Royal Commission on London Government
Encyclopedia
The Royal Commission on London Government, also known as the Ullswater Commission, was a Royal Commission
which considered the case for amendments to the local government arrangements in the County of London
and its environs. The commission was chaired by Viscount Ullswater
, appointed in October 1921, and reported in 1923. The inquiry was described as an "unmitigated disaster" for proponents of reformed local government in the capital, as the commission failed to reach a unanimous decision. The majority report recommending virtually no change was signed by four commissioners, one of whom added a memorandum of dissent. Two minority reports, each signed by two commissioners, reached differing conclusions. In the event, administrative reforms were not carried out until 1965
following another inquiry
.
in 1919. During the First World War the two main parties on the council, the Municipal Reformers
and the Progressives
effectively formed a coalition. After the ending of hostilities there was initially agreement between the leaders of the two parties and the smaller London Labour Party
that public utilities such as electricity supply and public transport in the wide Greater London area needed to be co-ordinated in order to provide for adequate planning for the capital. It was argued that an overhaul of local government was needed, involving the absorption of the central City of London
and the outer suburban areas into an enlarged London. There was further impetus for enlargement as London experienced an acute housing crisis caused by both financial shortfalls and land shortages. A large housing programme required expenditure that the limited rate base of the County of London could not meet, while land costs within the county were very high in comparison to those of the surrounding counties.
The members appointed were:
in Whitehall
. It was anticipated that the body would recommend the formation of a new central body as it was recognised that the government of London had become "unmanageable, and patch work schemes and emergency legislation have been necessary".
in 1855, itself corresponding to the area of the "Metropolis" as used at that time by the Registrar-General for the weekly Tables of Mortality. He pointed out that the boundary had been arrived at arbitrarily but consisted of the "City of London and a number of surrounding parishes, which had been gradually added to by successive Registrar-Generals, and appeared to have been formed on no pre-conceived plan, but simply as considerations of convenience might from time to time dictate." He explained that there were no less than 92 authorities within the county, each making rate demands. These included the county council, the city corporation, the Metropolitan Asylums Board
, the metropolitan borough councils
, boards of guardians
, assessment committees, boards of managers of school districts, a sick asylum district management board, an insurance committee and an old age pensions committee. There were also four statutory bodies that exercised powers over a wider area of which the county formed a part, namely the Metropolitan Water Board, the Port of London Authority
, the Thames Conservancy Board and the Lee Conservancy Board.
The powers and duties of the authorities and the financial relations between them were described as "complicated in many respects". Within the county itself there were three different mechanisms of rates equalisation as well as overlapping powers. The city corporation was the port sanitary authority with jurisdiction along a considerable stretch of the Thames Estuary
and also managed a number of open spaces beyond the boundaries of the administrative county such as Burnham Beeches
and West Ham Park
. The main drainage area of the county council extended outside the county boundaries, and both the City and the county council had powers to build housing outside the area. The London County Council Tramways
operated in conjunction with the systems of adjoining municipalities and companies, while the council's education department allowed children from neighbouring areas to attend county council schools.
The remainder of the Metropolitan Police District
was divided between five administrative counties
, three county borough
s, seven municipal borough
s, 65 urban district
s and 12 rural district
s. Their boundaries were "irregular, following for the most part, those of the parochial units from which the areas had been built up, and corresponded neither with the physical features of the districts or with the grouping of the population." There was no correlation between population, size and powers.
, where it heard evidence from the London County Council. Ronald Collet Norman
, the leader of the Municipal Reform group on the county council presented evidence. The council's case was that when they had first been created in 1889
they had been placed in charge of a "complicated machine". Over time defects in the arrangement had become apparent, and the "machine" while not being obsolete was obsolescent. The council's solution was the formation of an enlarged Greater London with a "central authority" exercising power over it. The area should comprise:
They strongly recommended that the boundaries of Greater London for local government, police, public transport coordination, electricity and water supply should be made to coincide. They were unable to describe the exact outer boundary of this enlarged area, except that it should be larger than the Metropolitan Police District but smaller than the entirety of London and the Home Counties
. The LCC recognised the need for a second tier of local authorities, and suggested that they should have greater powers than the existing metropolitan borough councils. In order for these to be "strong, independent local authorities" many of the existing boroughs and districts would need to be merged into larger units. The evidence from the county council concluded in January 1922 with discussion of health services. The proposed central authority would take over all the capital's voluntary hospitals and become the port sanitary authority.
was given by Sir Herbert Nield
, MP for Ealing
. The council was in favour of a traffic authority for Greater London, but not of the central authority proposed by the London County Council. Lord Ullswater suggested that the objections to the central authority were simply because it would mean the "swallowing up" of Middlesex
. Nield replied that they believed that their county council had been better managed than that of London, and that Greater London was an unwieldy area for a single authority, and that members could not be expected to take any personal interest leading to a huge bureaucracy.
, Director General of Roads at the Ministry of Transport
was called to give evidence on public transport in London. He explained that since the end of the World War I
, there had been a problem of traffic congestion in the capital. This had improved somewhat in the last two years, as additional omnibuses, trams and trains had come into service. He recommended the establishment of a London Traffic Committee of not more than 15 members. The traffic area under the superintendence of the committee should be a circle with a radius of 25 miles centred on Charing Cross
. He also recommended an end to the competing services of the various operators "which resulted in loss to all parties" in favour of coordination by the committee.
, the railway companies, the London General Omnibus Company
and relevant trade unions.
The report recommended that steps be taken to "encourage" amalgamation of the smaller authorities that lay outside the administrative county, but within the Metropolitan Police District. They did not, however, propose any mechanism or specific mergers. Instead they anticipated that the various councils might voluntarily propose schemes to produce larger units. They suggested that this needed to be done in the near future, before development created "further difficulty". They did not consider the case for or against the creation of new county borough
s, as this issue was the subject of another royal commission
under the chairmanship of the Earl of Onslow
dealing with the whole of England and Wales.
