[Footnote 176: From an estimate which has been made, the three Cla.s.ses mentioned in division IV. might be made to produce above 100,000_l._ for Police purposes, in addition to what is received at present from p.a.w.nbrokers, and Horse Dealers.--The chief part would arise from the transfer of Horses.]

VII. It would be the duty of the Commissioners to superintend, with great strictness, the conduct of their Subordinate Officers, both in the Town and Country Districts, and to be careful that those who were entrusted with the collection of the Licence Duties gave proper Security;[177] and that in their conduct, in Surveying and Watching the Movements of the different Dealers, they manifested the greatest degree of vigilance, prudence, and discretion.--Above all, that they were regular in their Payments, and remittances, so as not to incur the penalties inflicted by the proposed Act on defaulters.

[Footnote 177: The most oeconomical mode would, apparently, be to consolidate in one person the office of _Constable_ and _Collector of the Licence Duties_ in the respective Districts; having it understood that the poundage received on the money paid to the Board, should not only be considered as a remuneration for the Collection, but also as a reward for occasional Services in the general Police Department.--By such an arrangement, a chain of Select and reputable Officers may be established all over the Country, without being felt as a burden of any kind on the Community; while those Services under the general arrangements of the Board, could not fail to be productive of infinite benefits in the well-ordering of Society.]

VIII. To correspond with the Select Magistrates in every District in the Kingdom, and not only to receive from them useful information, relative to offences which have been committed, and all other matters within the scope of the Functions of these Select Magistrates; but also to give them their advice and a.s.sistance in every case where it is found necessary, for the purpose of the preservation of peace and good order, and the due administration of the Laws; and particularly as it may apply to those Select Magistrates who reside near the Sea-Coasts of the Kingdom, that in all cases of Shipwreck, measures may be pursued, and the laws enforced, to prevent those horrid barbarities, pillage and spoliation, which have, to the disgrace of civilized Society, prevailed on such melancholy occasions.[178]

[Footnote 178: The Registers of our Courts of Record, and other well-attested accounts, have developed scenes of unfeeling Cruelty and Rapacity, in cases of Shipwrecks, which would have disgraced the rudest and most ferocious Savages, and would lead a Stranger to suppose that we have no Laws for the prevention of such outrages.]

IX. To make arrangements with the Select Magistrates in the Country, relative to the due execution of the proposed General Police Act, with respect to the Control over the persons Licenced, and all other Duties which may be required under such a Legislative System.

X. To obtain accurate Information, by means of regular returns from Clerks of a.s.size, Clerks of the Peace, Keepers of Prisons, Houses of Correction, Penitentiary Houses, and other places of Confinement; and to have constantly in view the state of delinquency in the Metropolis, and in every part of the country; preserving such accounts in registers for the purpose of reference, as occasions might arise to render them useful to public Justice.--To a.s.sist the acting Magistrates in Town and Country by conveying all useful information applicable to their local situations, respecting the commission of crimes, and the detection of offenders, and which might tend to the prevention of disorders, or offences meditated against the Laws.

XI. To watch the proceedings of the herds of criminal delinquents who generally leave Town every year in the month of March, after the drawing of the English Lottery, for the purpose of attending _fairs_, _races_, and other places of amus.e.m.e.nt and dissipation in the country, carrying with them quant.i.ties of _base Money, and EO Tables_, with a view to commit frauds on the unwary--And to give notice to the Select local Magistrates, that they and their officers may be upon their guard in defeating the nefarious designs of these miscreants, who are often disguised as farmers and labourers, the better to enable them to effect their purposes, by cheating and stealing, particularly _horses_, to the great loss and injury of the country.

XII. It is recommended by the Select Committee of the House of Commons, that the Commissioners of this Central Board should have it in their power to distribute rewards to Constables or others for meritorious services, through the medium of the Magistrates of Police, and to use such other means as should best promote the ends of Justice, and the general utility of the Inst.i.tution to the community.

