FUNCTIONS:
I. To manage that branch of the Police which relates to Hackney Coaches and Chairs.—To enforce strictly the laws now in being for the better ordering this system so necessary to the comfort and convenience of the Metropolis.—To obtain new powers (where wanting) to compel a greater degree of cleanliness and security, with respect to these vehicles.—To banish, if possible, from the fraternity those criminal characters denominated Flash Coachmen, and to secure civility, and prevent imposition.—For this last purpose a department should be continued, as at present, (a part of the Institution,) having a concurrent jurisdiction with other Magistrates, for the purpose of hearing and determining disputes between Coachmen and the Public.
II. To execute the laws relative to Hawkers and Pedlars.—To regulate and improve the System respecting this suspicious class of Dealers, and more effectually to extend the control over them by means of the Select Magistrates in each District of the Country where they travel, for the purpose of more narrowly watching their conduct.
III. To grant Licenses in the Town District (i.e. within the limits of the Penny-Post, while the Select and other Justices grant similar Licences in the Country;) under the authority of the proposed general Police Bill, to the following Traders, and others,[173] viz.
1st. Purchasers of second-hand, and other Household goods, for Sale.
2d. Wholesale purchasers of Rags, and unserviceable Cordage, for Sale to Paper-makers.
3d. Retail Purchasers of Rags, and unserviceable Cordage, for Sale to Paper-makers.
4th. Purchasers of second-hand Apparel, made-up Piece-Goods, and Remnants for Sale.
5th. Walking or Itinerant Purchasers of second-hand Apparel, made-up Piece-goods, and Remnants for Sale.
6th. Purchasers of second-hand Naval Stores, for Sale.
7th. Wholesale Purchasers of second-hand Metals, for Sale.
8th. Retail Purchasers of second-hand Metals, of persons in general, for working up.
9th. Every Worker of second-hand Metals purchasing the same, from persons in general, and not from Licensed Dealers.
10th. Purchasers of second-hand Building Materials for Sale.
11th. Persons keeping Draught-Carts for second-hand goods, purchased for Sale.
12th. Persons keeping Hand or Truck Carts for second-hand goods, purchased for Sale.
13th. Sellers of Unredeemed Pledges, otherwise than by Auction: and also to control and inspect the conduct of these dealers, so as if possible to confine them to the innocent part of their Trades; and to collect and receive the respective Licence Duties.[174]
IV. To grant Licences also in like manner to other Traders, which are already under some degree of Legislative regulations; (but which require a more efficient Control), provided it shall be thought expedient by the Legislature to transfer these branches to the proposed Board, as requiring in a particular degree the superintendance of the Policy System, viz.
1st. Pawnbrokers in Town and Country.
2d. Persons keeping Slaughtering-houses for Horses, and other Animals, not for the food of Man.
3d. Dealers in Horses, and persons hiring, keeping at Livery, and transferring Horses from hand to hand, with a view to establish a check against Highway Robberies, and to defeat those subtle tricks which prevail in the Sale of Horses.
And also to collect the Licence and other Duties, (which might, in respect to the transfer of Horses, be rendered extremely productive without being felt as a burden), and to inspect the conduct of these classes with a view to the prevention of Frauds, and other offences.
V. To grant Licences in like manner to all persons (except those employed in his Majesty's Mints), who shall erect or set up any cutting Engine for cutting round Blanks by the force of a Screw; or any Stamping Press, Fly, Rolling Mill, or other instrument for Stamping, flatting, or marking Metals, or Bank Notes; or which, with the assistance of any Matrix, Stamp, Die, or Plate, will stamp Coins or Notes—so as to prevent the enormous evils constantly experienced by the Coinage of Base Money, and the counterfeiting of Bank Notes:—A System whereby the criminal part of ingenious Artists could be kept under the immediate view of the Police, is so obvious in a Commercial Country, as to require no elucidation. And the measure is the more desirable, as the reputable part of the Artists and Manufacturers who have occasion to keep Presses for innocent and useful purposes, have no objection to such regulations.[175]
VI. These Commissioners, after deducting the necessary expences, should pay into the Exchequer weekly, through the medium of a Receiver, the whole Revenues collected by them for Police purposes; and it is to be hoped, notwithstanding the very low Rates of the Licence Duties proposed, that, including the Horse Police, the aggregate Collection would go very far towards easing the resources of the Country of the expence of what the Select Committee of the House of Commons denominate, a very inefficient System of Police.[176]
VII. It would be the duty of the Commissioners to superintend, with great strictness, the conduct of their Subordinate Officers, both in the Town and Country Districts, and to be careful that those who were entrusted with the collection of the Licence Duties gave proper Security;[177] and that in their conduct, in Surveying and Watching the Movements of the different Dealers, they manifested the greatest degree of vigilance, prudence, and discretion.—Above all, that they were regular in their Payments, and remittances, so as not to incur the penalties inflicted by the proposed Act on defaulters.
