though they be named 
 
s 
 
 lor a special purpose, may l)e made lesponHiltlo to tlie mayor, and 
 through liim to the cominunity wliose funds they are handling. In 
 general it may he said that the constitution of the conunon council of 
 a city is the great unsfdved problem of to-day. It seems clear tliat, 
 whatever else is done, the power of interference by the legislative l)udy 
 with the executive, in any wtiv, shoidd be reduced to a minimum. 
 
 FoKKsniiiT AND Civic Coura(ie. 
 
 It seems pi-obable that the form of organization which has been sug- 
 gested in this {)aper, that is, a city government in wiiich the uuiyor Ih 
 the real head ratiiei- than tlie nominal head oidy, will tend to sijcui'e 
 tiiese good (pialities more genei-ally tiian they have appeared in con- 
 nection with city governments in tiie pfist. Undei' such an organization 
 the mayor feels the ins])irati(m of the great city behind him. He occu- 
 pies a position where, for the moment, he embodies the aspirations and 
 hopes of the connnunity as such. It is natural for one so placed to 
 look forward, as well as to consider matters of current administrations. 
 The powers which are entrusted to the mayor in such a case invite the 
 service of the l)est men in tlie city. It is worth while for any citizen to 
 be mayor of a city, with such powers and opportunities, Tlie system, 
 therefore, tends in the right direction ; but aftei all, the main hope lies 
 in the public spirit of the people themselves. They must have an 
 intelligent pride and interest in the future of their city, so as to deiufiT)i} . 
 for it from their officials not only good current care, but also wise pro- 
 vision for the future. This is the foundation upon which all hope of 
 better city government must ultimately rest. The voters of a city 
 must be kept informed as to its needs — In this respect our newspapers 
 have been sadly wanting. It will be noticed with regret, by those able 
 to judge, how very few civic issues are state<l faithfully by our news- 
 papers, viz, where the truth the whole truth and nothing but the truth 
 is plainly told. — That a large public spirit may be encouraged three 
 things are essential. First, that citizens shall believe the city govern- 
 ment is easily within their control. Second, that the voice of the 
 rate payer shall ' be fully and intelligently declared at elections. 
 Third, that their natural pride in their city shall be fostered by every 
 means which can develope in a population civic courage and a high ideal 
 for their city. So long as the people feel that the officers whom they 
 elect have little power to do harm, even if they can accomplish little 
 good, elections necessarily tend to become purely and simply strifes iov 
 office. Let them feel that vital consequences to the city are at stake 
 in the issue, and the citizens will become influential in their demand 
 for the choice of good men, precisely in proportion to the seriousness 
 oi the results which they believe to be involved. 
 
 
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