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 A FEDERATED GOVERNMENT 
 
 FOR ALAMEDA COUNTY 
 
 AND ITS CITIES 
 
 INTRODUCTORY 
 STATEMENT 
 
 / OB THE 
 
 ![ um:ivers 
 
 \ • OS 
 
 Issued by 
 
 City and County Government Association 
 
 1206 Broadway, Oakland, Cal. 
 JUNE, 1916 
 
INTRODUCTORY STATEMENT RELATING TO THE PRO- 
 
 POSED CITY AND COUNTY ' CHARTER FOR 
 
 ALAMEDA COUNTY AND ITS CITIES 
 
 The city and county movement wihich has given rise to this charter has had 
 as its objective: — 
 
 ( 1 ) The federation of our city and county governments in such a way 
 as to avoid the dupHcation of offices and consequent waste imder the present 
 system. 
 
 (2) The preservation of the identity of the several municipalities within 
 the city and county together with reasonable powers of local self-government. 
 
 (3) The improvement of the machinery of administration by the intro- 
 duction of modern, non-political methods properly safeguarded against abuse. 
 
 Thi^ charter has been framed with each of these objects in mind and must 
 be read in the light of their varied and sometimes conflicting demands. 
 
 The plan which this charter proposes is that of federation rather than 
 consolidation. Each of the municipalities within the propose^ city and county, 
 in certain instances with the addition of certain territory at present unincorpor- 
 ated, will preserve its name and identity as a borough. For example, there will 
 be a Borough of Berkeley, a Borough of Oakland, a Borough of Alameda, etc. 
 Each of these boroughs will retain and will exercise through an elective ''Bor- 
 ough Board," extensive legislative powers, among the most important of which 
 are: 
 
 (i) Police ordinance power with regard to borough control over liquor 
 and other regulations. 
 
 (2) Exclusive power of appropriation for the following purposes : 
 
 (a) Paving, cleaning, watering, lighting' and repairing streets, 
 except main thoroughfares. 
 
 (b) Construction and maintenance of sewers, e:^cept main 
 sewers. 
 
 (c) Parks and playgr6unds (except parks subsequently acquired 
 by the city and county). 
 
 (d) Police and fire departments within the borough. 
 
 (e) Incidental expenses of the borough board, etc. 
 
 (Boroughs are also required to pay their proportionate share of the over- 
 head expenses of conducting the police, fire and public works departments). 
 
 All the powers not specifically conferred on the boroughs are reserved to 
 the city and county. The governing body of the city and county is a council 
 (board of supervisors) of twenty-one members nominated and elected by dis- 
 tricts. For this purpose the city and county is divided into twenty-one districts, 
 the lines of which have been established in such a way as to secure representa- 
 tion for each element of the population. The mentbers of the council will 
 receive ten dollars for each meeting attended, not exceeding five meetings in 
 any one month. 
 
 The federation is made to serve the interests of economy by centralizing 
 in the city and county government all administrative functions. There will be, 
 for example, but one police department, one fire department, one department of 
 publjc works, one assessor, one treasurer and tax collector, one auditor, one 
 health ofificer, etc. The borough boards will determine with regard to a large 
 number of matters how much shall be appropriated, but it will be expended by 
 the central government without unnecessary duplicating officers. 
 
 1 
 
At the head of the Centralized administrative organization of the city and 
 county is the manager. He is appointed and removed by the comicil, to whom 
 he is responsible in the same manner that the manager of a corporation is res- 
 ponsible to the board of directors. He appoints the heads of all the administra- 
 tive departments of the city and county and directs their activities. He prepares 
 the annual estimate of revenue and expenditures. He attends every meeting of 
 the council and of the borough boards. (In the latter case attendance may be 
 by deputy). He is the co-ordinating or connecting link between the council 
 and the borough boards. 
 
 rhe mayor will be elected by the people of the city and county. He will be 
 the ceremonial head of the city government and will appoint subject to con- 
 firmation by the council, certain officers and boards who naturally stand out 
 of the direct line of functions centralized in the manager— auditor, civil service 
 and efficiency commission, board of education, board of library trustees, and 
 judges of the municipal court, etc. He has a veto power over the measures 
 of the council, but the council has powder to overru'le such veto by a two-thirds 
 vote. 
 
 For the present cumbersome, inefficient and expensive system of justices 
 of the peace and police courts the charter substitutes a municipal court of five 
 well-paid judges, appointed for long terms. 
 
 The "welfare" functions of the city-^— parks, playgrounds, charities, health, 
 care of delinquent minors, etc., are put in charge of a director of public welfare. 
 Provision is made for a city planning commission with adequate powers to secure 
 the efficient and harmonious development of the city. 
 
 Educational administration is centralized in a single board of education, but 
 by dividing the city arid county into school districts (the existing 
 districts are preserved for the present), it is possible to avoid ov»erburdening 
 the smaller communities with the high school tax rate necessary to meet the 
 needs of Oakland or Berkeley. 
 
 Provision is made for a harbor district to include all tide, submerged and 
 filled lands and all waterfront property either publicly or privately owned. This 
 is to be under the jurisdiction of the Board of Harbor Commissioners, consist- 
 ing of the manager, director of public works and three others appointed by the 
 manager. The harbor commissioner is to appoint a superintendent and other 
 officers and employees. The harbor is designated to be a public utility and is 
 to be operated and financed as such. 
 
 All positions except boards and commissions, the manager and the em- 
 ployees in his immediate office, are included in the classified civil service, thus 
 eliminating the spoils system entirely from the city and county government. 
 
 The financial provisions of the charter are so arranged as to require the 
 installation of modern accounting and the introduction of every useful safeguard 
 m protecting the expenditure of public money. A purchasing department is 
 provided of the most efficient type. 
 
 Elections — The initiative, referendum and recall and other similar matters 
 are provided for in such manner as to correct the evils which have become 
 apparent in the workings of the corresponding provisions at present in some 
 of the city charters. 
 
 It is proposed also to submit to the voters an alternative provision provid- 
 ing for a system of preferential voting, which, if adopted, would obviate the 
 necessity of double municipal elections, thus saving one-half of our present elec^ 
 tion expenses. 
 
 The charter provides for indeterminate franchises reserving to the city and 
 county the right to acquire the franchise utility at any time at a valuation to 
 be determined by the Railroad Commission of the State of California. It fur- 
 
ther provides that any holder of franchises within the city and county at the 
 time the charter takes effect may by surrendering its franchises secure a new 
 consolidated franchise. This provision opens the way to public ownership and 
 at the same time puts the franchises of any public utility taking advantage of it 
 on a stable basis so that it can successfully finance its development. Ample 
 provision is made for the public ownership and operation of public utilities and 
 their management through the departure of public works. The control of the 
 Alameda electric light works is left in the hands of the existing board to operate 
 in the interest of the people of Alameda. 
 
 As a whole the proposed charter establishes for the administration of the 
 business of the cities and the county a fundamental frame-work, systematically 
 organized, under central control with fixed responsiblity — instead of the dis- 
 jointed and disorganized arrangement we are working under at present, with 
 its duplicating offiicials and attendant overhead costs. 
 
