MUNICIPAL GOVERNMENT AND DEMOCRA TIC IDEALS 83
compelled the mayor to make, have been laid at the door of the council, and have served further to weaken its hold on the people. If this feeling continues to increase in intensity, it is likely to carry us to a form of city government in which the mayor and the heads of executive departments will exercise, not only the administrative, but also the legislative functions of the munici- pality.
The council, if restricted to distinctly legislative functions, may continue to be an important organ in keeping the government of the city in close touch with the people, and in keeping the people in close touch with city affairs. Under our present plan of organi- zation this is impossible, because the participation of the council in the exercise of executive functions leads it to bend its energies to control the executive rather than to deal with broader questions of municipal policy.
The alternative that presents itself to the American people is clear and distinct. If we wish to preserve the council, we must be prepared to make three changes : first, to deprive it of all partici- pation in the appointment of executive officials; secondly, to transform it from a bicameral organization to a single chamber; and, thirdly, to reduce its membership. Unless we are prepared to make these changes, it is safe to predict that we shall gradually move toward a system in which both executive and legislative powers will be vested in the mayor and the heads of executive departments.
We need not shrink from giving to the mayor greater execu- tive powers, if by so doing we can save the council. It is impor- tant for those who are interested in the betterment of city government to realize that, while in the organization of govern- ment all kinds of compromises may be attempted, the actual opera- tion of any system is determined by deep underlying forces over which the individual has but little control. The compromises that have been dictated by our unwillingness to accept the consequences of certain fundamental canons of political organization have placed our city governments at the mercy of a small group of men who understand these principles more clearly than we, and who are able to manipulate this organization for their own ends.
