Municipal home rule means in practice, therefore, that cities shall be free to frame their own charters and to determine for themselves their form of municipal government provided they do not infringe upon the general laws of the state or detract from the authority of the state officials. This is a very broad limitation and leaves the city a comparatively narrow field of self-determination. Nevertheless, in spite of this limitation the home rule system has substantial advantages. It relieves the legislature from having to do with a multitude of local matters at every session; it helps to separate municipal from state politics; and it encourages the people of the city to take an active interest in the making of their own charters.[[71]]
The older form of municipal organization.
The Organization of City Government.—Twenty-five years ago the general plan of city government, as established by these charters, was fairly uniform throughout the country. Charters were granted in different ways; their provisions varied in many details; but the main framework of city government which they set up had everywhere the same general features. This was the mayor-and-council type of government, its chief feature being a division of powers between the mayor, who performed executive functions, and the council, which served as a municipal legislature. In other words the cities were governed on the same principle as the nation and the states. Even today most of the larger cities retain this plan.
The newer forms.
During the opening years of the twentieth century, however, a new plan of city government came to the front and spread with great rapidity through many sections of the country. This is known as the commission system of government. Instead of dividing powers between a mayor and council it combines them all in the hands of a small elective board. This plan of government now prevails in several hundred American cities, but most of them are small places.
Out of the commission plan has grown a third scheme of city government during the past few years. This is called the city manager plan. It gives to an elective commission or small council the general supervision of city affairs, but entrusts to a professional administrator, or city manager, the immediate charge of the actual work.
Let us look at these three types of city government a little more closely.
The Mayor-and-Council Plan.—Among the fifty largest cities of the United States, the mayor-and-council system of government exists in all but twelve. Despite the spread of the other two plans, therefore, it is still the prevailing type of government in the more important communities. |Position and powers of the mayor.| The mayor, under this system, is the city’s chief official. He is elected by the people, usually for a two-year or four-year term, and the election campaign is in most cities conducted on a party basis. Occasionally men of high ability have served as mayors in various cities, but far more frequently the position has gone to active politicians who can be relied upon to use the powers and patronage of the office in promoting the interests of the party.[[72]] The authority of the mayor is in general like that exercised by the governor in state affairs. He makes appointments (which in some cases require confirmation by the council); and he may veto ordinances or resolutions passed by the council. In some cities he has the exclusive right to propose expenditures and in some others his assent is necessary in all municipal contracts. He represents the city on all occasions of ceremony and is the “first citizen” of the community. City charters usually provide that the mayor shall be responsible for the general observance of the laws and the maintenance of order. In a few cities he presides at meetings of the council but for the most part he does not have this duty. When he desires to address the council he does so by message or written communication.
The city’s administrative officials.
The Heads of Departments.—It is impossible, of course, for any one official to manage directly all branches of city administration; hence the mayor is assisted in this work by various officials and boards, such as the superintendent of streets, the head of the police department, the water board, and the board of health. |Commissioners vs. boards.| In the larger cities the tendency now is to put each department of administration in charge of a single commissioner rather than a board because the members of a board are too prone to disagree among themselves and delay business. In the smaller cities the board system is still widely used, partly because it is less expensive. When a single official is given charge of a department (such as police, fire protection, or streets) he must devote his whole time to it and hence has to be paid a good salary; but members of a board can divide the work among themselves, each giving only part-time to it, and serving without any pay. It is questionable, however, if this policy means any saving in the long run. When a city attains a population of twenty, thirty, or forty thousand its administrative work grows to a point where it requires close and skilled attention in order to prevent extravagance and waste.