 We believe that the placing into operation of the plan which this charter 
 proposes will create a condition for which all the communities of this county 
 are striving in common — better government without interference with the 
 identity and the independence of the various communities and a greater effici- 
 ency in the expenditure of the tax dollar. 
 
 The charter answers in the affirmative the question : — 
 
 Can the cities and the county have a consolidated, unified government with- 
 out county division, thereby eliminating all unnecessary duplicating officers 
 and departments, and still allow communities to maintain their identity and 
 independence and enable them to say just what they want in the shape of local 
 improvements, reserving to them the fixing of the amount of their own tax rate 
 and the purposes for which the money shall be expended in their own com- 
 munities. 
 
 Oakland <>i^^^ Enquirer 
 
SUMMARY OF A SUGGESTED 
 
 CHARTER FOR A FEDERATED 
 
 CITY AND COUNTY 
 
 GOVERNMENT 
 
 FOR ALAMEDA COUNTY 
 
 AND ITS CITIES 
 
 THE PLAN PROPOSED 
 
 IS 
 
 A System of Boroughs Whereby Each of the Cities Retain 
 
 Their Present Identity and Independence — Fix Their 
 
 Own Tax Rate— and Determine the Purposes for 
 
 Which the Tax Money Shall Be Expended 
 
 — As Well As Retain All Powers of 
 
 Police and Health Regulations 
 
 Submitted by the Executive Committee 
 
 to the City and County Government Association 
 
 for discussion and consideration 
 
 JUNE. 1916 
 
A DIGEST OF THE PROVISIONS OF THE PROPOSED 
 CITY AND COUNTY CHARTER 
 
 I_BOUNDARIES AND POWERS OF CITY AND 
 
 COUNTY 
 
 BOUNDARIES AND NAME: 
 
 The proposed city and county retains the same name and territory as the 
 present County of Alameda. 
 
 POWERS OF THE CITY AND COUNTY: 
 
 rh^ city and county is given all powers conferred upon cities by the laws 
 of the State; also all powers conferred upon counties and cities and counties 
 and such other powers appropriate to a county, city, city and county as are 
 not specifically prohibited by the constitution of the State. 
 
 II— BOROUGHS 
 
 BOROUGHS AND BOUNDARIES: 
 
 There are eleven boroughs. The boroughs of Albany, Berkeley, EmerV", 
 vil'le, Oakland, Piedmont, and Alameda are composed of the cities bearing their 
 respective names. (In some instances unincorporated territory of small area 
 has been added to these cities). The boroughs of Hay ward, San Leandro, 
 Pleasanton and Livermore are also composed of the cities bearing their names, 
 but these boroughs include adjacent unincorporated territory. The borough 
 of Washington consists of Washington Township. 
 
 BOROUGH POWERS: 
 
 Boroughs have the powers specifically conferred upon them by the charter. 
 
 LEGISLATION: 
 
 The borough has legislative power, in the absence of legislation on the 
 subject matter by the city and county, to enact ordinances and laws in the 
 exercise of its 'Tolice Power" — that is to say, to pass rules and regulations 
 for the protection of the lives, health and comfort of persons within 
 the borough — except, however, that the borough cannot legislate with regard 
 to certain matters requiring uniform county legislation, such as regulations as 
 to traffic, buildings, city planning, the harbor district, licenses, except liquor 
 licenses. (As to the borough's power with reference to liquor licenses, see 
 topic ''Liquor Licenses," page 12). 
 
 TAXES AND APPROPRIATIONS: 
 
 The borough fixes its own borough tax rate in that it has the exclusive 
 power of appropriation for the purposes of the paving, cleaning, watering, light- 
 ing and repairing of streets and roads, except main thoroughfares ; the construc- 
 tion ind maintenance of sewers, except main sewers ; police and fire departments 
 within the borough, incidental expenses of the Borough Board and officers, 
 
proportionate share for the borough of expenditures for garbage disposal and 
 the Dublic pound and of the "overhead'' expenses of conducting the police, 
 fire and public works departments. 
 
 BONDED INDEBTEDNESS: 
 
 Borough bonded indebtedness can be incurred only by a two-thirds ma- 
 jority vote of the electors voting thereon. 
 
 Each city and otlter political subdivision within the city and county shall 
 continue to stand all of its present indebtedness and outstanding bond issues, 
 whether incurred for the harbor, public buildings or otherwise. 
 
 PUBLIC WORK: 
 
 The Borough Boards also have power, which they shall exercis^e until a 
 change in the procedure with regard to public improvements to be paid for by 
 assessments on private property, to hear and decide the objections to the 
 proposed work. 
 
 INVESTIGATIONS: 
 
 The Borough Boards have extensive powers for investigation with refer- 
 ence to the conduct of officials and departments in the expenditure of the 
 borough funds. 
 
 BOROUGH OFFICERS: 
 
 To avoid unnecesary duplication in officials all administrative functions 
 are centralized in one set of city and county officers ; these officers to be deemed 
 borough officers when performing borough functions. 
 
 BOROUGH BOARD AND SALARIES: 
 
 Each borough elects for a term of four years a Borough Board composed 
 of five members, who must be residents of the borough. Each member re- 
 ceivles as compensation $5.00 per meeting attended, provided that no more than 
 $10.00 per month can be paid any member in boroughs under 30,000 in popula- 
 tion and $25.00 per month in larger boroughs. 
 
 BOROUGH CLERK: 
 
 The manager appoints a clerk for each Borough Board. The clerk shall 
 also be a deputy tax collector in the borough and perform such other functions 
 in the borough as are assigned him. 
 
 Ill— THE CITY AND* COUNTY: 
 
 POWERS: 
 
 All powers not specifically conferred on the boroughs are reserved by 
 the city and county, which has all other powers and functions permitted by the 
 general laws! and not specifically prohibited bv the constitution. 
 
THE COUNCIL OR BOARD OF SUPERVISORS: 
 
 COUNCIL: 
 
 The Board of Supervisors shall be known as the Council It consists of 
 21 members nominated and elected by districts. Each member must be a 
 qualified elector of the district from' which he is nominated. 
 
 "The county is divided into 21 districts of approximately equal popula- 
 tion, the lines being drawn so as to secure compact districts representing each 
 element in the population of the city and county. 
 
 COMPENSATION: 
 
 The members of the council receive $10.00 for each meeting attended, 
 provided that no councilman shall receive as compensation more than $50.00 
 per month. 
 
 POWERS OF THE COUNCIL: 
 
 The Council has the legislative powers now exercised by the Board of 
 Supervisors and by a council of a city. It is the policy-making body and, on 
 certain subjects, such as traffic, buildings, etc., has the exdusive powers of 
 legislation. It has extensive powers with relation to the organization of the 
 city and county government, including the power to create, discontinue and 
 combine departments, offices and employments. 
 