Within this area two rates would be levied: an Equalisation Rate (General) of 1 shilling and 6 pence in the pound and an Equalisation Rate (Poor) of 1 shilling in the pound. These two rates, it was estimated, would raise about 8 million pounds. The product of the general rate would be distributed among the various local authorities of the equalisation area in proportion to their day population, thereby making those who lived in outer London but worked in the centre, contribute to services in the central boroughs. The product of the poor rate was to be distributed in proportion to the night population of each poor law union
: one third being distributed generally and two thirds to unions containing overcrowded areas. These were defined as areas where the population density was more than two persons per room.
The commissioners noted that their scheme could be put into operation rapidly using figures already gathered, and did not involve the creation of any new local or central authorities or officers. It would also discourage excessive expenditure as there would be a uniform rate across the capital and no single local authority would benefit from a general increase.
In their view the local government of the capital did need to be reorganised. They felt the area was too large to be administered by a single authority. They therefore recommended the division of Greater London into a number of authorities, "with a status approximating those of county boroughs". Certain functions would, however, be reserved to a "central authority". Examples of London-wide functions were tramways, water supply and main drainage. They did not go into detail of either the areas of the proposed boroughs nor the exact division of functions between the two tiers which they recognised would take considerable work to define.
advisory committees or authorities.
They proposed a single central authority for the entire Greater London area (the Metropolitan Police District with slightly modified boundaries). This would replace a number of overlapping authorities including the London County Council and Metropolitan Asylums Board and would be directly elected except for one sixth of the body, who would be aldermen
appointed by the authority itself. The authority would have powers over public transport, town planning, large housing schemes, main drainage, sewage disposal, higher and specialised education, water supply, hospitals, fire protection, large parks and open spaces, wholesale markets and smallholdings. A lower tier of local authorities would be formed based on existing areas: metropolitan boroughs, municipal boroughs, urban districts and rural districts, but each having equal powers and status. They would have enhanced powers, for instance taking over the duties of poor law guardians
and becoming the elementary education authority for their area.
put forward proposals in July 1923 that:
Legislation to put this into effect was delayed due to a confused political situation. A draft bill was prepared just before the minority Conservative
government of Stanley Baldwin
collapsed in January 1924 and was replaced by a Labour Government under Ramsay McDonald. By the middle of March the new government had agreed to introduce the bill, virtually unchanged, to parliament without delay. The London Traffic Bill
, creating a London and Home Counties Traffic Advisory Committee
for a defined London Traffic Area
was introduced to the United Kingdom House of Commons on 26 March. The bill cleared all stages of parliament by August, and came into effect on 1 October 1924.
Royal Commission
In Commonwealth realms and other monarchies a Royal Commission is a major ad-hoc formal public inquiry into a defined issue. They have been held in various countries such as the United Kingdom, Australia, Canada, New Zealand, and Saudi Arabia...
which considered the case for amendments to the local government arrangements in the County of London
County of London
The County of London was a county of England from 1889 to 1965, corresponding to the area known today as Inner London. It was created as part of the general introduction of elected county government in England, by way of the Local Government Act 1888. The Act created an administrative County of...
and its environs. The commission was chaired by Viscount Ullswater
James Lowther, 1st Viscount Ullswater
James William Lowther, 1st Viscount Ullswater, GCB, PC, JP, DL was a British Conservative politician. He served as Speaker of the House of Commons between 1905 and 1921.-Background and education:The son of Hon...
, appointed in October 1921, and reported in 1923. The inquiry was described as an "unmitigated disaster" for proponents of reformed local government in the capital, as the commission failed to reach a unanimous decision. The majority report recommending virtually no change was signed by four commissioners, one of whom added a memorandum of dissent. Two minority reports, each signed by two commissioners, reached differing conclusions. In the event, administrative reforms were not carried out until 1965
London Government Act 1963
The London Government Act 1963 is an Act of the Parliament of the United Kingdom, which recognised officially the conurbation known as Greater London and created a new local government structure for the capital. The Act significantly reduced the number of local government districts in the area,...
following another inquiry
Royal Commission on Local Government in Greater London
The Royal Commission on Local Government in Greater London, also known as the Herbert Commission, was established in 1957 and published its report in 1960...
.
Background
The commission was established in a response to a resolution passed by the London County CouncilLondon County Council
London County Council was the principal local government body for the County of London, throughout its 1889–1965 existence, and the first London-wide general municipal authority to be directly elected. It covered the area today known as Inner London and was replaced by the Greater London Council...
in 1919. During the First World War the two main parties on the council, the Municipal Reformers
Municipal Reform Party
The Municipal Reform Party was a local party allied to the parliamentary Conservative Party in the County of London. The party contested elections to both the London County Council and metropolitan borough councils of the county from 1906 to 1945.-Formation:...
and the Progressives
Progressive Party (London)
The Progressive Party was a political party based around the Liberal Party that contested municipal elections in the County of London.It was founded in 1888 by a group of Liberals and leaders of the labour movement. It was also supported by the Fabian Society, and Sidney Webb was one of its...
effectively formed a coalition. After the ending of hostilities there was initially agreement between the leaders of the two parties and the smaller London Labour Party
Labour Party (UK)
The Labour Party is a centre-left democratic socialist party in the United Kingdom. It surpassed the Liberal Party in general elections during the early 1920s, forming minority governments under Ramsay MacDonald in 1924 and 1929-1931. The party was in a wartime coalition from 1940 to 1945, after...
that public utilities such as electricity supply and public transport in the wide Greater London area needed to be co-ordinated in order to provide for adequate planning for the capital. It was argued that an overhaul of local government was needed, involving the absorption of the central City of London
City of London
The City of London is a small area within Greater London, England. It is the historic core of London around which the modern conurbation grew and has held city status since time immemorial. The City’s boundaries have remained almost unchanged since the Middle Ages, and it is now only a tiny part of...
and the outer suburban areas into an enlarged London. There was further impetus for enlargement as London experienced an acute housing crisis caused by both financial shortfalls and land shortages. A large housing programme required expenditure that the limited rate base of the County of London could not meet, while land costs within the county were very high in comparison to those of the surrounding counties.