XIII. Under the direction of the princ.i.p.al Secretary of State for the Home Department, these Commissioners should avail themselves of the knowledge their situation would afford them of the degree of depravity and danger attached to the character of the different convicts; to select such as they thought proper objects for transportation to New South Wales; and to follow any other instructions they may receive for oeconomizing this branch of the criminal Police of the nation, so as, if possible, to reduce the annual expence.

XIV. These Commissioners being authorized by the Lords of the Treasury, might take under their management all matters relative to the Lottery; not only with a view to a more oeconomical mode of drawing the same, but also for the purpose of rendering the Revenue productive to the State, without the evil consequences which at present arise from it to the morals of the lower orders of the people, and the distresses and miseries to which its fascinating delusions subject them.

XV. It would be the duty of the Board, availing itself of the practical knowledge which may be obtained by means of a System of general superintendence in the Police Department, to attend closely to the operation of the whole of the present code of penal Laws, with respect to its efficacy and utility; and where imperfections are discovered, to suggest from time to time such improvements as may appear useful and beneficial to the Police, and to the Revenue.

XVI. The Select Committee in their Report recommend, that the proposed Board should have power "to make Bye-Laws for the regulation of such minor objects of Police as relate to the objects of their superintendence, and to the control of all Coaches, Chairs, Carts, Barrows, and the conduct of all Coachmen and Chairmen, Carters, &c. and the removal and prevention of all annoyances, and the correction of all offences against the cleanliness and quiet, and the free pa.s.sage of the streets of the Metropolis, in like manner as is now possessed, by the Commissioners of Hackney Coaches, and subject to the approbation of the Superior Judges."

XVII. To superintend the general receipts and disburs.e.m.e.nts of the Establishment, and to report the same quarterly to the Treasury, and to the princ.i.p.al Secretary of State for the Home Department.

XVIII. To receive and execute the instructions of the Treasury in all matters respecting Finance and Revenue; and the instructions and directions of His Majesty's Secretary of State for the Home Department in all matters of Police.

XIX. To establish a more correct System through the medium of the Select Magistrates, whereby the Laws for the prevention and punishment of offences may be more effectually and universally carried into execution, and not in many instances remain a dead letter, as at present, to the great injury of the community; or be partially carried into effect in particular parts of the country, against a few individuals, or for mere temporary purposes.

XX. Finally, it will be the duty of the Board to report to his Majesty in Council, and to Parliament (if required) the State of the Metropolis and the Country, with respect to criminal _Police_ in all its branches, so as to bring under the review of the Executive Government _the whole criminality of the Country_, at a given period each year, where it will be accurately discovered whether it increases or diminishes.

Such are the functions apparently necessary to be a.s.signed to the proposed Board of Commissioners, for the purpose of accomplishing the objects of improvement in the Police System, which have been recommended to Parliament by the Select Committee.

These objects are of too much importance to the Public, to the Security of the State, and to the peace and good order of Society, to be lost sight of, even for one moment.

While the morals and habits of the lower ranks in Society are growing progressively worse and worse--while the innocent and useful part of the Community are daily suffering evils and inconveniences originating from this source--while crimes multiply in all instances under the existing systems, (the Thames Police only excepted[179]) it becomes of importance to apply a remedy. In legislating with this view, the same disadvantages and difficulties do not present themselves as in many other cases, since much previous labour and investigation has been bestowed in forming a ground-work for the proposed General Police System.

[Footnote 179: Nothing can be offered as a more irrefragable proof of the utility of a Police Inst.i.tution, such as has been recommended by the Select Committee on Finance, than the effect of the Marine Police Establishment upon the River Thames; where, in spite of a crippled System, and deficient Laws, the energy of the superintendence, and the strength of the Civil force, has, at a very trifling expence, applied with strict oeconomy, worked such a change in the Port of London, both with respect to the security of commercial property, and the Revenue, as would scarcely have been conceived possible. For an Account of this System, see the 8th Chapter of this Work: but for a more enlarged and comprehensive view of the nature and effect of the design, recourse must be had to the Author's _Treatise on the Commerce and Police of the River Thames, &c._ now in the press; in which the whole plan is developed, together with the Legislative System necessary to give permanent effect to the design.]