 MAYOR: 
 
 The Mayor is elected at large for the term of four years, receiving a 
 salary of $5000 per annum. He presides over the Council and can vote 
 in case of a tie. He has the power to veto any measu're of the Council, 
 which veto can only be overruled by a two-thirds vote. He appoints the five 
 Municipal Court Judges, the Auditor, the members of the Civil Service and 
 Efficiency Commission, the Board of Library Trustees, the Board of Educa- 
 tion (subject, however, to approval by the Council). The Mayor is the official 
 head of the city for all ceremonial purposes, 
 
 IV— THE ADMINISTRATIVE DIVISION 
 
 MANAGER: 
 
 The Manager is appointed by the Council. If the Council cannot within 
 sixty days agree, upon a manager, he is appointed by a majority vote of the 
 chairmen of all the Borough Boards. He is the administrative head of the 
 city and county government and is responsible for the conduct of all the 
 departments. 
 
 He appoints, subject to the civil service provisions of the charter, practi- 
 cally aill the heads of the departments, and directs their activity, and has exten- 
 sive powers of investigation. He is under duty to attend the meetings of the 
 Council and must also attend, either personally or by deputy, the meetings of 
 the Borough Boards, recommending to these bodies measures for their adop- 
 tion. At these meetings he is entitled to take part in the discussion but not to 
 vote. The Manager must also prepare the annual budget for the Council and 
 Borough Boards. 
 
DEPARTIVIENTS : 
 
 The officers under the direct administrative supervision of the Manager 
 are the following: 
 
 ( 1 ) Direcor of Public Works. 
 
 (2) Director of Public Welfare (who are to be the chief assistants of 
 the Manager and be responsible for many important chief offices and com- 
 missions). 
 
 (3) City Clerk. 
 
 (4) County Clerk and Recorder. . 
 
 (5) Assessor. 
 
 (6) Treasurer and Tax Collector. 
 
 (7) Purchasmg Agent. 
 
 (8) Chief of Police and Sheriff. 
 
 (9) Fire Chief. 
 
 (10) City Attorney. 
 
 (11) Public Administrator. 
 
 The divisions under the administrative supervision of the Manager, but 
 foi', which the Director of Public Works is responsible are : 
 
 (i) Street. and Sewer (City Engineer and County Surveyor). ^ 
 
 (2) Street Cleaning and Garbage. 
 
 (3) Harbor. 
 
 (4) Electricity. 
 
 (5) Building Inspection. 
 
 (6) Auditorium and Public Buildings. 
 
 (7) City Yard and the Board of Public Works, which has charge of 
 public improvements by special assessments. 
 
 The divisions under the administrative supervision of the Manager, but 
 for which the Director of Public Welfare is responsible are : 
 
 (i) Playgrounds and Recreation. 
 
 (2) Parks. 
 
 (3) Health. 
 
 (4) Public Charity. 
 
 (5) Sealing of Weights and Measures. 
 
 CITY CLERK: 
 
 The City Clerk is Clerk of the Council and is also ex-officio Registrar 
 of Voters. He performs all the duties in regard to the elections which now 
 or may hereafter devolve upon the county clerks or registrars with reference 
 to .such elections. 
 
 COUNTY CLERK AND RECORDER: 
 
 The duties of the two offices are sonsolidated into one office. The County 
 (Jlerk and Recorder shall perform all the duties performed by the county clerk 
 (except as clerk of the Board of Supervisors) and also all the duties that are 
 performed by the county recorder. 
 
 CITY ATTORNEY: 
 
 There is one City Attorney who attends to all litigation, drafts all contracts 
 and other instruments and prepares all legal proceedings for public work. He 
 must give his entire time to the work of the city and county. 
 
ASSESSOR: 
 
 There shall be one Assessor who shall make one assessment valuation both 
 for the boroughs and for the city and county, instead of two separate assess- 
 ments as at present. 
 
 TREASURER AND TAX COLLECTOR: 
 
 These two offices are consoHdated mto one office. There is only one 
 Treasurer who will be ex-officio Tax Collector, collecting- the taxes both for 
 the boroughs and the city and county in all the cities and throughout the) entire 
 county. 
 
 DEPARTMENT OF PUBLIC WORKS: 
 
 This department has several divisions, streets, street cleaning, electricity, 
 building inspection, public buildings, the harbor (See topic "The Harbor," 
 page 13), and other divisions. There shall be a Director of Public Works 
 who shall be the head of the department. Under the Director of Public Works 
 there shall be a City Engineer who shall do all the engineering work for the 
 entire city and county and also perform all the duties now devolving upon the 
 County vSurveyor and Superintendent of Streets ; all three of these offices 
 being consolidated in the office of City Engineer. The City Engineer shall be 
 chief of the division of streets and sewers. 
 
 The Board of Public W^orks is created without any additional officers or 
 expense to the city, as the Board consists of the Manager, City Engineer and 
 Director of Public Works, who serve without extra compensation, this Board 
 having) charge of carrying out of public improvements to be paid for by special 
 assessments on private property (See topic "Public Work to be Paid for by 
 Special Assessments, page 11). 
 
 POLICE DEPARTMENT: 
 
 There shall be one Chief of Police who shall be not only Chief of 
 Police for the entire city and county, but also shall act as Sheriff of the city 
 and county. Each Borough Board determines the number, grades and salaries 
 of the police officers within the boroughs, but the jurisdiction of the police 
 officers shall extend throughout the entire city and county and shall be under 
 the direction of the Chief of Police. All members of the police force in the 
 several cities within the county shall be employed by the city and county in their 
 present and like grades and at their present salaries until they are promoted or 
 removed, under the civil service provisions of the charter. 
 
 FIRE DEPARTMENT: 
 
 There shall be a Chief of the Fire Departmient who shall have charge of 
 the Fire Department throughout the city and county. Each Borough Board 
 shall determine the number, grades and compensation of the members of the 
 department within the borough, and there shall be in each borough such appara- 
 tus and equipment as the Borough Board determines. As in the case of the 
 police department the present salaried members in the various cities shall re- 
 main in employment, subject only to the limitation specified in the case of 
 police officers. 
 
DEPARTMENT OF PUBLIC WELFARE: 
 
 This department has several divisions, to-vvit, playgrounds, recreation, 
 parks, health, public charities, sealing of weights and measures. 
 
 PARKS, PLAYGROUNDS AND RECREATION: 
 
 The divisions of parks and playgrounds and recreation are taken care of by 
 commissions, members of wihich are appointed by the Director of Public Wel- 
 fare, and serve without compensation. 
 
 PUBLIC CHARITIES: 
 
 The division of public charity shall be in charge of a Superintendent of 
 Charities, who shall be responsible for the conduct of the County Infimiary. 
 
 HEALTH: 
 
 The division of health has extensive powers of investigation and may 
 order the removal or destruction of all matters dangerous to health, or pro- 
 ductive of nuisance. 
 
 There is an advisory Board of Health to serve without compensation, 
 which shaill meet at the call of the Health Officer to advise with him on any 
 matter which he may refer to it. 
 
 PUBLIC DEFENDER: 
 
 The Council may create the office of Public Defender and define his 
 duties. This provision is permissive and not mandatory. 
 