Membership and terms of reference
The Commission was appointed by royal warrant dated 24 October 1921. The terms of reference were:...to inquire and report what, if any, alterations are needed in the local government of the administrative county of London and the surrounding districts, with a view to securing greater efficiency and economy in the administration of local government services and to reducing any inequalities which may exist in the distribution of local burdens as between different parts of the whole area
The members appointed were:
- James William Lowther, 1st Viscount Ullswater (Chairman), former Speaker of the House of Commons
- Sir Richard Vassar Vassar-SmithVassar-Smith BaronetsThe Vassar-Smith Baronetcy, of Charlton Park in Charlton Kings in the County of Gloucester, is a title in the Baronetage of the United Kingdom. It was created on 10 July 1917 for the businessman Richard Vassar-Smith. He was Chairman of Lloyds Bank, of the Gloucester Wagon Company Ltd, of the...
Bt, chairman of Lloyds BankLloyds BankLloyds Bank Plc was a British retail bank which operated in England and Wales from 1765 until its merger into Lloyds TSB in 1995; it remains a registered company but is currently dormant. It expanded during the nineteenth and twentieth centuries and took over a number of smaller banking companies...
(resigned December 1921) - Sir Horace Cecil Monro KCB, former secretary of the Local Government BoardLocal Government BoardThe Local Government Board was a British Government supervisory body overseeing local administration in England and Wales from 1871 to 1919.The LGB was created by the Local Government Board Act 1871 The Local Government Board (LGB) was a British Government supervisory body overseeing local...
- Sir Albert Gray KCB, KC, bencherBencherA bencher or Master of the Bench is a senior member of an Inn of Court in England and Wales. Benchers hold office for life once elected. A bencher can be elected while still a barrister , in recognition of the contribution that the barrister has made to the life of the Inn or to the law...
of the Inner TempleInner TempleThe Honourable Society of the Inner Temple, commonly known as Inner Temple, is one of the four Inns of Court in London. To be called to the Bar and practise as a barrister in England and Wales, an individual must belong to one of these Inns...
and Fellow of the Royal Geographical SocietyRoyal Geographical SocietyThe Royal Geographical Society is a British learned society founded in 1830 for the advancement of geographical sciences... - Colonel Ernest Haviland Hiley CBE, former manager of New Zealand Railways DepartmentNew Zealand Railways DepartmentThe New Zealand Railways Department, NZR or NZGR and often known as the "Railways", was a government department charged with owning and maintaining New Zealand's railway infrastructure and operating the railway system. The Department was created in 1880 and was reformed in 1981 into the New...
- George John Talbot KC, barrister, chancellorChancellor (ecclesiastical)Two quite distinct officials of some Christian churches have the title Chancellor.*In some churches, the Chancellor of a diocese is a lawyer who represents the church in legal matters....
of the Dioceses of LincolnDiocese of LincolnThe Diocese of Lincoln forms part of the Province of Canterbury in England. The present diocese covers the ceremonial county of Lincolnshire.- History :...
, ElyDiocese of ElyThe Diocese of Ely is a Church of England diocese in the Province of Canterbury. It is headed by the Bishop of Ely, who sits at Ely Cathedral in Ely. There is one suffragan bishop, the Bishop of Huntingdon. The diocese now covers Cambridgeshire and western Norfolk...
, LichfieldDiocese of LichfieldThe Diocese of Lichfield is a Church of England diocese in the Province of Canterbury, England. The bishop's seat is located in the Cathedral Church of the Blessed Virgin Mary and Saint Chad in the city of Lichfield. The diocese covers 4,516 km² The Diocese of Lichfield is a Church of England...
and SouthwarkAnglican Diocese of SouthwarkThe Diocese of Southwark is one of the 44 dioceses of the Church of England, part of the worldwide Anglican Communion. The Diocese forms part of the Province of Canterbury in England. It was formed on May 1, 1905 from part of the Diocese of Rochester... - Neville ChamberlainNeville ChamberlainArthur Neville Chamberlain FRS was a British Conservative politician who served as Prime Minister of the United Kingdom from May 1937 to May 1940. Chamberlain is best known for his appeasement foreign policy, and in particular for his signing of the Munich Agreement in 1938, conceding the...
, member of parliamentMember of ParliamentA Member of Parliament is a representative of the voters to a :parliament. In many countries with bicameral parliaments, the term applies specifically to members of the lower house, as upper houses often have a different title, such as senate, and thus also have different titles for its members,...
for Birmingham, Ladywood (resigned November 1922) - Robert DonaldRobert DonaldSir Robert Donald was a British newspaper editor.Working as a clerk, Donald submitted free articles to a local journal, then gained employment at the Edinburgh Evening News. He also worked on The Courant and the Northampton Echo before becoming a freelancer. In 1888, he joined The Star, a new...
, journalist and former editor of the Daily ChronicleDaily ChronicleThe Daily Chronicle was a British newspaper that was published from 1872 to 1930 when it merged with the Daily News to become the News Chronicle.-History:... - Edmund Russborough Turton, member of parliament for Thirsk and MaltonThirsk and Malton (UK Parliament constituency)Thirsk and Malton is a constituency represented in the House of Commons of the Parliament of the United Kingdom. It elects one Member of Parliament by the first past the post system of election....
and former member of the London County Council - Stephen Walsh, member of parliament for InceInce (UK Parliament constituency)Ince was a parliamentary constituency in England which elected one Member of Parliament to the House of Commons of the Parliament of the United Kingdom. It comprised the town of Ince-in-Makerfield and other towns south of Wigan....
and former Parliamentary Secretary to the Local Government BoardParliamentary Secretary to the Local Government BoardThe Parliamentary Secretary to the Local Government Board was, from 1871 – 1919, a junior ministerial post in the United Kingdom subordinate to the President of the Local Government Board...
Evidence heard
The commission held its first sitting on 6 December 1921 at the Ministry of HealthDepartment of Health (United Kingdom)
The Department of Health is a department of the United Kingdom government with responsibility for government policy for health and social care matters and for the National Health Service in England along with a few elements of the same matters which are not otherwise devolved to the Scottish,...
in Whitehall
Whitehall
Whitehall is a road in Westminster, in London, England. It is the main artery running north from Parliament Square, towards Charing Cross at the southern end of Trafalgar Square...