Under the Sanction of his Majesty's Princ.i.p.al Secretary of State for the Home Department, a Bill has been prepared, in which, while every attention has been paid to the means of accomplishing the views of the Select Committee, nothing can exceed the pains which have been bestowed _in preserving the rights of innocence, and in divesting power of the faculty of abuse_.

A line has been carefully drawn between the _noxious_ and the _blameless_ and useful part of the community; and while the injuries arising from the pursuits of the former are checked and restrained, the privileges of the latter are extended and enlarged. This, when properly contemplated, will be found to be the _true essence of good Police_--and this explains in the shortest compa.s.s that is possible, the _ultimate object of the design_.

The Bill comprehends five divisions:--The _first_ authorizes _the imposition of Licence Duties on certain cla.s.ses of Dealers already enumerated_:--The _second_ establishes a _Board of Police Revenue, and explains its powers and functions_:--The _third_ explains _the powers and regulations which apply to the Licensing System_:--The _fourth_ relates to _penalties_ and _procedure_: and the _fifth_ transfers the functions of _the Commissioners of Hackney Coaches and Chairs, and Hawkers and Pedlars, to the new Establishment, and makes provision for such Officers as may cease to be employed_.--While the proposed duties, although light upon the individuals, promise to be productive to a certain extent; the Licensing System is likely "to purge the occupations placed under control from the imputations which are now but too deservedly cast upon them; and to make them by gradual steps the instruments of detection, instead of the means of concealment, of every species of fraud and violence."[180]

[Footnote 180: See the 28th Report of the Select Committee, page 4.]

The functions of the Board, by comprehending whatever relates to the delinquency of the country, will establish a general responsibility which does not now exist, and which never has existed, with respect to the evils arising from the multiplication of crimes, while their diminution will depend on the zeal, ability, and discretion to be manifested by those to whom this important duty may be a.s.signed.

By this establishment of a general Police System, will it become the duty of one cla.s.s of men to watch over the general delinquency of the Metropolis, and the country;--to check its progress by lessening the resources of the evil disposed to do injuries, and to commit acts of violence on the peaceful subject; and gradually to lead the _criminal_, _the idle_, and _the dissolute_ members of the community into the paths of innocence and industry.

The collateral aids to be derived from this System of Control over Dealers and others of loose conduct, in pursuit of evil courses, will give considerable strength to the Legislative measures which are in contemplation, with respect to the _Police of the River Thames_: _The frauds and plunder in the Naval and other public departments_:--_The Coinage of base Money_, and the _fabrication of counterfeit Bank Notes_.--Whatever has been contemplated for the purpose of checking and preventing these evils cannot be complete or effectual, until the proposed Board is established, and the Licensing System in full action. The control of this Board is absolutely necessary to contribute to the success of the measures proposed, and to the security of public and private property against the present extensive depredations. In fact the whole System is linked together, and its energy and success will depend on the pa.s.sing of the respective Laws applicable to each object of which the Police Board may not improperly be denominated _the key-stone_.

It is this responsible superintendance which is to give _life_, _vigour_, and _effect_, not only to the Laws which are in contemplation, but to many other excellent Statutes which remain at present as _a dead letter_.--Let it once become the duty of one body of men to charge themselves with the execution of the Laws for the prevention of crimes, and the detection of offences--let them be armed with proper and apposite powers for that purpose, and the state of Society will speedily become ameliorated and improved; a greater degree of security will be extended to the peaceful subject, and the blessings of civil liberty will be enlarged.

A new aera in the world seems to have commenced, which imperiously calls for the adoption of such measures; not only in this country, but all over Europe. The evil propensities incident to human nature appear no longer restrained by the force of religion, or the influence of the moral principle.--On these barriers powerful attacks have been made, which have hitherto operated as curbs to the unruly pa.s.sions peculiar to vulgar life: they must therefore be strengthened by supports more immediately applicable to the object of preserving peace and good order.