 PROBATION OFFICER: 
 
 The Probation Officer and his assistants shall be appointed as provided 
 for by the present law, except that the compensation may be determined by the 
 Council. 
 
 SEALER OF V7EIGHTS AND MEASURES: 
 
 The Sealer of Weights and Measures is appointed by the Director of 
 Public Welfare. 
 
 PURCHASING DEPARTMENT: 
 
 There is one purchasing department for the entire city and county. The 
 Purchasing Agent is directed to take advantage of quantity purchasing at the 
 best wholesale prices wherever adi^antageous. The Purchasing Agent may in 
 his discretion advertise for sealed proposals for purchase of supplies and ma- 
 terials less than $1000, but it is mandatory for him to do so for purchases ex- 
 ceeding $1000. 
 
 V— JUDICIAL OFFICES 
 
 DISTRICT ATTORNEY: 
 
 The District Attorney is elected as at present and must attend to and con- 
 
 6 
 
duct all criminal prosecutions in any courts of the city and county, including 
 the Municipal Court. 
 
 CORONER: 
 
 The Coroner is appointed by the District Attorney and must be a person 
 licensed to practice medicine and competent to conduct autopsies. 
 
 PUBLIC ADMINISTRATOR: 
 
 The Public Administrator is appointed under civil service and all fees of 
 the Administrator and of the Attorney of the Administrator are turned in to 
 the county, these officers being paid a salary in lieu thereof. The! Attorney for 
 the Administrator shall be a deputy in the office of the City Attorney. 
 
 MUNICIPAL COURT: 
 
 There shall be one Municipal Court which shall take the place of all the 
 Police and Justices' Courts now existing in the cities throughout the county. 
 The functions of Police Judges and Justices of the Peace are consolidated 
 in the Municipal Court. The number of judges is five, who shall elect a 
 presiding judge who will distribute the work. Cases originating in a district 
 shall be tried by the judge assigned to that district, provided, however, that the 
 presiding judge may assign cases to other judges if the calendar thereof is 
 overcrowded. 
 
 These five judges are appointed by the Mayor for a term of eight years ; 
 they must be attorneys admitted to practice in the courts of this State. The 
 salary is fixed at $3000 per annum and they must devote all their time to 
 the duties of their ol^ce. 
 
 VI— PUBLIC LIBRARIES 
 
 LIBRARY BOARD: 
 
 The Board of Library Trustees, composed of five members, appointed by. 
 the Mayor, shall have control of all public libraries within the city and county. 
 
 MAINTENANCE OF LIBRARIES: 
 
 There shall be a central city and county library or branch libraries main- 
 tained in each borough, which shall be supported in part by the appropriations 
 by the Borough Board thereof. 
 
 The present employees of libraries shall be retained in their present or 
 like grades and at their present salaries until promoted, demoted or removed 
 under the civil service provisions of the charter. 
 
 Vli— CITY AND COUNTY PLANNING 
 
 PLANNING COMMISSION: 
 
 There shall be a City and County Planning Commission consisting of the 
 Manager, Cit'y Attorney, City Engineer and seven members to be appointed, 
 all of whom serve without compensation. The Commission shall treat all city 
 
 7 
 
and county planning as a unit, under a definite program laid out for the future 
 development of the city and county. Ordinances which particularly affect the 
 city plan shall be submitted to the Commission for report and recommenda- 
 tion. The securing of its approval is necessary for the acceptance of any plan 
 or plot or any new subdivision within the city and county, the location of any 
 public building therein or the creation of building zones therein. This Commis- 
 sion shall create an Art Jury to serve without compensation and to have juris- 
 diction with reference to the placing of statues and similar objects in the streets, 
 parks and other public grounds. 
 
 VIII— CIVIL SERVICE^ AND EFFICIENCY 
 
 CIVIL SERVICE AND EFFICIENCY COIVIMISSION : 
 
 The Commission is composed of three members appointed by the Mayor 
 for a term of six years, who serve without compensation, and are removable 
 only for misconduct and after a public hearing. 
 
 OFFICERS AND EMPLOYEES UNDER CIVIL SERVICE AND THE 
 PRE-REQUISITES TO THEIR APPOINTMENT: 
 
 Every head of a department and every chief of a division and all other ap- 
 pointive officers and employees of the city and county are under civil service, 
 except the following: (i) the officers elected by the people (the Mayor, coun- 
 cilmen and members of the Borough Board, the Superior Judges and District 
 Attorney) ; (2) the Manager, and employees in his own office; (3) the mem- 
 bers of Boards; (4) employees appointed by the Superior Courts (such as Pro- 
 bation Officer). 
 
 In the case of heads of departments, chiefs of divisions and positions which 
 call for professional training, the Commission certifies to the appointing author- 
 ity, all the persons who on the basis of the examinations and records of the 
 Commission are qualified for the position and the appointing authority must 
 appoint one of the persons of such certified civil service list. 
 
 In the case of all other positions under civil service, the Commission certifies 
 to the appointing power- the person who stands highest on its lists (based on 
 competitive examinations and records) and the appointing authority must ap- 
 point such person. 
 
 An adequate system for promotion for merit is provided. Moreover, each 
 employee or officer appointed or promoted is on probation for one year during 
 which time he may be discharged upon the appointing authority's assigning 
 reasons therefor. 
 
 There is provided a complete method for removal, demoting and disciplining 
 of off icers and employees upon filed charges, giving such officers and employees 
 the right to a public hearing upon such charges. 
 
 PREFERENCE GIVEN TO PRESENT PUBLIC EMPLOYEES: 
 
 All present employees of the County and of the various cities are given 
 the right to take an examination for positions under the City and County 
 Goviernment and shall be given a preference in making appointments to such 
 positions during the first nine months after the first meeting in July, 1917. 
 
 8 
 
DUTIES OP THE BOARD: 
 
 The Commission is given not only the duty of fixing the qualifications for 
 office and employments and the holding of public competitive examinations 
 therefor, but also to secure continued efficiency in the service to the city and 
 county and to provide and preserve records therein. The Board is required 
 to properly classify all positions according to duties and responsibilities, with 
 fair and uniform salaries for the work performed, to assist in the proper 
 organization of departments and systemization of work, to secure economical 
 operation in the service, and efficiency on the part of those engaged therein. 
 
 IX— OTHER PROVISIONS RELATIVE TO 
 OFFICERS AND EMPLOYEES 
 
 EMPLOYEES PENSION AND INSURANCE FUND: 
 
 The Council may provide a pension and insurance system creating a fund 
 to be used for the payment of superannuation pensions, of death, disability and 
 sick benefits and for medical and hospital attention, wihen death, disability or 
 sickness is not caused in such manner as to give rise to liability under the 
 Workmen's Compensation Act. 
 
 PROHIBITIONS APPLICABLE TO OFFICERS AND EMPLOYEES: 
 
 CANNOT ENTER POLITICS: 
 
 No officer or employee can take any part whatsoever in political affairs, 
 except to cast his vote and privately express his opinions. Violation will be 
 grounds for dismissal. 
 