. It was anticipated that the body would recommend the formation of a new central body as it was recognised that the government of London had become "unmanageable, and patch work schemes and emergency legislation have been necessary".
Ministry of Health
The first witness was the solicitor to the Ministry of Health, who gave an outline of various authorities existing within the County of London and surrounding areas. He noted how the boundaries of the county were those originally delineated as the area of the Metropolitan Board of WorksMetropolitan Board of Works
The Metropolitan Board of Works was the principal instrument of London-wide government from 1855 until the establishment of the London County Council in 1889. Its principal responsibility was to provide infrastructure to cope with London's rapid growth, which it successfully accomplished. The MBW...
in 1855, itself corresponding to the area of the "Metropolis" as used at that time by the Registrar-General for the weekly Tables of Mortality. He pointed out that the boundary had been arrived at arbitrarily but consisted of the "City of London and a number of surrounding parishes, which had been gradually added to by successive Registrar-Generals, and appeared to have been formed on no pre-conceived plan, but simply as considerations of convenience might from time to time dictate." He explained that there were no less than 92 authorities within the county, each making rate demands. These included the county council, the city corporation, the Metropolitan Asylums Board
Metropolitan Asylums Board
The Metropolitan Asylums Board was established under Poor Law legislation, to deal with London's sick poor. It was established by the Metropolitan Poor Act 1867 and was wound up in 1930, its functions being transferred to the London County Council. Despite its name, the MAB was not involved in...
, the metropolitan borough councils
Metropolitan boroughs of the County of London
The term metropolitan borough was used from 1900 to 1965, for the subdivisions of the County of London created by the London Government Act 1899....
, boards of guardians
Board of Guardians
Boards of guardians were ad hoc authorities that administered Poor Law in the United Kingdom from 1835 to 1930.-England and Wales:The boards were created by the Poor Law Amendment Act 1834, replacing the parish Overseers of the Poor established under the old poor law, following the recommendations...
, assessment committees, boards of managers of school districts, a sick asylum district management board, an insurance committee and an old age pensions committee. There were also four statutory bodies that exercised powers over a wider area of which the county formed a part, namely the Metropolitan Water Board, the Port of London Authority
Port of London Authority
The Port of London Authority is a self-funding public trust established in 1908 by the Port of London Act to govern the Port of London. Its responsibility extends over the Tideway of the River Thames and the authority is responsible for the public right of navigation and for conservancy of the...
, the Thames Conservancy Board and the Lee Conservancy Board.
The powers and duties of the authorities and the financial relations between them were described as "complicated in many respects". Within the county itself there were three different mechanisms of rates equalisation as well as overlapping powers. The city corporation was the port sanitary authority with jurisdiction along a considerable stretch of the Thames Estuary
Thames Estuary
The Thames Mouth is the estuary in which the River Thames meets the waters of the North Sea.It is not easy to define the limits of the estuary, although physically the head of Sea Reach, near Canvey Island on the Essex shore is probably the western boundary...
and also managed a number of open spaces beyond the boundaries of the administrative county such as Burnham Beeches
Burnham Beeches
Burnham Beeches is an area of 220 hectares of ancient woodland, located close to Farnham Common, Burnham and Beaconsfield, in Buckinghamshire. It is approximately 25 miles to the west of London, England.-Preservation:...
and West Ham Park
West Ham Park
West Ham Park is a public park in the London Borough of Newham. Spanning , the park has been managed by the City of London Corporation since 1874. Previously it was the grounds of Ham House, owned by the Gurney family and demolished in 1872...
. The main drainage area of the county council extended outside the county boundaries, and both the City and the county council had powers to build housing outside the area. The London County Council Tramways
London County Council Tramways
The London County Council Tramways was an extensive network of public street tramways that was operated by the council throughout the County of London, UK, from 1899 to 1933, when they were taken over by the London Passenger Transport Board....
operated in conjunction with the systems of adjoining municipalities and companies, while the council's education department allowed children from neighbouring areas to attend county council schools.
The remainder of the Metropolitan Police District
Metropolitan Police District
The Metropolitan Police District is the police area which is policed by London's Metropolitan Police Service. It currently consists of Greater London, excluding the City of London.-History:...
was divided between five administrative counties
Administrative counties of England
Administrative counties were a level of subnational division of England used for the purposes of local government from 1889 to 1974. They were created by the Local Government Act 1888 as the areas for which county councils were elected. Some large counties were divided into several administrative...
, three county borough
County borough
County borough is a term introduced in 1889 in the United Kingdom of Great Britain and Ireland , to refer to a borough or a city independent of county council control. They were abolished by the Local Government Act 1972 in England and Wales, but continue in use for lieutenancy and shrievalty in...
s, seven municipal borough
Municipal borough
Municipal boroughs were a type of local government district which existed in England and Wales between 1835 and 1974, in Northern Ireland from 1840 to 1973 and in the Republic of Ireland from 1840 to 2002...
s, 65 urban district
Urban district
In the England, Wales and Ireland, an urban district was a type of local government district that covered an urbanised area. Urban districts had an elected Urban District Council , which shared local government responsibilities with a county council....
s and 12 rural district
Rural district
Rural districts were a type of local government area – now superseded – established at the end of the 19th century in England, Wales, and Ireland for the administration of predominantly rural areas at a level lower than that of the administrative counties.-England and Wales:In England...
s. Their boundaries were "irregular, following for the most part, those of the parochial units from which the areas had been built up, and corresponded neither with the physical features of the districts or with the grouping of the population." There was no correlation between population, size and powers.
London County Council
The commission resumed its sittings on 13 December at Middlesex GuildhallMiddlesex Guildhall
The Middlesex Guildhall is the home of the Supreme Court of the United Kingdom and of the Judicial Committee of the Privy Council. It stands on the south-west corner of Parliament Square in London.-History:...
, where it heard evidence from the London County Council. Ronald Collet Norman
Ronald Collet Norman
Ronald Collet Norman JP was a banker, administrator and politician.He was chairman of the Board of Governors of the BBC from 1935 to 1939 and of the London County Council from 1918 to 1919. He was the son of Frederick Henry Norman of the Norman family, long prominent in banking.In 1907 he was...