VIII. To correspond with the Select Magistrates in every District in the Kingdom, and not only to receive from them useful information, relative to offences which have been committed, and all other matters within the scope of the Functions of these Select Magistrates; but also to give them their advice and assistance in every case where it is found necessary, for the purpose of the preservation of peace and good order, and the due administration of the Laws; and particularly as it may apply to those Select Magistrates who reside near the Sea-Coasts of the Kingdom, that in all cases of Shipwreck, measures may be pursued, and the laws enforced, to prevent those horrid barbarities, pillage and spoliation, which have, to the disgrace of civilized Society, prevailed on such melancholy occasions.[178]
IX. To make arrangements with the Select Magistrates in the Country, relative to the due execution of the proposed General Police Act, with respect to the Control over the persons Licenced, and all other Duties which may be required under such a Legislative System.
X. To obtain accurate Information, by means of regular returns from Clerks of Assize, Clerks of the Peace, Keepers of Prisons, Houses of Correction, Penitentiary Houses, and other places of Confinement; and to have constantly in view the state of delinquency in the Metropolis, and in every part of the country; preserving such accounts in registers for the purpose of reference, as occasions might arise to render them useful to public Justice.—To assist the acting Magistrates in Town and Country by conveying all useful information applicable to their local situations, respecting the commission of crimes, and the detection of offenders, and which might tend to the prevention of disorders, or offences meditated against the Laws.
XI. To watch the proceedings of the herds of criminal delinquents who generally leave Town every year in the month of March, after the drawing of the English Lottery, for the purpose of attending fairs, races, and other places of amusement and dissipation in the country, carrying with them quantities of base Money, and EO Tables, with a view to commit frauds on the unwary—And to give notice to the Select local Magistrates, that they and their officers may be upon their guard in defeating the nefarious designs of these miscreants, who are often disguised as farmers and labourers, the better to enable them to effect their purposes, by cheating and stealing, particularly horses, to the great loss and injury of the country.
XII. It is recommended by the Select Committee of the House of Commons, that the Commissioners of this Central Board should have it in their power to distribute rewards to Constables or others for meritorious services, through the medium of the Magistrates of Police, and to use such other means as should best promote the ends of Justice, and the general utility of the Institution to the community.
XIII. Under the direction of the principal Secretary of State for the Home Department, these Commissioners should avail themselves of the knowledge their situation would afford them of the degree of depravity and danger attached to the character of the different convicts; to select such as they thought proper objects for transportation to New South Wales; and to follow any other instructions they may receive for œconomizing this branch of the criminal Police of the nation, so as, if possible, to reduce the annual expence.
XIV. These Commissioners being authorized by the Lords of the Treasury, might take under their management all matters relative to the Lottery; not only with a view to a more œconomical mode of drawing the same, but also for the purpose of rendering the Revenue productive to the State, without the evil consequences which at present arise from it to the morals of the lower orders of the people, and the distresses and miseries to which its fascinating delusions subject them.
XV. It would be the duty of the Board, availing itself of the practical knowledge which may be obtained by means of a System of general superintendence in the Police Department, to attend closely to the operation of the whole of the present code of penal Laws, with respect to its efficacy and utility; and where imperfections are discovered, to suggest from time to time such improvements as may appear useful and beneficial to the Police, and to the Revenue.