 CANNOT BECOME INTERESTED IN PUBLIC CONTRACTS: 
 
 No officer or employee can be interested in any city and county or borough 
 contract or franchise, purchase, lease on transaction, on penalty of losing office 
 —and the transaction becomes voidable at the option of the Council. 
 
 INELIGIBLE TO CERTAIN OFFICES: 
 
 No officer or employee can hold any other public office except that of notary 
 public or in the National Guard, and no member of the Council or Borough 
 Board is eligible to appointive offices. 
 
 X— FINANCES 
 
 FISCAL YEAR: 
 
 The fiscal year continues to commence on the first day of July, provided, 
 however, that whenever the city and county has accumulated a cash basis fund 
 sufficient to cover the demands of the treasury from the first day of July to the 
 first day of November iri any year, the fiscal year shall thereafter commence on 
 the first day of November. 
 
 9 
 
AljrNUAL PUBLIC BUDGET: 
 
 The annual budget shall be printed in pamphlet form for distribution t< 
 any tax payer who may desire a copy ; such distribution to occur before the dis 
 cussion of the budget, so that the tax payer may compare the estimate for the 
 current year with that of the previous years. Total and unit costs of the ex- 
 pense of conducting each department shall be submitted in detail form, to- 
 gether with total and unit costs for previous years arranged in parallel columns. 
 The budget shall also contain the recommendations of the Manager. There are 
 specific provisions 'requiring estimates to be in accordance with standard forms 
 and classifications; prepared to show the estimated cost of each department, in- 
 cluding the public utilities owned or operated. ^ 
 
 Council and Borough Boards must fix tim,es and places for public hearings 
 on the budget in such manner as to afford ample opportunity for tax payers to 
 be heard in regard to proposed appropriations. The budget is prepared by the 
 Manager and must be adopted by the Borough Boards and Council before be- 
 coming effective. 
 
 AUDITOR: 
 
 The Auditor shall have chargq of the department of accounting for all the 
 boroughs and for the city and county. He is appointed from the Civil Service 
 list by the Mayor, subject to confirmation by the Council, and receives a salary 
 of $5000 per year. 
 
 MODERN SYSTEM OF UNIFORM ACCOUNTS: 
 
 The Auditor must install and maintain a modern accounting system, pro- 
 vide uniform forms Df account for all officers and departm,ents. The require- 
 ments of such accounting system are specified in detail in the charter, as are 
 also useful safeguards to prevent wrongful expenditures of public money. 
 
 ANNUAL AUDIT OF ACCOUNTS: 
 
 All accounts shall be audited every year by certified public accountants who 
 are given unlimited priv-^ileges of investigation. 
 
 XI— SCHOOLS 
 
 ADMINISTRATION: 
 
 Administration is centralized in a single Board of Education. The city 
 and county is divided into school districts (the existing districts are pre- 
 served for the present) and each district need meet only the expenses arising 
 within its own territory. 
 
 The members of the Board' of Education are appointed for six years by 
 the Mayor and receive only $5 for each meeting of the Board attended, pro- 
 vided that the total compensation of any one member shall not exceed $20 per 
 month. 
 
 There is only one Superintendent of Schools for the entire city and county 
 and all its boroughs. 
 
 There are provisions for scientific estimates for the school budget, and 
 Borough Boards are given the powier to make appropriations in addition to 
 
 10 
 
the moneys derived from state and county funds and appropriations, such 
 borough appropriations to be expended according to the terms of appropriation. 
 The construction of school buildings is placed in the hands of the Board of 
 Public Works. 
 
 XII— CONTRACTS FOR PUBLIC WORK 
 
 COMPETITIVE BIDDING: 
 
 There must be competitive bidding for public work. An adequate system 
 is provided to secure work at the lowest price through advertising for sealed 
 proposals requiring proper bonds, etc. The city and county is protected with 
 reference to time hmits on contracts, the payments to be made thereunder and 
 the provisions of the contracts. There is an adequate system provided whereby 
 the city and county and the boroughs are assured low rates for public adver- 
 tising. 
 
 PUBLIC WORK TO BE PAID FOR BY SPECIAL ASSESSMENTS: 
 
 The Counci'l is given the power to frame a new procedure to be followed 
 with regard to all public work to be paid for by special assessment on private 
 property and may provide therein that this work be done by contracts let out 
 to public bidding or by the city and county doing the work itself. Until the 
 Council thus provides a new system the present system, is continued in force, 
 except that the Borough Board, in case of borough improvements, and the 
 Council in case of city and county improvements, are the respective bodies be- 
 fore wjiom objections to the work are to be urged and who decide the effect 
 to be given to such 'objections. 
 
 XIII— LICENSES AND FEES 
 
 REVENUE: 
 
 The revenue from all licenses, including the liquor licenses, and from fees 
 paid to officers, such asi fees paid to the Tax Collector, Sheriff, Public Admin- 
 istrator, etc., are all paid into the city and county treasury. 
 
 LIQUOR LICENSES: 
 
 Existing liquor restrictions are in no wise changed. In boroughs wh^re 
 the sale of liquor is prohibited at present, no change can be made except by 
 vote of the people within the borough. New licenses, in territory where 
 the sale of liquor is allowed, shal'l be issued only on the approval by not 
 less than three affirmative votes of a Board of Excise, consisting of the 
 Chief of Police, the Director of Public Welfare and three othei^ members, all of 
 whom shall serve without compensation and be appointed by the Borough Board 
 of the borough in which the license is to be issued. Thej amount of said liquor 
 license shall be fixed by the Council, but may be increased by such Borough 
 Board. 
 
 XIV— PUBLIC PROPERTY: PROPERTY OF 
 THE CITY AND COUNTY 
 
 CITIES DONATE PROPERTY: 
 
 All cities and other political subdivisions donate their real property to 
 
 11 
 
the city and county. The Oakland City Hall shalll become the City Hall for 
 the entire city and county. The Oakland Auditorium becomes the Auditorium 
 for the city and county. The City of Alameda, however, retains its electric 
 light plant for its own use and benefit. 
 
 CITY AND COUNTY PROVIDES CERTAIN ACCOMMODATIONS: 
 
 Council provides accommodations for, the Borough Boards and borough 
 officers in buildings suitable for the purposes. 
 
 NO SHIFTING OF INDEBTEDNESS TO CITY AND COUNTY: 
 
 Each city and other political subdivision within the city and county shall 
 continue to stand all of its present indebtedness. 
 
 XV— FRANCHISES 
 
 WHEN REQUIRED: 
 
 Franchises are required whenever any public utility concern uses the streets 
 or other public places within the city and county. 
 
 FRANCHISE ORDINANCE A CONTRACT AND SHALL CONTAIN 
 CERTAIN STIPULATIONS: 
 
 Franchises can only be granted by ordinance which must set forth in plain 
 terms every right conferred and every condition. Every franchise ordinance 
 shall be deemed to constitute a contract between the city and county and the 
 grantee thereof and a breach of such contract gives the city and county the 
 right of forfeiture as against the grantee of 'its franchise and of its property 
 situated in, on, under or abov'e any street or public place. 
 