, the leader of the Municipal Reform group on the county council presented evidence. The council's case was that when they had first been created in 1889
Local Government Act 1888
The Local Government Act 1888 was an Act of the Parliament of the United Kingdom, which established county councils and county borough councils in England and Wales...
they had been placed in charge of a "complicated machine". Over time defects in the arrangement had become apparent, and the "machine" while not being obsolete was obsolescent. The council's solution was the formation of an enlarged Greater London with a "central authority" exercising power over it. The area should comprise:
"...the whole continuous urban area ...together with such a surrounding belt as was likely to become of an urban character within a short time."
They strongly recommended that the boundaries of Greater London for local government, police, public transport coordination, electricity and water supply should be made to coincide. They were unable to describe the exact outer boundary of this enlarged area, except that it should be larger than the Metropolitan Police District but smaller than the entirety of London and the Home Counties
Home Counties
The home counties is a term which refers to the counties of South East England and the East of England which border London, but do not include the capital city itself...
. The LCC recognised the need for a second tier of local authorities, and suggested that they should have greater powers than the existing metropolitan borough councils. In order for these to be "strong, independent local authorities" many of the existing boroughs and districts would need to be merged into larger units. The evidence from the county council concluded in January 1922 with discussion of health services. The proposed central authority would take over all the capital's voluntary hospitals and become the port sanitary authority.
Middlesex County Council
Evidence on behalf of Middlesex County CouncilMiddlesex County Council
Middlesex County Council was the principal local government body in the administrative county of Middlesex from 1889 to 1965.The county council was created by the Local Government Act 1888, which also removed the most populous part of the county to constitute the County of London...
was given by Sir Herbert Nield
Herbert Nield
Sir Herbert Nield PC was a Conservative Party politician in the United Kingdom.He was elected as Member of Parliament for Ealing constituency at the 1906 general election, and held the seat until he retired from the House of Commons at the 1931 general election.He was knighted in 1918 and later...
, MP for Ealing
Ealing (UK Parliament constituency)
Ealing was a parliamentary constituency centred on the Ealing district of west London. It returned one Member of Parliament to the House of Commons of the Parliament of the United Kingdom, elected by the first past the post system.-History:...
. The council was in favour of a traffic authority for Greater London, but not of the central authority proposed by the London County Council. Lord Ullswater suggested that the objections to the central authority were simply because it would mean the "swallowing up" of Middlesex
Middlesex
Middlesex is one of the historic counties of England and the second smallest by area. The low-lying county contained the wealthy and politically independent City of London on its southern boundary and was dominated by it from a very early time...
. Nield replied that they believed that their county council had been better managed than that of London, and that Greater London was an unwieldy area for a single authority, and that members could not be expected to take any personal interest leading to a huge bureaucracy.
Ministry of Transport
Sir Henry MayburyHenry Maybury
Brigadier-General Sir Henry Percy Maybury KCMG, CB, was a British civil engineer. He began his career as a railway engineer, working on many railways in England and Wales before becoming the county surveyor for Kent...
, Director General of Roads at the Ministry of Transport
Department for Transport
In the United Kingdom, the Department for Transport is the government department responsible for the English transport network and a limited number of transport matters in Scotland, Wales and Northern Ireland which are not devolved...
was called to give evidence on public transport in London. He explained that since the end of the World War I
World War I
World War I , which was predominantly called the World War or the Great War from its occurrence until 1939, and the First World War or World War I thereafter, was a major war centred in Europe that began on 28 July 1914 and lasted until 11 November 1918...
, there had been a problem of traffic congestion in the capital. This had improved somewhat in the last two years, as additional omnibuses, trams and trains had come into service. He recommended the establishment of a London Traffic Committee of not more than 15 members. The traffic area under the superintendence of the committee should be a circle with a radius of 25 miles centred on Charing Cross
Charing Cross
Charing Cross denotes the junction of Strand, Whitehall and Cockspur Street, just south of Trafalgar Square in central London, England. It is named after the now demolished Eleanor cross that stood there, in what was once the hamlet of Charing. The site of the cross is now occupied by an equestrian...
. He also recommended an end to the competing services of the various operators "which resulted in loss to all parties" in favour of coordination by the committee.
Report
The report of the commission was published on 21 March 1923. The document in fact contained three reports; a majority report, to which a memorandum was attached and two minority reports.Majority report
The majority report was signed by Ullswater, Munro, Turton and Gray. They stated that the evidence presented did not convince them that "any greater efficiency or economy in the administration of local government services in London and the surrounding districts would be attained by any alteration of the existing system on the lines suggested by the London County Council, or suggested by other witnesses." Instead they suggested that the existing authorities in the County of London should redistribute their functions between themselves. They also proposed the creation of a statutory London and Home Counties Advisory Committee to advise the relevant minister on matters of interest to the whole area. The report suggested that transport, town planning, housing and main drainage would be the major functions that the committee would oversee, and that it would cover an area with a 25 mile radius from central london. The committee itself would be made of members nominated by the existing local authorities, the Commissioner of Police of the MetropolisCommissioner of Police of the Metropolis
The Commissioner of Police of the Metropolis is the head of London's Metropolitan Police Service, classing the holder as a chief police officer...
, the railway companies, the London General Omnibus Company
London General Omnibus Company
The London General Omnibus Company or LGOC, was the principal bus operator in London between 1855 and 1933. It was also, for a short period between 1909 and 1912, a motor bus manufacturer.- Overview :...
and relevant trade unions.