XVI. The Select Committee in their Report recommend, that the proposed Board should have power "to make Bye-Laws for the regulation of such minor objects of Police as relate to the objects of their superintendence, and to the control of all Coaches, Chairs, Carts, Barrows, and the conduct of all Coachmen and Chairmen, Carters, &c. and the removal and prevention of all annoyances, and the correction of all offences against the cleanliness and quiet, and the free passage of the streets of the Metropolis, in like manner as is now possessed, by the Commissioners of Hackney Coaches, and subject to the approbation of the Superior Judges."
XVII. To superintend the general receipts and disbursements of the Establishment, and to report the same quarterly to the Treasury, and to the principal Secretary of State for the Home Department.
XVIII. To receive and execute the instructions of the Treasury in all matters respecting Finance and Revenue; and the instructions and directions of His Majesty's Secretary of State for the Home Department in all matters of Police.
XIX. To establish a more correct System through the medium of the Select Magistrates, whereby the Laws for the prevention and punishment of offences may be more effectually and universally carried into execution, and not in many instances remain a dead letter, as at present, to the great injury of the community; or be partially carried into effect in particular parts of the country, against a few individuals, or for mere temporary purposes.
XX. Finally, it will be the duty of the Board to report to his Majesty in Council, and to Parliament (if required) the State of the Metropolis and the Country, with respect to criminal Police in all its branches, so as to bring under the review of the Executive Government the whole criminality of the Country, at a given period each year, where it will be accurately discovered whether it increases or diminishes.
Such are the functions apparently necessary to be assigned to the proposed Board of Commissioners, for the purpose of accomplishing the objects of improvement in the Police System, which have been recommended to Parliament by the Select Committee.
These objects are of too much importance to the Public, to the Security of the State, and to the peace and good order of Society, to be lost sight of, even for one moment.
While the morals and habits of the lower ranks in Society are growing progressively worse and worse—while the innocent and useful part of the Community are daily suffering evils and inconveniences originating from this source—while crimes multiply in all instances under the existing systems, (the Thames Police only excepted[179]) it becomes of importance to apply a remedy. In legislating with this view, the same disadvantages and difficulties do not present themselves as in many other cases, since much previous labour and investigation has been bestowed in forming a ground-work for the proposed General Police System.
Under the Sanction of his Majesty's Principal Secretary of State for the Home Department, a Bill has been prepared, in which, while every attention has been paid to the means of accomplishing the views of the Select Committee, nothing can exceed the pains which have been bestowed in preserving the rights of innocence, and in divesting power of the faculty of abuse.
A line has been carefully drawn between the noxious and the blameless and useful part of the community; and while the injuries arising from the pursuits of the former are checked and restrained, the privileges of the latter are extended and enlarged. This, when properly contemplated, will be found to be the true essence of good Police—and this explains in the shortest compass that is possible, the ultimate object of the design.
The Bill comprehends five divisions:—The first authorizes the imposition of Licence Duties on certain classes of Dealers already enumerated:—The second establishes a Board of Police Revenue, and explains its powers and functions:—The third explains the powers and regulations which apply to the Licensing System:—The fourth relates to penalties and procedure: and the fifth transfers the functions of the Commissioners of Hackney Coaches and Chairs, and Hawkers and Pedlars, to the new Establishment, and makes provision for such Officers as may cease to be employed.—While the proposed duties, although light upon the individuals, promise to be productive to a certain extent; the Licensing System is likely "to purge the occupations placed under control from the imputations which are now but too deservedly cast upon them; and to make them by gradual steps the instruments of detection, instead of the means of concealment, of every species of fraud and violence."[180]
The functions of the Board, by comprehending whatever relates to the delinquency of the country, will establish a general responsibility which does not now exist, and which never has existed, with respect to the evils arising from the multiplication of crimes, while their diminution will depend on the zeal, ability, and discretion to be manifested by those to whom this important duty may be assigned.