 Each franchise shall be granted subject to privilege of purchase at any time 
 by the city and county and each franchise must contain stipulations which allow 
 such purchase, provided that the value of the property be determined by the 
 Railroad Commission of the State of California, or failing such Railroad Com- 
 mision, by three arbiters, one to be appointed by the grantee, one by the Coun- 
 cil on the nomination of the Mayor, and the third by the two so appointed. 
 The franchise must provide that the grantee must grade and repave streets, 
 also repair, clean and water the portion of the street used by it; must main- 
 tain its proportion of the cost of erecting or repairing any grade which 
 it uses ; must allow the city and county to use without charge its poles 
 and conduits for the purposes of police, fire alarm and telegraph systems; 
 must complete construction within a certain time and continue operation at the 
 times and in the manner prescribed in the ordinance ; must employ a certain type 
 of car ; must allow the examination and audit of its books by the Council ; said 
 franchise being subject to the right of the boroughs and the city and county 
 to adopt regulations relating to the operation of the utility for the protection 
 of the health, safety and comfort of the people. 
 
 Every franchise shall contain all the above stipulations and any others that 
 the Council may provide. PuMic service concerns now having franchises may 
 surrender their various franchises and receive one consolidated franchise to 
 cover all their operations within the city and county. This provides a remedy 
 whereby the people, as wxll as the traction companies, are fully protected in 
 all their rights, yet it makes it possible for the companies to surrender all their 
 
 12 
 
existing franchises and in return receive a blanket or single indeterminate 
 franchise covering all their lines and future extensions and improvements. > 
 
 This will greatfy facilitate financing. 
 
 At the same time, it clears the way and provides a method whereby the 
 people, at any time, may take over the whole system under public ownership 
 at a price that will be fair to both the people and the traction com^panies. The 
 purchase price will be fixed by the Railroad Commission on the basis of the 
 actual investment wisely and honestly made by the traction companies less 
 depreciation. 
 
 XVI— PUBLIC UTILITIES 
 
 OWNERSHIP: * 
 
 Provision is made for public ownership and operation of utilities and their 
 management through the Department of Public Works. 
 
 The control of the Alameda Electric Light Works is left in the hands of 
 the existing P)0ard to operate it in the interest of' the people of Alameda. 
 
 XVII— THE HARBOR 
 
 There is a harbor district created to includ^all tide, submerged and fiMea 
 lands and all water front property\ either publicly or priv'ately owned. Property 
 of the city and county within the harbor district is deemed to constitute and is 
 to be employed as a public utility and is to be^ financed as such. The harbor 
 district is to be under the jurisdiction of a Board of Harbor Commissioners 
 consisting of the Manager, Director of Public Works and three others appointed 
 by the Manager. The Harbor Commissioner is to appoint a Superintendent 
 and other officers and employees. The Board of Harbor Commissioners are 
 given broad powers. Revenue from the harbor or from the city and county 
 property therein is to be paid into the Harbor Fund and is to be expended on 
 the development of the harbor and any surplus above that needed for harbor 
 development is to go into the general fund for general city and county purposes. 
 
 XVIII— ELECTIONS 
 
 INITIATIVE, REFERENDUM AND RECALL: 
 
 Initiative, referendum, recall and other similar matters are adequately pro- 
 vided for. Election officials are to be chosen l^y the Civil Service Board for 
 their fitness. To initiate an initiative, referendum or recall election there must 
 be a petition signed by qualified electors equal to at least 25 per cent of the total 
 'number of persons voting at the preceding general election. 
 
 Verification deputies are not permitted to receive pay for obtaining signa- 
 tures. When an official is up for recall there shall be no candidate put up 
 against him, but, only the question of his recall is submitted, and if recalled, the 
 vacancy is filled as other vacancies, by appointment by council until the next 
 election. 
 
 EXPIRATION OF TERMS OF OFFICE: 
 
 Provision is made that where a Board or Commission or the Municipal 
 Court Judges are appointed, or where members of the Counci'I or Borough 
 Boards are to be elected, a portion of those first elected or appointed retire in 
 two years, a portion in four years, a portion in six years, etc. There are there- 
 
 13 
 
fore as candidates at each general election only one councilman, two or three 
 members of the Borough Board and, at certain elections, the Mayor, District 
 Attorney and a portion of the Judges of the Superior Court. 
 
 SYSTrMS OF VOTING: 
 
 T ^ people when they consider the adoption of the proposed charter also 
 havei,;t aecide as to which of two distinct and separate methods of voting shall 
 be incorporated in the charter. 
 
 The first method, which resembles the system, now in effect, provides that 
 where two or more persons are to be elected to an office (as that of member of 
 a Borough Board), then the successful candidate must receive a vote greater 
 than one half the number of ballots cast for such office at such election ; other- 
 wise a second election must be held between the candidates receiving the high- 
 est number of votes in the first electioft. 
 
 The second method of voting (the preferential system) allows the elector 
 to designate his first, second and third choices for each office. Because the voter 
 at one election has designated his second and third choices, there is no possi- 
 bility (as under the first method), for a second election, 
 
 XIX— TAKING EFFECT OF THE CHARTER 
 
 Certain of the officers shall be elected or appointed so as to take office on 
 the first day of July, 191 7. These are officers, whose presence is needed before 
 the new system goes into full effect, either to provide machinery for the installa- 
 tion of the new system or to decide preliminary questions of policy. The officers 
 who thus take office in July are : The Manager, Auditor, Mayor, Councilmen 
 and Members of the Borough Board. After these officers have accomplished 
 their preliminary work the charter will go into full effect on the first Monday 
 in October, 1917. 
 
 Oakland i cj^i^ Enquirer 
 
CENTRALIZED GOVERNMENT 
 
 FOR ALAMEDA COUNTY 
 
 AND ITS CITIES 
 
 ^ 
 
 Under a System of Buroughs, Each City Retaining Its Present 
 Identity and Independence, Fixing Its Own Tax Rate, also Con- 
 trolling Expenditure of Same 
 
 A Comparison of Present Conditions With Advantages Shown 
 
 Under Proper Federation of the East Bay Cities Centralizing 
 
 Control Under Business Management 
 
 Issued by 
 
 City and County Government Association 
 
 1 206 Broadway, Oakland, Cal. 
 JUNE, 1916 
 
A COMPARISON 
 
 Showing Why the East Bay Cities and the County Should Unite 
 
 Under a Federated Cities and County System With 
 
 a City and County Charter 
 
 CONDITIONS UNDER THE PRES- 
 ENT SYSTEM OF DUAL GOV- 
 ERNMENT. 
 
 There are TEN separate municipal 
 governments in Alameda County. 
 Some.times they work in harmony 
 and sometimes not, but always with- 
 out proper co-ordination. The 
 county is superimposed on the 
 municipalities, with a duplicating 
 set of officials and officers. 
 
