representative body was chosen, having both legislative and executive powers.

The executive duties devolving upon the government have become so extensive and so complicated that they cannot be performed efficiently and economically by the same body that exercises the legislative functions, especially when that body is chosen annually, by popular vote, to serve without compensation. The time has arrived when the interests of good government would seem to require a separation of the legislative and executive duties — the former to be exercised by representatives elected directly by the people, in the same manner as the legislative bodies for the State and the nation; the latter to be exercised by one principal officer elected by the people and by heads of executive departments appointed by that officer, with the approval of the legislative body. This was the basis on which the new charter submitted last year was constructed. To say that the principles on which such a system is founded are undemocratic is to say the same of our whole system of government, State and National. It derives its power from the people; it rests on the will of the people, and is subject

16

MAYOR'S ADDRESS

to change or modification in its details, as experience may demonstrate to be necessary or expedient.

Its application to our municipal government is simply a recognition of the changed condition of affairs consequent upon the great increase in the area and population of the city, and the necessity of securing the services of experienced and responsible officers in carrying out the will of the people as expressed by their immediate representatives.

The first settlers of New England, as their communities increased and they found their time occupied to the detriment of their private business in attempting to act all together upon matters of local government, recognized the necessity of selecting certain men, first for a short term, as they were jealous of their liberties, and afterwards for a longer term, as the wisdom of the proceeding justified itself, to act for them. That was the origin of the New England system of town government. When a change to the city system was proposed it was strenuously resisted, many of the arguments then urged against it being similar to those used in

the discussions which have taken place upon the change now proposed.

The condition of affairs at that time has been described by Mr. Quincy in his Municipal History of Boston. "With a population," he says, "upwards of forty thousand, and with seven thousand qualified voters, it was evidently impossible calmly to deliberate and act. A few

busy or interested individuals easily obtained the management of the most important affairs in an assembly in which the greater number could have neither voice nor hearing. When the subject was not generally exciting, town meetings were usually composed of the selectmen, the town officers and thirty or forty inhabitants. Those who thus came were, for the most part, drawn to it from some official duty or private interest, which, when performed or obtained, they generally troubled themselves but little, or not at all, about the other business of the meeting."

The opposition of an intelligent community to the change proposed at that time is surprising to us. The city system then introduced, and which has continued with very little alteration to the present day, was adapted to the wants of a

Water.

small city with a homogeneous population. The change now proposed, by which the government will be placed on a basis similar to the State and National governments, and which is adapted to any future requirements, either of area or population, is, I repeat, as imperatively demanded, at this time, as the change which was made in 1822. The annual expenditures of the city government, at the present time, exceed the entire expenditures of the United States government at the time the first city charter was granted.

The project of enlarging the supply of water, by bringing into the city the water from Sudbury river, has been prosecuted during the past season, and it is expected that the entire work will be completed in less than two years from the present time. Very favorable contracts have been made, and it is now estimated that the entire work, including mill-damages and interest during the construction, will cost about $5,000,000— a saving of $3,000,000 on the sum named in my first inaugural message. There is no doubt that the new supply of water will be ample for an indefinite period.

I urgently recommend that the expenditure on

the new work, and the management of the whole property when completed, be committed to a Cominission, who shall be paid for their services, give their whole time to the duties of the office, and be held strictly responsible to the City Council. Becoming thoroughly conversant with the affairs of the department, they would be prepared at all times to answer the questions and meet the exigencies that are constantly arising, to make contracts and provide supplies on the best terms, and keep a watchful eye on every item of the immense disbursement. Such service cannot be expected of a Board constituted as the present one is. Serving without pay, they can hold only occasional meetings; engaged in their own business, they cannot always be found when wanted, and can give only a divided mind to the city's interests, and but driblets of their time. Would any sagacious individual, or private corporation, adopt such a system of management and supervision for a property costing $17,000,000? The members of the present Board are as fully aware as any of us of the unsatisfactory character of the present system, and have communicated to me, in a formal resolve, their opinion that there should be a Water Board constituted as I have recom