By this establishment of a general Police System, will it become the duty of one class of men to watch over the general delinquency of the Metropolis, and the country;—to check its progress by lessening the resources of the evil disposed to do injuries, and to commit acts of violence on the peaceful subject; and gradually to lead the criminal, the idle, and the dissolute members of the community into the paths of innocence and industry.
The collateral aids to be derived from this System of Control over Dealers and others of loose conduct, in pursuit of evil courses, will give considerable strength to the Legislative measures which are in contemplation, with respect to the Police of the River Thames: The frauds and plunder in the Naval and other public departments:—The Coinage of base Money, and the fabrication of counterfeit Bank Notes.—Whatever has been contemplated for the purpose of checking and preventing these evils cannot be complete or effectual, until the proposed Board is established, and the Licensing System in full action. The control of this Board is absolutely necessary to contribute to the success of the measures proposed, and to the security of public and private property against the present extensive depredations. In fact the whole System is linked together, and its energy and success will depend on the passing of the respective Laws applicable to each object of which the Police Board may not improperly be denominated the key-stone.
It is this responsible superintendance which is to give life, vigour, and effect, not only to the Laws which are in contemplation, but to many other excellent Statutes which remain at present as a dead letter.—Let it once become the duty of one body of men to charge themselves with the execution of the Laws for the prevention of crimes, and the detection of offences—let them be armed with proper and apposite powers for that purpose, and the state of Society will speedily become ameliorated and improved; a greater degree of security will be extended to the peaceful subject, and the blessings of civil liberty will be enlarged.
A new æra in the world seems to have commenced, which imperiously calls for the adoption of such measures; not only in this country, but all over Europe. The evil propensities incident to human nature appear no longer restrained by the force of religion, or the influence of the moral principle.—On these barriers powerful attacks have been made, which have hitherto operated as curbs to the unruly passions peculiar to vulgar life: they must therefore be strengthened by supports more immediately applicable to the object of preserving peace and good order.
The period is approaching when to the phalanx of delinquents who at present prey upon Society, will be added multitudes of idle and depraved characters discharged from the Army and Navy on the return of Peace.—Policy and humanity require that an adequate remedy should be provided for such a contingency.—Qui non vetat peccare cum possit, jubet. Where the powers of a State are not employed to avert apparent and threatened evils, a tacit assent is given to the commission of crimes. On the contrary, where means are used to check the progress of turpitude and vice, and to compel obedience to the Laws, the comfort of Society is promoted, and the privileges of innocence are secured.
If in the accomplishment of the design which has been recommended by the highest authority, these objects shall be gradually attained—If it shall operate in preventing acts of violence and fraud from being committed upon the peaceful subject; while means are discovered through the medium of a well-regulated Police, whereby the unfortunate, and even the idle and the dissolute, may possess a resource for subsistence by honest industry, without having any pretended plea of necessity for resorting to Crimes; great, indeed, would be the benefits which would result to the Public. This would be at once the triumph both of reason and humanity.
The first step is, to attend to the Morals and the Habits of the rising Generation; to adapt the Laws more particularly to the manners of the People, by minutely examining the state of Society, so as to lead the inferior orders, as it were, insensibly into better Habits, by gentle restraints upon those propensities which terminate in Idleness and Debauchery;—to remove temptations, in their nature productive of evil, and to establish incitements to good and useful pursuits.
Among a variety of other Functions which would devolve on the proposed Commissioners, perhaps one might be to offer suggestions to the Executive Government, with respect to such useful Regulations as might arise from the extensive knowledge which they must necessarily acquire as to the condition and pursuits of the labouring People; and hence would result one of the greatest means of preventing Crimes, and improving the Condition of human Life.
But while it is acknowledged to be a vain hope to reduce the tumultuous passions of Men to absolute regularity, so as to render the Commission of offences impracticable; it is equally clear (and it is even proved by the State of Society, where Public Morals have been more effectually guarded,) that it is possible to diminish the Evil very considerably.
By the establishment of a well-conducted Board of Police, a confident hope is entertained that this purpose is attainable; and in this view (although it is to take nothing from the present Resources of the State), it is a blessing to the Nation, which could scarce be too dearly purchased at any price.
CHAP. XIX.