The period is approaching when to the phalanx of delinquents who at present prey upon Society, will be added mult.i.tudes of idle and depraved characters discharged from the Army and Navy on the return of Peace.--Policy and humanity require that an adequate remedy should be provided for such a contingency.--_Qui non vetat peccare c.u.m possit, jubet._ Where the powers of a State are not employed to avert apparent and threatened evils, a tacit a.s.sent is given to the commission of crimes. On the contrary, where means are used to check the progress of turpitude and vice, and to compel obedience to the Laws, the comfort of Society is promoted, and the privileges of innocence are secured.

If in the accomplishment of the design which has been recommended by the highest authority, these objects shall be gradually attained--If it shall operate in preventing acts of violence and fraud from being committed upon the peaceful subject; while means are discovered through the medium of a well-regulated Police, whereby the unfortunate, and even the idle and the dissolute, may possess a resource for subsistence by honest industry, without having any pretended plea of necessity for resorting to Crimes; great, indeed, would be the benefits which would result to the Public. This would be at once the triumph both of reason and humanity.

The first step is, to attend to the Morals and the Habits of the rising Generation; to adapt the Laws more particularly to the manners of the People, by minutely examining the state of Society, so as to lead the inferior orders, as it were, insensibly into better Habits, by gentle restraints upon those propensities which terminate in Idleness and Debauchery;--to remove temptations, in their nature productive of evil, and to establish incitements to good and useful pursuits.

Among a variety of other Functions which would devolve on the proposed Commissioners, perhaps one might be to offer suggestions to the Executive Government, with respect to such useful Regulations as might arise from the extensive knowledge which they must necessarily acquire as to the condition and pursuits of the labouring People; and hence would result one of the greatest means of preventing Crimes, and improving the Condition of human Life.

But while it is acknowledged to be a vain hope to reduce the tumultuous pa.s.sions of Men to absolute regularity, so as to render the Commission of offences impracticable; it is equally clear (and it is even proved by the State of Society, where Public Morals have been more effectually guarded,) that it is possible to diminish the Evil very considerably.

By the establishment of a well-conducted Board of Police, a confident hope is entertained that this purpose is attainable; and in this view (although it is to take nothing from the present Resources of the State), it is a blessing to the Nation, which could scarce be too dearly purchased at any price.

CHAP. XIX.

