"HOME RULE" FOR COUNTIES
On the other hand, state governments often interfere in matters that might better be left to local determination. Usually all the counties of a state have exactly the same form of government, with exactly the same officers who exercise exactly the same duties. Yet some counties within a state are almost wholly rural, some are almost wholly urban, others are mixed in character. A form of government adapted to one may not be suited to another. So there has arisen a demand for a larger degree of "home rule" in counties. In Illinois, counties have had the right to determine for themselves whether the township should or should not be given prominence in local government, and whether the "supervisor" or the "commissioner" plan of government should be used. California now has a law which provides that counties may apply for "charters" in the same way that cities do in all states. The "charter," like a constitution, determines the form and powers of the government, and is framed by the people of the county themselves, though it must then have the approval of the state legislature.
THE GROWTH OF URBAN COMMUNITIES
We have noted how the growth of cities with their elaborate organization for service tends to divert attention from the less conspicuous county government. While probably half the counties of the United States contain no city, or "town," or village of 2500 people, there is in almost every township at least one compact settlement that has grown up around the trading center. Sometimes there are several of them in a township and many in a county. In such compact communities cooperation becomes necessary to provide for needs that are not felt in more rural districts, such as paved streets, sewers, public water supply, fire and police protection, and so on. A separate government becomes necessary. The people of such communities may appeal to the authorities of township, county, or state, for incorporation as a village, borough, town, or city. "Village" and "borough" are simply two names used in different localities for the same thing. The difference between them and an incorporated town or city is principally one of size and corresponding complexity of organization.
GOVERNMENT OF VILLAGES AND INCORPORATED TOWNS
The chief governing body of a village, or borough, or incorporated town, is a small council, or board, elected by the people. It has legislative powers in a small way, enacting ORDINANCES for the regulation of local officers and in the public interest.
In Michigan … they may prescribe the terms and conditions for licensing taverns, peddlers, and public vehicles. They have control of streets, bridges and public grounds; and have authority to construct bridges and pavements, and to regulate the use and prevent the obstruction of the highways. They may establish and maintain sewers and drains. They may construct and control public wharves, and regulate and license ferries. They may establish and regulate markets. They may provide a police force and a fire department. They may construct or purchase and operate water works and lighting plants. They may own cemeteries, public pounds, public buildings and parks.[Footnote: John A. Fairlie, Local Government in Counties, Towns, and Villages, pp. 207, 208.]
The council also has limited power to levy taxes and to borrow money for public purposes.
There is a chief executive officer, sometimes called MAYOR, sometimes president, or by other names. Subordinate to him are various other officers, such as the police marshal, the street commissioner, fire marshal, tax assessor, treasurer, clerk, and so on. In larger villages boards of health and other boards and commissions exist to administer various forms of public service. The village may also have its minor court presided over by a justice of the peace.