The unparalleled Extent and Opulence of the Metropolis, manifested in the number of streets, lanes, alleys, courts, and squares, estimated at above 8000;—containing above 4000 Churches and Places for religious Worship,—more than 400 Seminaries of Education;—several Institutions for promoting Religion and Morality;—11 Societies for promoting Learning, and the useful and the fine Arts;—a great number of charitable Asylums for the indigent and forlorn;—Hospitals and Dispensaries for the lame, sick, and diseased;—and above 1700 Institutions of various other kinds for Charitable and Humane Purposes.—A detail of the Courts of Law, and other Establishments connected with the distribution of Justice.—The public Prisons in the Metropolis.—A View of the number of Persons employed in the different departments of the Law, estimated in all at about 7000.—Suggestions for improving the civil Jurisprudence in the Metropolis, so far as relates to the recovery of small Debts.—The Evils arising from the present System, exemplified in the multiplicity of actions for trivial sums in the course of a year; the enormous expence, and the ill effects of the severity of the punishment in such cases; debasing the mind, and proving the destruction of many families, in their morals; and injuring the State.—The necessity of an Alteration of the System, farther enforced by the propriety of relieving the supreme Judges from a weight of labour unreasonable in the vast increase of business, which the extensive and growing intercourse of Commerce occasions.—The same Observations extended to the great Officers of State; and the necessity and utility of a division of labour, in proportion to the increase of public duty, explained; as a means of preventing inconveniences.—A view of the Municipal Regulations which have been established in the Metropolis for the accommodation and convenience of the inhabitants; grounded on various acts of the Legislature, passed at different periods, during the last and the present century.—Each district of the Metropolis a separate Municipality; where the power of assessing the inhabitants for the purposes of paving, watching, lighting, cleansing, and removing nuisances, is placed in the hands of Trustees, under a great number of local acts of Parliament.—These regulations mostly founded on Laws made in the last and in the present Reign.—The principal public acts detailed, viz:—The General Act of the 2d William and Mary, cap. 8, for paving the Metropolis;—the 10th Geo. II. cap. 22, for watching the City of London; 11th Geo. III. cap. 29, for removing signs, and establishing a complete System of Municipal Police.—The Acts relative to Westminster and Southwark for similar purposes.—The Statutes relative to Common Sewers detailed; their origin, and the great advantages resulting from them.—The Laws relative to Hackney Coaches and Chairs—also to Carts and other Carriages.—The Acts relative to Watermen on the Thames.—The Law for restraining bullock-hunting. And finally, the Regulations by the 14th Geo. III. cap. 78, relative to the Mode of building Houses, and the Rules laid down for extinguishing Fires. Concluding Observations, on the advantages which would result to the Metropolis at large from these numerous Acts of Parliament being rendered uniform, and conformable to the excellent Regulations established for the City of London.—The advantages of simplifying the System.—The burden upon the Inhabitants equal to one million a year for the expence of Municipal Police.—Suggestions for improving the System and reducing this expence.—Concluding Reflections.—The present epoch, more than any other, presses for arrangements calculated to amend the Morals of the People, by improving the Laws of the Country.
IT cannot fail to prove an interesting inquiry, not only to the inhabitants of the Metropolis, but also to Strangers, by what means that department of its œconomy and government, which may be denominated Municipal Police, is regulated; so as to convey the comforts, and procure the various accommodations and conveniences which, with some few exceptions, are felt to exist in every part of the Capital and its environs.
When it is known that this great City, (unparalleled, as will be hereafter shewn, in extent and opulence, through the whole habitable Globe,) comprehends, besides London, Westminster, and Southwark, no less than forty-five Villages, now exceedingly inlarged, independent of a vast accession of buildings upon the open fields in the vicinity; it becomes less a matter of surprize, to learn, that it extends to nearly eight miles in length,—is three miles at least in breadth, and not less than twenty-six in circumference; containing above eight thousand streets, lanes, alleys, and courts, and sixty-five different Squares; in which are more than one hundred and sixty thousand houses, warehouses, and other buildings; besides Churches and Chapels for religious worship, of which the following enumeration is imagined not to be very distant from truth:—