Alexander Robey Shepherd
Encyclopedia
Alexander Robey Shepherd (1835–1902), better known as Boss Shepherd, was one of the most controversial and influential civic leaders in the history of Washington, D.C.
Washington, D.C.
Washington, D.C., formally the District of Columbia and commonly referred to as Washington, "the District", or simply D.C., is the capital of the United States. On July 16, 1790, the United States Congress approved the creation of a permanent national capital as permitted by the U.S. Constitution....

, and one of the most powerful big-city political boss
Political boss
A boss, in politics, is a person who wields the power over a particular political region or constituency. Bosses may dictate voting patterns, control appointments, and wield considerable influence in other political processes. They do not necessarily hold public office themselves...

es of the Gilded Age
Gilded Age
In United States history, the Gilded Age refers to the era of rapid economic and population growth in the United States during the post–Civil War and post-Reconstruction eras of the late 19th century. The term "Gilded Age" was coined by Mark Twain and Charles Dudley Warner in their book The Gilded...

. He was head of the DC Board of Public Works from 1871 to 1873 and Governor of the District of Columbia from 1873 to 1874. He is known, particularly in Washington, as "The Father of Modern Washington."

Early life and career

Born in southwest Washington
Washington, D.C. (southwest)
Southwest is the southwestern quadrant of Washington, D.C., the capital of the United States, and is located south of the National Mall and west of South Capitol Street. It is the smallest quadrant of the city. Southwest is small enough that it is frequently referred to as a neighborhood in and of...

 on January 30, 1835, Shepherd dropped out of school at 13 and took a job as a plumber's assistant. Eventually, he worked his way up to becoming the owner of the plumbing firm. He then invested the profits from that firm in real estate development, which made him a wealthy socialite and influential citizen of the city. (One of his luxurious properties was Shepherd's Row, a set of rowhouses on Connecticut Avenue designed by Adolf Cluss
Adolf Cluss
Adolf Cluss was a German-born American immigrant who became one of the most important architects in Washington, D.C., in the late 19th century, responsible for the design of numerous schools and other notable public buildings in the capital.He was born in 1825 in Heilbronn in the Kingdom of...

; Cluss would later be the star witness at Shepherd's congressional investigation hearings.)

Two days after the Battle of Fort Sumter
Battle of Fort Sumter
The Battle of Fort Sumter was the bombardment and surrender of Fort Sumter, near Charleston, South Carolina, that started the American Civil War. Following declarations of secession by seven Southern states, South Carolina demanded that the U.S. Army abandon its facilities in Charleston Harbor. On...

 that initiated the American Civil War
American Civil War
The American Civil War was a civil war fought in the United States of America. In response to the election of Abraham Lincoln as President of the United States, 11 southern slave states declared their secession from the United States and formed the Confederate States of America ; the other 25...

, Shepherd and his brother each enlisted in the 3rd Battalion of the District of Columbia volunteers. The term of enlistment at that time was only three months, after which Shepherd was honorably discharged. Approximately six months afterwards, he was married to Mary Grice Young, with whom he had seven surviving children.

He was an early member of the Republican Party and a member of the Washington City Councils from 1861 to 1871, during which time he was an important voice for D.C. emancipation, then for suffrage for the freed slaves. Frederick Douglass
Frederick Douglass
Frederick Douglass was an American social reformer, orator, writer and statesman. After escaping from slavery, he became a leader of the abolitionist movement, gaining note for his dazzling oratory and incisive antislavery writing...

 would later say of him, "I want to thank Governor Shepherd for the fair way in which he treated the colored race when he was in a position to help them."

City Boss

Shepherd's influence in the city and position in local government (particularly, his sterling reputation with the newly enfranchised black population) allowed him to build a Republican political machine
Political machine
A political machine is a political organization in which an authoritative boss or small group commands the support of a corps of supporters and businesses , who receive rewards for their efforts...

 in Washington, which he then allied with the Radical Republican contingent that dominated American politics after the American Civil War — ensuring that he had the support of the federal government as well as that of Washington at large.

By 1870, war and mismanagement had caused the finances and infrastructure of the city to deteriorate so badly that the Mayor of Washington, Sayles J. Bowen, had his furniture seized in an attempt to pay the city's debts; Democrats
Democratic Party (United States)
The Democratic Party is one of two major contemporary political parties in the United States, along with the Republican Party. The party's socially liberal and progressive platform is largely considered center-left in the U.S. political spectrum. The party has the lengthiest record of continuous...

 and Republicans were in a rare agreement that a drastic change was needed from Bowen's regime. As a solution, Shepherd and his allies began agitation for the abolition of the elected governments of Washington City and Georgetown
Georgetown, Washington, D.C.
Georgetown is a neighborhood located in northwest Washington, D.C., situated along the Potomac River. Founded in 1751, the port of Georgetown predated the establishment of the federal district and the City of Washington by 40 years...