 The valuation of property for as- 
 sessment purposes for the citiei? and 
 county is not the same. This re- 
 sults in confusion and inconvenience 
 to the public, and requires the pre- 
 paration of two delinquent tax 
 rolls. 
 
 Co-operation as to matters of com- 
 mon interest is lacking and well 
 nifjh impos,sible. 
 
 At present there are in the cities 
 and the county: 
 
 9 Assessors. 
 11 Tax Collectors. 
 11 Treasurers. 
 10 Chief Clerks. 
 
 4 School Superintendents. 
 
 5 Auditors. 
 
 5 Purchasing Agents. 
 59 Districts and departments pur- 
 chasing supplies. 
 (These are in addition to the 
 5 regular purchasing agents.) 
 3 Chiefs of Police. 
 
 WHAT FEDERATION WILL DO 
 UNDER THE PROPOSED CITY 
 AND COUNTY CHARTER. 
 
 One set of administrative officials 
 under central control. 
 
 Each city maintains its present in- 
 dependence and identity; fixes its 
 tax rate and the purposes for which 
 tax money shall be expended; con- 
 trols the liquor question and police 
 and health regulations. 
 
 There will be one valuation of 
 property for all tax assessment pur- 
 poses and only one delinquent 
 tax roll will be necessary. 
 
 Borough boards or councils adopt 
 all policies, but the details thereof 
 are" carried out by experts appointed, 
 under civil service, solely for their 
 fitness. 
 
 Under the proposed plan there will 
 be: 
 
 1 Assessor. 
 
 1 Treasurer and Tax Collector.^ 
 
 (These offices are combined and 
 one office takes the place of 20 un- 
 der the present system.) 
 1 Chief Clerk. 
 1 School Superintendent. 
 1 Auditor. 
 1 Purchasing Agent. 
 
 (Will do the work now done by 
 64 different bodies.) 
 1 Chief of Police. 
 
 (AVill perform the duties of the 
 
CONDITIONS UNDER THE PRES- 
 ENT SYSTEM OF DUAL GOV- 
 ERNMENT. 
 
 1 Sheriff. 
 10 City Attorneys and one District 
 
 Attorney. 
 7 Constables. 
 
 Also other duplicating ofticials. 
 
 WHAT FEDERATION WILL DO 
 UNDER THE PROPOSED CITY 
 AND COUNTY CHARTER. 
 
 Sheriff, as well as that of all Chiefs 
 of Police and Constables.) 
 
 iMany other officials and boards, 
 Avho are now duplicating work, 
 will be eliminated. 
 
 Number of Employees at present Under the proposed plan all offi- 
 in the county and the cities are ap- cials performing duplicating func- 
 
 proximately 4000. 
 
 This number and the amount paid 
 annually for salaries are steadily 
 increasing. 
 
 tions would be eliminated and 
 many other offices; would, be con- 
 solidated, thereby saving hundreds 
 of thousands of dollars annually. 
 
 There is no single head on whom 
 to fix responsibility. The law in- 
 genit)usly divider responsibility 
 among all of the elective officers. 
 This results in shifting of blame and 
 iuefficiencv. 
 
 The Proposed City and County 
 cliarter provides for a city manager, 
 who shall be the responsible head 
 of all departments. All adminis- 
 trative officers will be app(ointed, 
 after qualifying by an examination, 
 instead of being elected'. 
 
 At present there is no "Home 
 Rule-', in county affairs. The leg- 
 islature, almost every session, 
 adds more officers and employees, 
 Avhether needed or not. The tax- 
 payers must provide funds to pay 
 the salaries. 
 
 At the last session the Legisla- 
 ture increased the salary roll of 
 Alameda County approximately 
 $32.0€0. This added to the tax rate 
 nearly l^/^ cents. 
 
 The Proposed Charter for the city 
 and c()unty will provide for com- 
 plete '^Horne Riule, " in fixing the 
 number and salaries of all officers 
 and employees. 
 
 The people themselves can say 
 what they want and when they want 
 it, instead of leaving it to the Leg- 
 islature, every two years, to create 
 offices that may or may not be 
 needed, and for which the taxpayer 
 must pay. 
 
 Administrative Officers are now 
 
 elected not for their fitness, but by 
 reason of their popularity. 
 
 Both in the cities and the county, 
 officers are compelled to off^r them- 
 selves for re-election every two or 
 four vears, and are obliged to 
 
 Under the proposed system ad- 
 ministrative offi^rs, such as the 
 County Clerk and Recorder, Tax 
 Collector, Assessor, etc., are ap- 
 pointed under civil service. They 
 will be trained men, and will have 
 
CONDITIONS UNDER THE PRES- 
 ENT SYSTEM OF DUAL GOV- 
 ERNMENT. 
 
 enter the arena of politics and 
 spend a good share of the peo- 
 ple's time, paid for at high rates 
 out of the public treasury and money 
 they should use for their own per- 
 sonal needs, in making- friends who 
 will assist them in re-election, thus 
 diverting to campaign purposes 
 money and time that neither th(^ 
 candidates nor the people can afford 
 to have thus diverted. 
 
 Inefficiency and disorganization 
 are the' results. 
 
 Under the present system the su- 
 pervisors and various city councils 
 have legisilative as ' well as admin- 
 istrative powers. They present the 
 unique spectacle of appropriating 
 money to their own departments, as 
 administrative officers, then spend- 
 ing the money appropriated, then, as 
 a legivslat*ive body, approving their 
 own acts. 
 
 Under the present system of sep- 
 arate governmentsi, all manner of 
 prices are paid for supplies by the 
 various purchasing agents. 
 
 One purchasing' agent pays list 
 price —another buys at retail — ^nd 
 still others buy at wholesale. 
 
 There is no standardization of 
 quality, quantity or price. 
 
 WHAT FEDERATION WILL DO 
 UNDER THE PROPOSED CITY 
 AND COUNTY CHARTER. 
 
 a guaranteed tenure of office as long 
 as they ''make g'ood." They must 
 devote the whole of their time to the 
 duties of the office and will be 
 under no compulsion to devote time 
 and salaries to campaign require- 
 ments. 
 
 Tenure of office becomes secure, 
 and efficiency and^ organization will 
 be the result. 
 
 The proposed charter provides 
 that the elected council, or city 
 board, shall have only legislative 
 powers. It may levy the tax, appro- 
 priate the money and adopt policies, 
 but the actual carrying-out of the 
 policies and the administration of all 
 business is left in the hands of 
 trained experts, under the super- 
 vision of the city manager. 
 
 Under a central purchasing sys- 
 tem for the federated cities and 
 county, with a competent purcha»s- 
 ing agent in charge, the quality, 
 fjuantity and prices will be stand- 
 ardized, supplies will be bought in 
 large quantities, and proper dis- 
 counts from wholesale lists will be 
 obtained. 
 
