Practically unknown a few years ago, the budget movement among the states has spread so rapidly that at the present time almost all of the commonwealths have some sort of budget system. Three methods of preparing the budget are found among the several states. In some states, as in New York, budget-making is in the hands of the legislature; in other states, as in Wisconsin, both legislature and executive participate in budget-making; in still other states, as in Illinois, the executive alone is responsible for the preparation of the budget. Many authorities claim that the last-named type of budget preparation is preferable but, in many states it is objected to as giving too much power to the executive.
D. THE REFORM OF MUNICIPAL GOVERNMENT
460. MUNICIPAL REFORM: CHANGES IN THE MAYOR-COUNCIL PLAN.—Until the opening of the twentieth century practically every American city was governed under what is known as the mayor-council plan. This plan provides for a council to make the laws, and a mayor to act as executive. Formerly the council of the larger cities was very often composed of two chambers, a board of aldermen and a common council, but of late years the single-chambered council has become more and more common.
The mayor-council plan still prevails in most American cities, particularly in the larger municipalities. But everywhere the growing demand for honesty and efficiency in government is leading to the reform of this system. In order to reduce the length of the ballot, the appointive power of the mayor is being increased. In the interests of economy and responsibility the administrative offices are in many cities being consolidated, co÷rdinated and centralized under the mayor. To guard against the abuse of financial power there is in many commonwealths a tendency for state constitutions and statutes to limit the debt-incurring and franchise-granting powers of city councils.
461. MUNICIPAL REFORM: THE COMMISSION PLAN.—In September, 1900, a tidal wave seriously demoralized the mayor-council form of government in Galveston, Texas. To meet the emergency, the state legislature authorized the establishment of a new type of government, known as the commission plan. Instead of selecting a mayor and councilmen, the voters of Galveston now choose a commission of five officials. All of these commissioners are equal in power, except that one presides as mayor-president. The commission form of government spread rapidly, chiefly among the smaller cities, until in 1921 there were more than 300 municipalities governed under this plan. In every case the commission has both legislative and executive powers. Collectively the commissioners act as a legislative body for the city, individually they head the various administrative departments.
A number of important advantages are claimed for the commission form of city government. Responsibility is no longer divided among mayor and councilmen, but can be definitely placed upon the small group of commissioners. It is believed by many that commission government allows a greater harmony of action than is possible under the mayor- council plan. Finally, it is declared, a group of five or seven commissioners can administer city government with more efficiency than can a mayor and a numerous council.
The opponents of commission government maintain, on the other hand, that the plan is undemocratic and oligarchical because it centralizes great power in the hands of a small group. The plan is said to increase the danger of corruption, since appropriating and spending powers are placed in the same hands. The opponents of this form of government also maintain that it renders easier the corruption of the city administration, since party bosses may easily gain control of a few commissioners. A final, and perhaps the most serious, objection is that commission government does not go to the logical conclusion in concentrating responsibility. There is no head to the administration, and no way of preventing the diffusion of responsibility among the commissioners. Jealousy among the commissioners has often led to friction and to working at cross-purposes. [Footnote: Of recent years a number of cities have abandoned commission government for either the mayor-council or the city manager plan.]
462. MUNICIPAL REFORM: THE CITY MANAGER PLAN.—A recent modification of commission government is the city manager plan. This provides for a small elective commission, which does not itself administer the government of the city, but which chooses, instead, an experienced executive or city manager. The city manager is supposed to be a non- partisan expert whose duty it is to administer the city in accordance with business principles. As the agent of the commission choosing him, the city manager enforces all ordinances, prepares annual estimates, and appoints all other city officials and employees. He also accepts full responsibility for the administration of the city's affairs.
The first city to apply the city manager plan was Dayton, Ohio, which began the experiment on January 1, 1914. Since that date the plan, or some variation of it, has been established in about a hundred cities. The city manager plan is an improvement over the commission plan, in that it allows a greater concentration of responsibility. Another advantage over commission government is that the city manager plan insures a high grade of professional skill at the apex of the city's administration. The plan appears to work well in the smaller cities, provided a high grade manager can be found, and provided, also, that his position can be safeguarded against corrupting political influences.