, as well as the appointed justices of the peace for Washington County
Washington County, D.C.
The County of Washington was one of the five political entities contained within the geographic region comprising what was originally the 100-square-mile District of Columbia. These were the City of Alexandria, the County of Alexandria, Georgetown, the City of Washington, and the County of...

, to be replaced with a unified territorial government that would administer the entire District of Columbia. The Shepherd machine was easily able to sway popular support in favor of the notion.

In the following year, 1871, Shepherd was able to convince Congress to pass a bill that established the territorial government he desired. The Territory Act of 1871 merged the various governments in the District of Columbia into a single eleven-member legislature, including two representatives for Georgetown and two for the County of Washington, to be presided over by a territorial governor; the legislature and governor would all be appointed by the President
President of the United States
The President of the United States of America is the head of state and head of government of the United States. The president leads the executive branch of the federal government and is the commander-in-chief of the United States Armed Forces....

. The two front-runners for the governorship were initially Shepherd, from Washington, and Colonel
Colonel
Colonel , abbreviated Col or COL, is a military rank of a senior commissioned officer. It or a corresponding rank exists in most armies and in many air forces; the naval equivalent rank is generally "Captain". It is also used in some police forces and other paramilitary rank structures...

 Jason A. Magruder, from Georgetown; although popular support was behind Shepherd, President Grant
Ulysses S. Grant
Ulysses S. Grant was the 18th President of the United States as well as military commander during the Civil War and post-war Reconstruction periods. Under Grant's command, the Union Army defeated the Confederate military and ended the Confederate States of America...

 feared that either appointment would cause a sectional divide that might make governorship of the full district impossible. Thus Grant's inaugural appointment to the governorship was his friend, the financier Henry D. Cooke
Henry D. Cooke
Henry David Cooke was an American financier, journalist, railroad executive, and politician. He was the younger brother of Philadelphia financier Jay Cooke. A member of the Republican political machine in post-Civil War Washington, D.C., Cooke was appointed first territorial governor of the...

, "a gentleman of unimpeachable integrity" — and, secretly, a close political ally of Shepherd's.

Shepherd was appointed vice-chair of the city's five-man Board of Public Works. The most powerful public entity in the District of Columbia, the Board of Public Works, was actually an independent entity from the territorial government, reporting directly to Congress, but kept within the territory's sphere of influence by making the governor its chairman. Cooke, however, rarely attended the Board's meetings (probably at Shepherd's urging), allowing Vice-Chair Shepherd to preside. He asserted himself as a leader to such an extent that he often did not bother to consult the other members of the Board before making decisions and taking sweeping action. His abilities as a political operator, according to D.C. journalist Sam Smith
Sam Smith (journalist)
Sam Smith is an American journalist and political activist who was an early pioneer in alternative media. He was also involved in the establishment of the Green Party of the United States. Several times a week, Smith publishes an email news digest, Undernews.-Biography:Smith was born in Washington...

, were formidable:

Shepherd's city improvements

The war-worn condition of Washington City in the late 1860s and early 1870s — when it was little more than a hamlet of dirt roads, wooden sidewalks and open sewers, surrounded by farmland and large country estates — was such that Congress had for several years discussed relocating the seat of the Federal government westward to St. Louis
St. Louis, Missouri
St. Louis is an independent city on the eastern border of Missouri, United States. With a population of 319,294, it was the 58th-largest U.S. city at the 2010 U.S. Census. The Greater St...

 — which would have led to ruin for the District of Columbia. Shepherd believed that if the government was to remain in Washington, the city's infrastructure and facilities must be modernized and revitalized. He filled in the long-dormant Washington Canal
Constitution Avenue
In Washington, D.C., Constitution Avenue is a major east-west street running just north of the United States Capitol in the city's Northwest and Northeast quadrants...

 and placed 157 miles (252.7 km) of paved roads and sidewalks, 123 miles (197.9 km) of sewers, 39 miles (62.8 km) of gas mains, and 30 miles (48.3 km) of water mains. In 1872, Boss Shepherd was responsible for the demolition of the Northern Liberties Market. Two individuals, a butcher who was still on the premises at the time of the demolition and a young boy who had come with his dog to chase the rats who fled the structure, were killed in the process. Under his direction the city also planted 60,000 trees, built the city's first public transportation system in the form of horse-drawn streetcars
Washington streetcars
For just under 100 years, between 1862 and 1962, streetcars in Washington, D.C. transported people across the city and region.The first streetcars in Washington D.C...

, installed street lights, and had the railroad companies refit their tracks to fit new citywide grading standards for the District.