The report recommended that steps be taken to "encourage" amalgamation of the smaller authorities that lay outside the administrative county, but within the Metropolitan Police District. They did not, however, propose any mechanism or specific mergers. Instead they anticipated that the various councils might voluntarily propose schemes to produce larger units. They suggested that this needed to be done in the near future, before development created "further difficulty". They did not consider the case for or against the creation of new county borough
County borough
County borough is a term introduced in 1889 in the United Kingdom of Great Britain and Ireland , to refer to a borough or a city independent of county council control. They were abolished by the Local Government Act 1972 in England and Wales, but continue in use for lieutenancy and shrievalty in...
s, as this issue was the subject of another royal commission
Local Government (County Boroughs and Adjustments) Act 1926
The Local Government Act, 1926 was an Act of the Parliament of the United Kingdom that amended the Local Government Act 1888, changing the process by which county boroughs could be created or extended....
under the chairmanship of the Earl of Onslow
Richard Onslow, 5th Earl of Onslow
Richard William Alan Onslow, 5th Earl Onslow GBE, PC , styled Viscount Cranley until 1911, was a British peer, diplomat, parliamentary secretary and government minister.-Background and education:...
dealing with the whole of England and Wales.
Equalisation area
The report recognised the great inequality in the amount paid by ratepayers of different metropolitan boroughs. When they examined the rates paid in the outlying districts of Greater London, the variations were even more marked. These inequalities were, in the commissioners' view "unjustifiable". They proposed the creation of an equalisation area whereby districts "closely united to London by business ties should become partners with London". This would comprise the County of London and the fifty-five urban areas wholly or partly within 10 miles of Charing Cross, namely:- The county boroughs of CroydonCounty Borough of CroydonCroydon was a local government district in north east Surrey, England from 1849 to 1965.-History:A local board of health was formed for the parish of Croydon St John the Baptist in 1849. On March 9, 1883 the town received a charter of incorporation to become a municipal borough...
, East HamCounty Borough of East HamEast Ham was a local government district in the far south west of Essex from 1878 to 1965. It extended from Wanstead Flats in the north to the River Thames in the south and from Green Street in the west to Barking Creek in the east...
and West HamCounty Borough of West HamWest Ham was a local government district in the extreme south west of Essex from 1886 to 1965, forming part of the built-up area of London, although outside the County of London...
. - In Essex: the urban districts of Barking TownMunicipal Borough of BarkingBarking was a local government district in south west Essex, England from 1882 to 1965. It included the town of Barking, eastern Beckton and the south western part of the Becontree estate. The district was within the Metropolitan Police District and experienced a steady increase in population...
, ChingfordMunicipal Borough of ChingfordChingford was a local government district in south west Essex, England from 1894 to 1965, around the town of Chingford. It was within the London suburbs, forming part of the London postal district and Metropolitan Police District...
, IlfordMunicipal Borough of IlfordIlford was a civil parish and local government district in south west Essex, England from 1888 to 1965, covering the town Ilford. The district saw a considerable rise in population throughout its life, caused by the expansion of the built-up area of London, and became one of the most populous...
, LeytonMunicipal Borough of LeytonLeyton was a local government district in southwest Essex, England, from 1875 to 1965. It included the neighbourhoods of Leyton, Leytonstone and Cann Hall. It was suburban to London, forming part of the London postal district and Metropolitan Police District...
, WalthamstowMunicipal Borough of WalthamstowWalthamstow was a local government district in south west Essex, England from 1894 to 1965, around the town of Walthamstow. It was within the London suburbs, forming part of the London postal district and Metropolitan Police District...
, WansteadWansteadWanstead is a suburban area in the London Borough of Redbridge, North-East London. The main road going through Wanstead is the A12. The name is from the Anglo-Saxon words wænn and stede, meaning "settlement on a small hill"....
and Woodford. - In Hertfordshire: the urban districts of BarnetBarnet Urban DistrictBarnet was a local government district in south Hertfordshire from 1863 to 1965 around the town of Barnet.-Creation:Barnet Local Government District was created on September 25, 1863 under the Local Government Act 1858, and was governed by a local board...
and East Barnet ValleyEast Barnet Urban DistrictEast Barnet was a local government district in south Hertfordshire from 1863 to 1965 around the town of East Barnet.The district was created under the Local Government Act 1858 on September 25, 1863, as East Barnet Valley Local Government District. The district was governed by a local board...
. - In Kent: the Municipal Borough of BromleyMunicipal Borough of BromleyBromley was a local government district in northwest Kent from 1867 to 1965 around the town of Bromley. The area was suburban to London, and formed part of the Metropolitan Police District and from 1933 was included in the area of the London Passenger Transport Board.-Local board and urban...
and the urban districts of BeckenhamMunicipal Borough of BeckenhamBeckenham was a local government district in north west Kent from 1878 to 1965 around the town of Beckenham. The area was suburban to London, formed part of the Metropolitan Police District and from 1933 was included in the area of the London Passenger Transport Board.-History:In 1878 the parish of...
, BexleyMunicipal Borough of BexleyBexley was a local government district in north west Kent from 1879 to 1965 around the town of Old Bexley.-History:The parish of Bexley adopted the Local Government Act 1858 in 1879, and a local board of 15 members was formed to govern the area...
, Chislehurst and Sidcup. - In Middlesex: the municipal boroughs of ActonMunicipal Borough of ActonActon was a local government district in Middlesex, England from 1865 to 1965.In 1865 the Local Government Act 1858 was adopted by the parish of Acton, and a twelve-member local board of health was formed to govern the area. The Local Government Act 1894 constituted the area an urban district, and...
, EalingMunicipal Borough of EalingEaling was a local government district from 1863 to 1965 around the town of Ealing.A local board of health was formed for the southern part of the parish of Ealing, Middlesex, in 1863. In 1873 the board's area was extended to the rest of the parish....
and HornseyMunicipal Borough of HornseyHornsey was a local government district in east Middlesex from 1867 to 1965.In 1867, a Local Board was formed for part of the civil parish of Hornsey. The rest of the parish was already under South Hornsey Local Board formed in 1865....
; and the urban districtUrban districtIn the England, Wales and Ireland, an urban district was a type of local government district that covered an urbanised area. Urban districts had an elected Urban District Council , which shared local government responsibilities with a county council....
s of BrentfordBrentford Urban DistrictBrentford was a local government district in the county of Middlesex, England from 1874 to 1927.Brentford Local Government District was created in 1874 under the Local Government Act 1858 and covered the civil parish of New Brentford and the chapelry of Old Brentford in the parish of Ealing...