_The unparalleled Extent and Opulence of the Metropolis, manifested in the number of streets, lanes, alleys, courts, and squares, estimated at above 8000;--containing above 4000 Churches and Places for religious Worship,--more than 400 Seminaries of Education;--several Inst.i.tutions for promoting Religion and Morality;--11 Societies for promoting Learning, and the useful and the fine Arts;--a great number of charitable Asylums for the indigent and forlorn;--Hospitals and Dispensaries for the lame, sick, and diseased;--and above 1700 Inst.i.tutions of various other kinds for Charitable and Humane Purposes.--A detail of the Courts of Law, and other Establishments connected with the distribution of Justice.--The public Prisons in the Metropolis.--A View of the number of Persons employed in the different departments of the Law, estimated in all at about 7000.--Suggestions for improving the civil Jurisprudence in the Metropolis, so far as relates to the recovery of small Debts.--The Evils arising from the present System, exemplified in the multiplicity of actions for trivial sums in the course of a year; the enormous expence, and the ill effects of the severity of the punishment in such cases; debasing the mind, and proving the destruction of many families, in their morals; and injuring the State.--The necessity of an Alteration of the System, farther enforced by the propriety of relieving the supreme Judges from a weight of labour unreasonable in the vast increase of business, which the extensive and growing intercourse of Commerce occasions.--The same Observations extended to the great Officers of State; and the necessity and utility of a division of labour, in proportion to the increase of public duty, explained; as a means of preventing inconveniences.--A view of the Munic.i.p.al Regulations which have been established in the Metropolis for the accommodation and convenience of the inhabitants; grounded on various acts of the Legislature, pa.s.sed at different periods, during the last and the present century.--Each district of the Metropolis a separate Munic.i.p.ality; where the power of a.s.sessing the inhabitants for the purposes of paving, watching, lighting, cleansing, and removing nuisances, is placed in the hands of Trustees, under a great number of local acts of Parliament.--These regulations mostly founded on Laws made in the last and in the present Reign.--The princ.i.p.al public acts detailed, viz:--The General Act of the 2d William and Mary, cap. 8, for paving the Metropolis;--the 10th Geo. II. cap. 22, for watching the City of London; 11th Geo. III. cap. 29, for removing signs, and establishing a complete System of Munic.i.p.al Police.--The Acts relative to Westminster and Southwark for similar purposes.--The Statutes relative to Common Sewers detailed; their origin, and the great advantages resulting from them.--The Laws relative to Hackney Coaches and Chairs--also to Carts and other Carriages.--The Acts relative to Watermen on the Thames.--The Law for restraining bullock-hunting. And finally, the Regulations by the 14th Geo. III. cap. 78, relative to the Mode of building Houses, and the Rules laid down for extinguishing Fires. Concluding Observations, on the advantages which would result to the Metropolis at large from these numerous Acts of Parliament being rendered uniform, and conformable to the excellent Regulations established for the City of London.--The advantages of simplifying the System.--The burden upon the Inhabitants equal to one million a year for the expence of Munic.i.p.al Police.--Suggestions for improving the System and reducing this expence.--Concluding Reflections.--The present epoch, more than any other, presses for arrangements calculated to amend the Morals of the People, by improving the Laws of the Country._

It cannot fail to prove an interesting inquiry, not only to the inhabitants of the Metropolis, but also to Strangers, by what means that department of its oeconomy and government, which may be denominated _Munic.i.p.al Police_, is regulated; so as to convey the comforts, and procure the various accommodations and conveniences which, with some few exceptions, are felt to exist in every part of the Capital and its environs.

When it is known that this great City, (unparalleled, as will be hereafter shewn, in extent and opulence, through the whole habitable Globe,) comprehends, besides _London_, _Westminster_, and _Southwark_, no less than forty-five Villages, now exceedingly inlarged, independent of a vast accession of buildings upon the open fields in the vicinity; it becomes less a matter of surprize, to learn, that it extends to nearly eight miles in length,--is three miles at least in breadth, and not less than twenty-six in circ.u.mference; containing above eight thousand streets, lanes, alleys, and courts, and sixty-five different Squares; in which are more than one hundred and sixty thousand houses, warehouses, and other buildings; besides _Churches_ and _Chapels_ for religious worship, of which the following enumeration is imagined not to be very distant from truth:--

For Religious Instruction.

Of the Established 1 Cathedral, dedicated to St. Paul.

Religion. 1 Abbey Church of St. Peter, Westminster.

120 Parish Churches.

120 Chapels, and Chapels of Ease.

--- 242

Meeting-houses for { Consisting of Chapels for Methodist Dissenters. { Nonconformists, Presbyterians, 150 { Independents, Anabaptists, { Quakers, and English Roman { Catholicks.

{ Consisting of Chapels for French, { German, Dutch, Swedish, Danish, Chapels and { and Helvetic Protestants, Meeting-houses for 30 { for Foreign Roman Catholics, Foreigners. { and those of the Russian or { Greek Church.

Synagogues 6 for the Jewish Religion.

--- _Total about_ 428 _Places of Public Worship._

The number of Inhabitants of this great Metropolis, occupying these various houses and buildings, may, under all circ.u.mstances, be rationally estimated at one million at least; for whose accommodation, convenience, and security, the following Inst.i.tutions have been formed, _namely_,--1st. _For Education_;--2d. _For promoting good Morals_;--3d. _For useful and fine Arts_;--4th. _For objects of Charity and Humanity_;--5th. _For distributing Justice_;--and 6th.