Governorship and fall from power

In 1873, Washington writer Mary Clemmer Ames wrote that "the majority of people believe that Governor Cooke would retain his position only until the fusion of irritated factions [i.e., whites and blacks; Washington, Georgetown, and Washington County] was effected, and that in the event of his resignation, Mr. Shepherd would be appointed his successor. Whether Governor Cooke retires before the end of his term or not, it is the universal belief that Mr. Shepherd will be the second governor of the District of Columbia." Sure enough, that September, Cooke resigned as Governor of the District and Shepherd, having befriended Grant, was promoted by the President to the governorship.

Once in office, Governor Shepherd engaged in a series of social reforms and campaigns that were progressive even by Radical Republican standards: he "integrated public schools, supported the vote for women, sought representation for D.C. in Congress and a Federal payment to the city." Generally, however, his gubernatorial term was "principally occupied in avoiding embarrassments in the conduct of the District's official business due to the inadequacy of the revenue which had been entailed by the demands for funds to meet the cost of executing street improvements."

But despite the lack of finances, the massive public works project continued (and intensified) during Shepherd's term as governor of the District of Columbia. Although the Territorial Act of 1871 had given the governor power to issue construction bonds in the city, to the consternation of white landowners, Shepherd nonetheless put it to a referendum to demonstrate his widespread popular support in the city thanks to the black voters who backed him. (The referendum passed overwhelmingly — partly because Shepherd brought in blacks from Prince George's County to vote.)

However, the cost of the modifications was excessive. Initially, Shepherd had estimated them at a $6.25 million budget, but by 1874, costs had ballooned to $9 million, despite a national panic
Panic of 1873
The Panic of 1873 triggered a severe international economic depression in both Europe and the United States that lasted until 1879, and even longer in some countries. The depression was known as the Great Depression until the 1930s, but is now known as the Long Depression...

 that had befallen the nation the year before. District residents gathered 1,200 signatures to petition an audit from Congress; when the audit was conducted, the legislature discovered that the city was in arrears by $13 million and declared bankruptcy on its behalf. Shepherd was investigated for financial misappropriation and mishandling, during which time it was discovered that the project and its funding had been carried to absurd extremes. Shepherd had raised taxes to such a degree that citizens had to sell their own property to pay them. Street grading, too, had been executed such that some homes' front yards were as much as 15 feet (4.6 m) lower than the front door, while others found their homes standing in trenches with the street at second floor level. In addition, Congress discovered that Shepherd had given preference to neighborhoods and areas of the District in which he or his political cronies held financial interests.

Although none of his actions were found to have violated any laws, Shepherd was summarily fired and the territorial government was abolished in favor of a three-member Board of Commissioners, which remained in charge of the District for over a century. Although President Grant nominated Shepherd to the first Board of Commissioners, the appointment was rejected by the Senate
United States Senate
The United States Senate is the upper house of the bicameral legislature of the United States, and together with the United States House of Representatives comprises the United States Congress. The composition and powers of the Senate are established in Article One of the U.S. Constitution. Each...

 on the same day. The appointment of Shepherd became one of the many corruption scandals surrounding Grant's administration.

The civic improvements, however, had sufficiently modernized the city that relocation of the capital was never again discussed as a serious option. It also created a decades-long real estate boom in Washington (until about the turn of the 20th century), with wealthy Americans coming from all over the United States to build large and expensive mansions, some for year-round residency and some for winter vacation only (leading Washington to be called "the winter Newport
Newport, Rhode Island
Newport is a city on Aquidneck Island in Newport County, Rhode Island, United States, about south of Providence. Known as a New England summer resort and for the famous Newport Mansions, it is the home of Salve Regina University and Naval Station Newport which houses the United States Naval War...

").

Last years

Shepherd remained in Washington for a further two years, still a real-estate magnate and a celebrated and influential member of Washington society In 1876, however, he declared personal bankruptcy
Personal bankruptcy
Personal bankruptcy is a procedure which, in certain jurisdictions, allows an individual to declare bankruptcy. In other jurisdictions, bankruptcies are reserved for corporations.-Canada:...

 and, once his accounts were settled, moved with his family to Batopilas, Mexico
Mexico
The United Mexican States , commonly known as Mexico , is a federal constitutional republic in North America. It is bordered on the north by the United States; on the south and west by the Pacific Ocean; on the southeast by Guatemala, Belize, and the Caribbean Sea; and on the east by the Gulf of...

, where he made a fortune in silver mining
Silver mining
Silver mining refers to the resource extraction of the precious metal element silver by mining.-History:Silver has been known since ancient times. It is mentioned in the Book of Genesis, and slag heaps found in Asia Minor and on the islands of the Aegean Sea indicate that silver was being separated...

 and instituted many of the same reforms he had championed in the District of Columbia.

