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pean countries there is likewise consolidated local governments for larger cities.

New York City includes five counties. In Philadelphia and San Francisco the city and county are identical in area. Baltimore and St. Louis combine city and county functions. Boston includes most of Suffolk County. In all of these cases, the city government includes some county functions and absorbs some county officers. In Denver, city and county government have been more thoroughly consolidated. In the District of Columbia, a single government exercises some of the functions elsewhere divided between the city, county and state.

In Virginia, all cities are excluded from the counties; and the city government provides for county functions. Several state constitutions authorize the larger cities to be organized as separate counties; in Michigan and Missouri, cities over 100,000; in Minnesota, cities over 20,000. The California constitution contains a general provision authorizing city and county consolidation, as well as special provisions for San Francisco and some other counties.

Plans for city-county consolidation have been actively urged in recent years for a number of larger American cities. Proposed constitutional amendments for this purpose have been presented in Ohio and Oregon; and definite proposals have been urged in Los Angeles and Alameda counties, California.

In England, municipalities of over 50,000 population are regularly organized as county boroughs. In Prussia, most cities of over 25,000 are classed as Kreis-stadte, combining the functions of the city and the local district known as the circle; and there are somewhat similar arrangements in Bavaria. Several Swiss cantons are predominantly urban; and in the Basel-stadt the municipal and cantonal functions are combined.

In Paris, the municipal government is partly combined with that of the Department of the Seine. In that city, and also in Vienna, are permanent administrative districts within the city, which may suggest methods for preserving the identity of local districts in the suburbs of Chicago.

In Appendix No. 4 will be found a tentative proposal prepared by a special committee of the Chicago city council. It will be noted that this proposal relates primarily to municipal home rule, a subject dealt with in Bulletin No. 6 of this series. If the policy of municipal home rule is to be adopted, it would probably be made applicable to other cities as well as to Chicago, although some provisions relating specifically to Chicago might be necessary. Under the amendment of 1904 Chicago problems may now be dealt with by special legislation

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II. LOCAL GOVERNMENTS IN COOK COUNTY.

Introduction. Much the most important and most complex array of local governments in Illinois is that in Chicago and Cook County; and it has been said that probably no other community in the world presents a more confusing complexity. Within the City of Chicago there are no less than 38 distinct local governments, most of them independent of one another. Outside of the city and within the larger area of the Sanitary District of Chicago there are 162 other local governments. Beyond the Sanitary District there are 192 additional local governments within Cook County. Upon the map which faces this page will be found an outline of the local areas which are most important from the standpoint of the problem of consolidation. This map is printed here through the courtesy of the Chicago Bureau of Public Efficiency. In the aggregate there are 392 separate agencies of local government in Cook County, as shown in the table below: Local Governments in Chicago and Cook County.

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a-Cook County and the Forest Preserve District, which are co-extensive, extend beyond the limits of Chicago, although not shown in columns two, three, and four. The area of Chicago is 200 square miles; of the Sanitary District, 390 square miles; and of Cook County, 993 square miles.

b-Includes part of Elgin, which is largely in Kane County. -Eight wholly within, and 6 partly within Chicago.

are partly outside the Sanitary District).

d-Includes 6 partly outside the Sanitary District.

(Three of the latter

e-Does not include 9 partly within the Sanitary District. f-Does not include 6 partly within Chicago.

g-Includes 5 partly outside the Sanitary District, and Cicero, which is also counted as a town.

i-Includes Cicero, which is also counted as a town, and 3 partly outside Cook County.

j-Includes 2 partly outside Chicago.

k-Does not include 2 partly in Chicago.

1-Includes 2, (Elgin and Hinsdale) partly outside Cook County.

m-Includes 19 partly outside the Sanitary District.

n- -Does not include 19 partly within the Sanitary District.

o-Includes 4 and the non-high school district, which are partly outside the Sanitary District

p-Does not include 4 and the non-high school district, which are partly within the Sanitary District.

q-Cicero, included both as a town and a village, is counted only once in the

totals.

h-Does not include 5 partly within the Sanitary District; includes 3 partly outside Cook County.

This table shows the number of distinct governing and taxing authorities, each composed of a varying number of officials and supervising a larger number of subordinate officials and employees.

Before examining more closely this aggregate of existing local agencies, it may be well to note briefly some of the principal steps in their development.

Cook County, the oldest of the local government agencies, was established in 1831. It included at that time, not only the present area of the county, but also the territory of Lake and Du Page Counties, the northern half of Will County, and a small portion of what is now in McHenry County. In 1836 Will and McHenry counties were organized, the latter including the present area of Lake County; and in 1839 Du Page County was organized; and Cook County was reduced to the present limits.

The town of Chicago was incorporated in 1833 and four years later it received its first city charter with enlarged limits. The area of the city has been enlarged from time to time by annexations, at first of territory not previously incorporated, but since 1889 largely by the absorption of neighboring villages, several townships and the city of Lake View.

The school laws of 1841 and 1845 had provided for the formation of school districts in the townships outside of the city. In 1849, Cook County voted, with other northern counties, to adopt the new system of township organization. The townships were superimposed on the former governments, the city of Chicago falling within three townships. Several new townships have been organized within those first established.

While Blue Island had been incorporated in 1843 and Evanston in 1857, there was little tendency to establish other incorporated municipalities until the decade before 1870. But by the latter year, ten additional suburban municipalities had been organized, including the towns of Lake View, Hyde Park and Jefferson, and the villages of Glencoe and Winnetka. After 1870 the formation of villages proceeded more rapidly: 10 more were organized before 1880, and 10 others before 1890. Since the latter date, the process has been still more rapid. 26 villages were established from 1890 to 1899, 14 in the following decade, and 15 since 1910. A number of other villages appear to have existed for which no record is available. Altogether there has been about 90 incorporated towns, villages and cities established within Cook County.

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