 Under the present system taxes 
 for benefits and the cost of improve- 
 ments are increasing out of propor- 
 tion to the increase in property 
 values. Improvements are made 
 without any definite program as to 
 
 Under the proposed plan a reduc- 
 tion in taxes will result by city plan- 
 ning for all the cities as a unit, in 
 accordance with a consistent pro- 
 gram laid out with a view to future 
 needs and extending over a period 
 
CONDITIONS UNDER THE PRES- 
 ENT SYSTEM OF DUAL GOV- 
 ERNMENT. 
 
 WHAT FEDERATION WILL DO 
 UNDER THE PROPOSED CITY 
 AND COUNTY CHARTER. 
 
 future requirements, and ai;;e not in of years, as was suggested by Dr. 
 concert with any uniform plan for Werner Hegemann, who made a sur- 
 al! the cities within the county. vey of the East Bay Cities. 
 
 Employees of the County, as well 
 as in many of the cities, are not 
 under civil service and are subject 
 to change at each election. This 
 condition produces a lack of interest 
 in their work and keeps them con- 
 tinually in politics. Can such a 
 sj^stem be anything but inefficieni ? 
 
 All Employees appointed will be 
 subject to civil service regulation 
 (preference will 'be given to those 
 now in office). They will all be re- 
 quired to do a full day's' work. Ef- 
 ficiency methods and records will be 
 installed whereby the worthj^ will be 
 protected and the drones weeded out. 
 
 At present there is no uniform 
 standard for the school departments 
 of the various cities and districts in 
 the county. One department pro- 
 vides for a given activity in one 
 way, and another for the sanie 
 activity in another way. There are 
 several boards and several school 
 ,supeg*intendents, thus causing a 
 heavv overhead cost. 
 
 The proposed plan provides for a 
 united school department for the 
 v\'hole county, with uniform stand- 
 ards in educational matters and a 
 fixed program for future expansion 
 and activities. This will reduce the 
 present annual overhead cost as well 
 as increase efficiencv. 
 
 The Purchasing Power of the 
 "Tax Dollar" is decreasing each 
 yekr, as is evidenced by the increas- 
 ing tax^rate. 
 
 Citizens, under our present sys- 
 tem, are compelled to pay taxes on 
 the same piece of property at sep- 
 arate times and at different places. 
 The tax rate is based upon-jdifferent 
 valuations', these valuations being 
 qften estimated by "rule of thumb." 
 
 Under the efficient and business 
 methods that will be installed, the 
 "Tax Dollar" will yield one hun- 
 dred cents to the taxpayer. 
 
 All taxes will be paid at one time 
 and at one place. 
 
 The tax rate will be based on one 
 valuation, determined scientifically 
 bv experts competent to value real 
 estate and improvements. 
 
CONDITIONS UNDER THE PRES- 
 ENT SYSTEM OF DUAL GOV- 
 ERNMENT. 
 
 We have now in the county and 
 in the cities some 10 Justices of the 
 Peace and Police Judges. Some of 
 the judges put in about one-third 
 time, others half time, hut all draw 
 fulh pay. The Justices and Police 
 Judges are elected; report to no su- 
 perior; and hold court indlependently 
 and irregularly. 
 
 Present transportation facilities 
 are inadequate to supply our wants. 
 The traction companies' lines extend 
 through all the East Bay Cities as 
 far as Haywards. 
 
 They are operating under mary 
 and various formis of franchises. 
 Some of these franchises run for 
 long and some for short terms. This 
 precludes at this time, or even in the 
 near future, an effective public own- 
 ership, should the people desire it. 
 
 Under existing conditions, exten- 
 sions and improvements cannot 
 readily be made, for the reason that 
 the present franchise provisions em- 
 barrass the proper financing of such 
 extensions and improvements. 
 
 The water question is, at present, 
 ^ery pressing and important for the 
 east bay cities. It must be solved in 
 the very near future. The organiza- 
 
 WHAT FEDERATION WILL DO 
 UNDER THE PROPOSED CITY 
 AND COUNTY CHARTER. 
 
 The proposed charter abolishes 
 all justice, and police courts and 
 creates in their stead a municipal 
 court with five departments. The 
 judges of these departments are 
 prohibited from .practicing law 
 within the county, and must devote 
 all their time to the court's busi- 
 ness. The coiuirt has jurisdiction 
 over the entire county. 
 
 The proposed charter provides a 
 remedy whereby the people, as well 
 as the traction companies, are fully 
 protected in all their rights, yet it 
 makes- it possible for the companies 
 to surrender all their existing fran- 
 chises and in return receive a 
 blanket or single indeterminate 
 franchise covering all their lines 
 and future extensions and improve- 
 ments. 
 
 This will greatly facilitate financ- 
 ing. 
 
 At the same time, it clears the 
 way and provides a method where- 
 by the people, at any time, may 
 take over the whole system under 
 public ownership at a price that 
 will be fair to both the people and 
 the traction companies. The pur- 
 chase price will be fixed by the Rail- 
 road Commission on the basis of the 
 actual investment wisely and hon- 
 estly made by the traction com- 
 panies, less depreciation. 
 
 Under the plan of federating the 
 cities as proposed in the new Char- 
 ter, the water ((uestion becomes 
 comparatively easy of solution. A 
 
CONDITIONS UNDER THE PRES- 
 ENT SYSTEM OF DUAL GOV: 
 ERNMENT. 
 
 tion of the cities of Alameda County 
 is such that it is almost impossible to 
 effect a solution of that question 
 satisfaetoril}^ : and it is conjectural 
 whether it can be done at all. 
 
 WHAT FEDERATION WILL DO 
 UNDER THE PROPOSED CITY 
 AND COUNTY CHARTER. 
 
 (luestion the solution of which so 
 vitally affects the well-being, com- 
 fort and health of the people should, 
 in itself, almost be sufficient justifi- 
 cation for the adoption of the pro- 
 posed new form of government. 
 
 Under present conditions the bal- Under the proposed plan the bal- 
 lot is long, complicated and mysti- lot will be short, simple and intel- 
 fyii^g- liable. 
 
 At the present time the county is 
 facing a probable increase in taxes 
 to meet the cost of purchasing land 
 and constructing buildings to ade- 
 quately house county offices, v/hose 
 tunetions overlap those of city 
 offices. 
 
 The present municipal and county 
 governments of Alameda County are 
 an effort to build, upon a foundation 
 of a worn-out political system, a 
 structure adequate to meet the needs 
 of modern business and social con- 
 ditions. These dual governments are 
 a failure — unwieldly, expensive and 
 inefficient. 
 
 Under the proposed plan the 
 purchase of additional land and the 
 construction of new buildings to 
 house county offices would be un- 
 necessary. Oakland's beautiful city 
 hall and auditorium would become 
 available immediately for county, as 
 well as city purposes. 
 
 The new city and county charter 
 will give us a system of government 
 that has been scientifically worked 
 out in the light of experience and 
 adapted to meet the requirements 
 of modern economic, industrial and 
 social conditions. Politics and spoils 
 are replaced Iby policies and' effi- 
 ciency. The interest and welfa're of 
 the few gives way to the good of 
 the many. 
 
 Oakland 
 
 Enquirer 
 
I 
 

 
 - — OCLaa_a)07