He died in Batopilas on September 12, 1902, from complications of a surgery to remove his appendix
Vermiform appendix
The appendix is a blind-ended tube connected to the cecum , from which it develops embryologically. The cecum is a pouchlike structure of the colon...

. His body was returned to Washington and buried in a large personal (not family) vault in Rock Creek Cemetery
Rock Creek Cemetery
Rock Creek Cemetery — also Rock Creek Church Yard and Cemetery — is an cemetery with a natural rolling landscape located at Rock Creek Church Road, NW, and Webster Street, NW, off Hawaii Avenue, NE in Washington, D.C.'s Michigan Park neighborhood, near Washington's Petworth neighborhood...

.

Legacy - The rehabilitation of Boss Shepherd's reputation

Shepherd's legacy has been a matter of some debate since his death more than one hundred years ago. He has long been maligned as a corrupt, cronyist
Cronyism
Cronyism is partiality to long-standing friends, especially by appointing them to positions of authority, regardless of their qualifications. Hence, cronyism is contrary in practice and principle to meritocracy....

 political boss, often compared to Boss Tweed
Boss Tweed
William Magear Tweed – often erroneously referred to as William Marcy Tweed , and widely known as "Boss" Tweed – was an American politician most notable for being the "boss" of Tammany Hall, the Democratic Party political machine that played a major role in the politics of 19th century...

, the leader of the Tammany Hall
Tammany Hall
Tammany Hall, also known as the Society of St. Tammany, the Sons of St. Tammany, or the Columbian Order, was a New York political organization founded in 1786 and incorporated on May 12, 1789 as the Tammany Society...

 political machine of the same time period.

A statue of Shepherd which currently stands on Pennsylvania Avenue
Pennsylvania Avenue
Pennsylvania Avenue is a street in Washington, D.C. that joins the White House and the United States Capitol. Called "America's Main Street", it is the location of official parades and processions, as well as protest marches...

, NW
Washington, D.C. (northwest)
Northwest is the northwestern quadrant of Washington, D.C., the capital of the United States, and is located north of the National Mall and west of North Capitol Street...

, in front of the John A. Wilson Building
John A. Wilson Building
The John A. Wilson Building, popularly known simply as the Wilson Building or the JAWB, houses the offices and chambers of the Mayor and Council of the District of Columbia. Originally called the District Building, it was renamed in 1994 to commemorate former Council Chair John A. Wilson...

 (which now houses the offices and chambers of the Council
Council of the District of Columbia
The Council of the District of Columbia is the legislative branch of the local government of the District of Columbia. As permitted in the United States Constitution, the District is not part of any U.S. state and is instead overseen directly by the federal government...

 and the Mayor of the District of Columbia,) has served as a symbol of his fluctuating reputation.
In 1979, during the first year of Mayor Marion Barry's
Marion Barry
Marion Shepilov Barry, Jr. is an American Democratic politician who is currently serving as a member of the Council of the District of Columbia, representing DC's Ward 8. Barry served as the second elected mayor of the District of Columbia from 1979 to 1991, and again as the fourth mayor from 1995...

 administration, the statue was removed from its perch on Pennsylvania Avenue and warehoused in city storage. It reappeared in the mid-1980s near an otherwise-obscure D.C. Public Works building on Shepherd Avenue, S.W., in the District's remote Blue Plains neighborhood.

Near the beginning of the 21st century, Washington historian Nelson Rimensnyder started to argue for a restoration of Shepherd's reputation, calling him an "urban visionary" who singlehandedly transformed Washington into a major American city and championed aggressive social reform.

Largely as a result of Rimensnyder's efforts, and the efforts of those he persuaded, the Shepherd statue was returned in January 2005 to its previous place of honor. The statue now stands on its pedestal
Pedestal
Pedestal is a term generally applied to the support of a statue or a vase....

 next to the sidewalk
Sidewalk
A sidewalk, or pavement, footpath, footway, and sometimes platform, is a path along the side of a road. A sidewalk may accommodate moderate changes in grade and is normally separated from the vehicular section by a curb...

 of Pennsylvania Avenue, NW, close to 14th Street, NW
14th Street Northwest and Southwest (Washington, D.C.)
Fourteenth Street is a street in Northwest and Southwest Washington, D.C., located 1¼ mi. west of the U.S. Capitol. It runs from the 14th Street Bridge north to Eastern Avenue....

, and the northwest corner of the Wilson Building.

The D.C. neighborhood of Shepherd Park
Shepherd Park
Shepherd Park is a neighborhood in the northwest quadrant of Washington, D.C. In the years following World War II, restrictive covenants which had prevented Jews and African Americans from purchasing homes in the neighborhood were no longer enforced, and the neighborhood became largely Jewish and...

, where Shepherd once lived, is named for him, as is Alexander Shepherd Elementary School in that neighborhood.

External links

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