Twentieth-century economic and political administration emphasized several characteristics, including a centralized, permanent bureaucracy staffed by skilled experts, and a commitment to long-range, comprehensive planning. These served as goals for many political reformers during the late-nineteenth and early-twentieth centuries. Thus, if seeking the origins of modern municipal administration, especially if searching for the beginnings of so-called "comprehensive" city planning, scholars can do no better than to explore competing technological systems and ideas in cities over the last half of the nineteenth century. Sewers become important after all.
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The discovery during the 1880s that many diseases, especially the
killer typhoid, were waterborne accelerated campaigns for pure water, for sewer construction, and for the filtration of both water and sewage. In 1890 only twenty-six cities among those of 10,000 population or more had no sewers at all. By 1907, nearly every city in the nation had sewers. The filtration of water and sewage brought a dramatic drop in typhoid mortality rates, a drop that averaged sixty-five percent in selected major cities. The sewer gas theory, then, together with other theories and medical discoveries, lent weight to the arguments favoring technological solutions to public health problems. The lessons were clear. Water and sewer systems were a city's lifelines. As such, they were too vital to be left to either the good intentions or the caprices of private enterprise alone. On this point the opinion of the Massachusetts Drainage Commission of 1884-1885 was firm and typical of attitudes developing in a number of cities and states. The commission recommended that "the supervision of matters pertaining to water supply, sewerage, and the pollution of waters generally, be assigned to some board... to enable it to introduce system and method in these important departments of the common welfare." Municipal construction and control of water and wastewater systems grew so in public acceptance over the last three decades of the century that by 1910 the standard text on urban public health, Municipal Sanitation in the United States by Charles V. Chapin, could state succinctly: "Even the need for sewers has scarcely to be urged by health officers. The public so well appreciates their advantages that they are usually demanded when needed, even if they must be entirely paid for by the abutters." Chapin also pointed out that cities rarely called upon health officers to advise about sewer construction. "In recent times," he noted, "since sewers have been constructed by the municipality and with engineering advice, details have been wisely left to the engineers."
By "wisely" leaving the matter to engineers, city administrators
accomplished at least three results. First, they recognized and supported the growth of a new profession in the United States--municipal engineering. Second, they set in motion processes that ultimately would help restructure the organization of urban governments. Third, local administrations and the public at large implicitly came to accept the concept of comprehensive city planning, if not always the actual practice. From city-wide water and sewer systems to plans for every feature of the urban physical environment was but a short step of the imagination. A major engineering journal developed this logic in 1877:
"If the grading, drainage, paving, cleansing, and policing of towns are worthy of careful and systematic control, so are also the general shaping of the towns, the preservation or destruction of the natural features of their sites, and the distribution of their population and residence. Just what are the proper limits of public interference in such matters is a political question upon which we cannot venture; but public neglect has shown itself to be both costly and pernicious."
An examination of their part in reshaping the urban physical environment will underscore the importance of engineers to governmental reorganization and to city planning.
To Engineer the Metropolis: Sewers, Sanitation, and City Planning in Late-Nineteenth-Century America, The Journal of American History, 1978, Stanley K Schultz and Clay McShane