, ChiswickChiswick Urban DistrictChiswick was a local government district in the county of Middlesex, England from 1858 to 1927. It was part of the London postal district and the Metropolitan Police District....
, EdmontonMunicipal Borough of EdmontonEdmonton was a local government district in north-east Middlesex, England, from 1850 to 1965.Edmonton local board was formed in 1850 for the parish of Edmonton All Saints. In 1881 Southgate was separated from the Edmonton local board's district, forming its own local board. Edmonton became an urban...
, EnfieldMunicipal Borough of EnfieldEnfield was a local government district in Middlesex, England from 1850 to 1965.The parish of Enfield adopted the Public Health Act 1848 in 1850, and formed a local board of health of 12 members to govern the area. The local board's area was reconstituted by the Local Government Act 1894, and...
, FinchleyMunicipal Borough of FinchleyFinchley was a local government district in Middlesex, England, from 1878 to 1965. It formed part of the northern suburbs of London and was within the Metropolitan Police District and London Passenger Transport Area. Its former area now forms part of the London Borough of Barnet.-Formation:The...
, Friern Barnet, GreenfordGreenford Urban DistrictGreenford Urban District was an urban district of Middlesex, England from 1894 to 1926.It was formed from the parishes of Greenford, Perivale and West Twyford. It replaced the Brentford rural sanitary district, which covered these parishes....
, Hampton WickHampton WickHampton Wick is a Thames-side area, formerly a village, in the London Borough of Richmond upon Thames in London, England.Famous for its market gardens until well into the twentieth century, it is now commuter-belt territory, housing developments having been built on these areas...
, Hanwell, Harrow-on-the-Hill, HendonMunicipal Borough of HendonHendon was an ancient civil parish of around which included Mill Hill, as well as Golders Green and Childs Hill. In 1894 it was created an urban district of Middlesex and in 1932 it became a municipal borough...
, Heston & Isleworth, Kingsbury, Southall-NorwoodMunicipal Borough of SouthallSouthall was a local government district in the county of Middlesex, United Kingdom from 1891 to 1965. It consisted of the civil parish of Norwood....
, SouthgateMunicipal Borough of SouthgateSouthgate was a local government district of Middlesex from 1881 to 1965. It was part of the London postal district and Metropolitan Police District....
, TeddingtonTeddingtonTeddington is a suburban area in the London Borough of Richmond upon Thames in south west London, on the north bank of the River Thames, between Hampton Wick and Twickenham. It stretches inland from the River Thames to Bushy Park...
, TottenhamMunicipal Borough of TottenhamTottenham was a local government district in north east Middlesex from 1850 to 1965. It was part of the London postal district and Metropolitan Police District....
, TwickenhamMunicipal Borough of TwickenhamTwickenham was a local government district in Middlesex, England from 1868 to 1965.Twickenham Local Government District was formed in 1868, when the civil parish of Twickenham adopted the Local Government Act 1858. The district was governed by a local board of 27 members.The Local Government Act...
, Wealdstone, WembleyMunicipal Borough of WembleyWembley was an urban district and later a municipal borough in Middlesex, England from 1894 to 1965.Wembley Urban District was created by the Local Government Act 1894 from part of the existing Hendon Rural Sanitary District, and originally consisted of two civil parishes: Kingsbury and Wembley...
, WillesdenMunicipal Borough of WillesdenWillesden was a local government district in the county of Middlesex, England from 1874 to 1965. It formed part of the Metropolitan Police District and London postal district...
and Wood GreenMunicipal Borough of Wood GreenWood Green was a local government district in south east Middlesex from 1888 to 1965.Until 1888 Wood Green was part of Tottenham, and was included in the district of the Tottenham Local Board in 1850...
. - In Surrey: the municipal boroughs of Kingston on ThamesMunicipal Borough of Kingston upon ThamesKingston upon Thames was a local government district in north east Surrey, England from 1835 to 1965 around the town of Kingston upon Thames. It was alternatively known as Kingston on Thames. It was a municipal borough and also held the rarer status of Royal borough...
, Richmond and WimbledonMunicipal Borough of WimbledonWimbledon was a local government district in north-east Surrey from 1866 to 1965 covering the town of Wimbledon and its surrounding area. It was part of the London postal district and Metropolitan Police District....
; and the urban districts of BarnesMunicipal Borough of BarnesBarnes was a local government district in north west Surrey from 1894 to 1965.It was formed as an urban district in 1894 and became a municipal borough in 1932....
, Beddington & WallingtonMunicipal Borough of Beddington and WallingtonBeddington and Wallington was, from 1915 to 1965, a local government district in north east Surrey, England. It formed part of the London suburbs, lying within the Metropolitan Police District and the London Passenger Transport Area...
, CarshaltonCarshalton Urban DistrictCarshalton was a local government district in north east Surrey from 1883 to 1965 around the town of Carshalton.The parish of Carshalton adopted the Local Government Act 1858 in 1883 and a local board was formed to govern the town. The Local Government Act 1894 reconstituted the area as an urban...
, HamHam Urban DistrictHam was a local government district in north east Surrey, England around the village of Ham from 1894 to 1933.Ham Common Local Government District was formed under the Local Government Act 1858 and was governed by a local board of 8 members...
, The Maldens & CoombeMunicipal Borough of Malden and CoombeMalden and Coombe was a local government district in Surrey, England from 1866 to 1965.New Malden Local Government District was formed in 1866 under the Local Government Act 1858 from part of the ancient parish of Kingston upon Thames...
, Merton & MordenMerton and Morden Urban DistrictMerton Urban District and Merton and Morden Urban District was an urban district in Surrey, England. It was formed in 1907 from the parish of Merton and was expanded in 1913 to take in Morden...
, MitchamMunicipal Borough of MitchamMitcham was a local government district in north east Surrey from 1915 to 1965 around the town of Mitcham.It was created in 1915 as an urban district from part of the abolished Croydon Rural District...
, PengePenge Urban DistrictPenge was a civil parish and a local government district located to the southeast of London, England. It included the settlements of Penge, Anerley and part of Crystal Palace...
, SurbitonMunicipal Borough of SurbitonSurbiton was a local government district in north east Surrey, United Kingdom from 1855 to 1965.Until 1855 Surbiton was administered as part of the parish of Kingston upon Thames. In that year a body of improvement commissioners was formed by a local act of parliament to govern the area...
and SuttonMunicipal Borough of Sutton and CheamSutton and Cheam was a local government district in north east Surrey, England from 1882 to 1965.Sutton Local Government District was formed on 20 December 1882, when the parish of Sutton adopted the Local Government Act 1858...
.
Within this area two rates would be levied: an Equalisation Rate (General) of 1 shilling and 6 pence in the pound and an Equalisation Rate (Poor) of 1 shilling in the pound. These two rates, it was estimated, would raise about 8 million pounds. The product of the general rate would be distributed among the various local authorities of the equalisation area in proportion to their day population, thereby making those who lived in outer London but worked in the centre, contribute to services in the central boroughs. The product of the poor rate was to be distributed in proportion to the night population of each poor law union
Poor Law Union
A Poor Law Union was a unit used for local government in the United Kingdom from the 19th century. The administration of the Poor Law was the responsibility of parishes, which varied wildly in their size, populations, financial resources, rateable values and requirements...
: one third being distributed generally and two thirds to unions containing overcrowded areas. These were defined as areas where the population density was more than two persons per room.
The commissioners noted that their scheme could be put into operation rapidly using figures already gathered, and did not involve the creation of any new local or central authorities or officers. It would also discourage excessive expenditure as there would be a uniform rate across the capital and no single local authority would benefit from a general increase.
Hiley and Talbot
Hiley and Talbot did not sign the majority report, noting that its "suggestion merely for some kind of coordination of services through the machinery of an advisory committee seems to us altogether inadequate".In their view the local government of the capital did need to be reorganised. They felt the area was too large to be administered by a single authority. They therefore recommended the division of Greater London into a number of authorities, "with a status approximating those of county boroughs". Certain functions would, however, be reserved to a "central authority". Examples of London-wide functions were tramways, water supply and main drainage. They did not go into detail of either the areas of the proposed boroughs nor the exact division of functions between the two tiers which they recognised would take considerable work to define.
Donald and Walsh
Donald and Walsh were unable to sign either report, instead producing a 62 page document of their own. Their reasons were that they felt they could not fulfill their commission without recommending a thorough reform of local government, rather than the appointment of ad hocAd hoc
Ad hoc is a Latin phrase meaning "for this". It generally signifies a solution designed for a specific problem or task, non-generalizable, and not intended to be able to be adapted to other purposes. Compare A priori....
advisory committees or authorities.
They proposed a single central authority for the entire Greater London area (the Metropolitan Police District with slightly modified boundaries). This would replace a number of overlapping authorities including the London County Council and Metropolitan Asylums Board and would be directly elected except for one sixth of the body, who would be aldermen
Alderman
An alderman is a member of a municipal assembly or council in many jurisdictions founded upon English law. The term may be titular, denoting a high-ranking member of a borough or county council, a council member chosen by the elected members themselves rather than by popular vote, or a council...
appointed by the authority itself. The authority would have powers over public transport, town planning, large housing schemes, main drainage, sewage disposal, higher and specialised education, water supply, hospitals, fire protection, large parks and open spaces, wholesale markets and smallholdings. A lower tier of local authorities would be formed based on existing areas: metropolitan boroughs, municipal boroughs, urban districts and rural districts, but each having equal powers and status. They would have enhanced powers, for instance taking over the duties of poor law guardians
Board of Guardians
Boards of guardians were ad hoc authorities that administered Poor Law in the United Kingdom from 1835 to 1930.-England and Wales:The boards were created by the Poor Law Amendment Act 1834, replacing the parish Overseers of the Poor established under the old poor law, following the recommendations...
and becoming the elementary education authority for their area.
Resulting legislation
The only part of the report that was acted on was in the area of public transport. Colonel Wilfrid Ashley, the Parliamentary Secretary to the Ministry of TransportParliamentary Secretary to the Ministry of Transport
Parliamentary Secretary to the Ministry of Transport was a junior position at the British Ministry of Transport. The office was renamed Parliamentary Secretary to the Ministry of War Transport in 1941, but resumed its former name at the end of the Second World War.-Parliamentary Secretaries to the...
put forward proposals in July 1923 that:
- The Ministry should become the traffic authority for an area with a radius of 25 miles from Charing Cross.
- An advisory committee be formed of representatives of the local authorities, police and other interests.
- The Ministry would act in coordination with the advisory committee.
- The advisory committee should consist of between 15 and 21 members and be constituted as recommended in the majority report.
Legislation to put this into effect was delayed due to a confused political situation. A draft bill was prepared just before the minority Conservative
Conservative Party (UK)
The Conservative Party, formally the Conservative and Unionist Party, is a centre-right political party in the United Kingdom that adheres to the philosophies of conservatism and British unionism. It is the largest political party in the UK, and is currently the largest single party in the House...
government of Stanley Baldwin
Stanley Baldwin
Stanley Baldwin, 1st Earl Baldwin of Bewdley, KG, PC was a British Conservative politician, who dominated the government in his country between the two world wars...
collapsed in January 1924 and was replaced by a Labour Government under Ramsay McDonald. By the middle of March the new government had agreed to introduce the bill, virtually unchanged, to parliament without delay. The London Traffic Bill
London Traffic Act 1924
The London Traffic Act 1924 was an Act of the parliament of the United Kingdom. The purpose of the Act was stated to be the facilitating and improving the regulation of traffic in and near London.-Background:...
, creating a London and Home Counties Traffic Advisory Committee
London and Home Counties Traffic Advisory Committee
The London and Home Counties Traffic Advisory Committee was established in 1924 to advise the Minister of Transport on issues concerning traffic and transport in the London Traffic Area. It was abolished in 1965....
for a defined London Traffic Area
London Traffic Area
The London Traffic Area was established by the London Traffic Act 1924 in order to regulate the increasing amount of motor traffic in the London area...
was introduced to the United Kingdom House of Commons on 26 March. The bill cleared all stages of parliament by August, and came into effect on 1 October 1924.