{ Quay Guards 30
---
Total Civil Force of the Marine Police Establishment
when the West-India Fleets are in port 221]
Of these 1040 Officers the Reader will observe, that only 89
(exclusive of the thirty-two extra officers in the City of London; and
the sixty-eight patroles at Bow-street; making in the whole no more
than 189,) _are Stipendiary Officers_, particularly pledged to devote
their whole time to the service of the Public:--and hence a question
arises, Whether so small a number are sufficient for the purpose of
watching and detecting the hordes of villains who infest the
Metropolis, and who must be considerably increased on the return of
peace?
Little assistance can be expected under the present System from
parochial officers; who, depending on their daily labour principally
for their support, can afford to devote no more time than is
absolutely necessary for their indispensable duties, during the 12
months they are in office: and more especially since Magistrates have
no power, or funds, to remunerate such parochial officers for
extraordinary exertions in the Public service, however meritorious
they may be;--hence it is, that their zeal and activity are checked in
many instances; when under proper regulations (such as are hereafter
suggested) and subject to a certain degree of control and discipline,
and properly remunerated for their services they might be rendered
extremely useful. These facts, joined to the further elucidation of
this particular branch of the subject, it is earnestly to be hoped,
may produce an arrangement of more _energy_ and _effect_ than exists
under the present system.
Officers of Justice, who are subjected not only to considerable risks,
but also to want of rest, and to the inconvenience of being exposed
much in the night-time, ought certainly to be liberally paid; so as to
make it an object to _good_ and _able men_ even to look up to such
situations.
It having been thus shewn that the Stipendiary Constables are so
inconsiderable in point of numbers, and their duty confined to
particular objects, it follows that on the parochial officers the
Public ought, in a considerable degree, to depend for the general
prevention of offences, and particularly for defeating the crafty and
iniquitous devices which are resorted to for the purpose of evading
the operation of justice.--These men also from their local knowledge
are, or ought to be, best qualified to procure accurate information,
and to supply what may be necessary to enable Magistrates to discharge
their duty with advantage to the Community, and by this means they
might be rendered useful auxiliaries to the existing Police.
It would seem, therefore, of the highest importance that arrangements
should be formed, calculated to give to these constitutional
safe-guards of the peaceful subject, that utility, energy, and effect,
which originally resulted from the exercise of their functions,--which
the present state of Society imperiously calls for, and without which
the preventive System of Police can never be effectual.
On looking accurately into the nature and effect of the institution of
Constables, it will be found that the vigor and efficacy of the Civil
Power, the security of innocence,--the preservation of good order, and
the attainment of justice, depend in a great measure on the accuracy
of the System, with respect to these Officers assigned to keep the
peace in the respective parishes of the Metropolis; and it is because
the original spirit of the design has been, in so many instances,
abandoned that crimes have multiplied, and that the public are so
insecure.
The evil, however, admits of practicable remedies, which the
Superintending Board of Police, recommended by the Select Committee
of the House of Commons, might considerably facilitate, by methodizing
the general design, and giving strength, intelligence, and uniformity
to the whole.
Preparatory to this object, however, the System in the respective
parishes must be greatly improved, before a co-operation can be
expected that will prove extensively beneficial to the Public.
The first step to be pursued, is to establish a fund for the
remuneration of Constables of every description. It will not be
difficult to demonstrate that a resource may be found for this
purpose, which will not impose any new burden on the Country, provided
these Officers do their duty.
The enormous expence at present incurred, and which is either defrayed
from the County Rates, or the general Revenue of the Country, arises
chiefly after offenders are detected and punished. Out of 234,153_l._
a year stated by the Committee on Finance, to be the annual amount of
the Police expences, only 26,183_l._ is incurred previous to
detection.--By diminishing crimes, therefore, the chief part of the
burden upon the Country will be taken away; and hence in this saving
will be established a resource for the remuneration of those who may
contribute to so important an object.
The present expenditure of the County Rates for criminal offences, is
estimated to amount to 50,000_l._ a year. In proportion as offences
diminish, through the medium of a well-organized and energetic
Police, will this burden upon the Poor Rates also be diminished.
Independent, therefore, of the policy of improving the system with
respect to parochial Constables, by attaching a greater degree of
responsibility to their situation, and introducing that discipline and
systematic activity, which can alone render their services
effectual--the plan may even be recommended as a proper arrangement in
point of oeconomy.
It is in vain to expect energy or attention in the execution of any
Public duty, unless there be that personal responsibility which is not
to be obtained without emolument. To render Officers of Justice,
therefore, useful to the Public, they must be stimulated by
interest:--they must, in fact, be paid for devoting a portion of their
time to the comfort and security of others. The Law may inflict, and,
indeed, has inflicted, penalties for the neglect of specific duties;
but this will not establish that sort of Police which the present
state of Society requires.--This is strongly exemplified in what may
not be improperly called the _Mockery of Police_, which is exhibited
in the periodical presentments by Constables, of public grievances and
nuisances, before the Grand Inquest, four times a year at
Westminster-hall, and twice before the Magistrates of the Sessions
held at Guildhall in the City of Westminster. These presentments,
although in themselves of the highest importance, have degenerated
into what may now be considered as an useless and burdensome
formality; at best it is a tedious, expensive, and circuitous, mode of
removing nuisances and inconveniences, and so ill-suited to the
present state of Society, that several modern parochial Acts have
given relief in a summary way before Magistrates.
The fact is, that in a great majority of instances where presentments
are made, the evils they describe, though often highly prejudicial,
are suffered to accumulate with increasing malignity, at the same time
frequently generating other mischiefs and pressures of a tendency
equally pernicious to the Community.
It is admitted, that the proper Officer of the Crown notifies to the
parties implicated in the presentment, the determination of the
Inquest; but a prosecution seldom ensues. The Constable has neither
money nor time to follow it up; and the matter is discharged when the
customary term expires, on the payment of a Fee of 16_s._ 9_d._ or
more, according to the length of the presentment; and thus the
business terminates in the emolument of an individual, and in the
continuance of the abuse.
The same system prevails at the Sessions at Westminster. When Juries
make presentments of nuisances or evils in their respective districts,
the Constables have general orders to prosecute, which is not done;
and, indeed, to compel an Officer serving gratuitously, to incur an
expence for the Public interest which he cannot afford, would be an
act of manifest injustice; and unless a fund be provided in numerous
cases, he must be under the necessity of declining such prosecutions.
But would it not be far better to bring such minor offences at once
under the cognizance of Magistrates, with the power of appeal to the
Quarter Sessions?--This is already the case in Spitalfields, under a
parochial Act, where nuisances and annoyances are in consequence
instantly removed. Matters of much greater importance are submitted to
the same authority. The advantage in this case would be, that justice
would be promptly administered at a small expence, and the evil would
be put an end to, instead of remaining as at present a reproach to the
Police, arming at the same time every noxious and bad member of
Society, with a kind of licence to do offensive acts to the
neighbourhood, and the Public at large, with impunity.
To render parochial Constables useful, rules must be established to
compel every qualified person to serve in his turn, or pay a fine. No
person should be empowered to offer a Substitute.--It is of the
highest importance that an Office invested with so much power should
be executed by reputable men, if possible of pure morals, and not with
hands open to receive bribes.--This important office in the Metropolis
at least, has too long been degraded by the introduction, in many
instances, of men of loose principles, undeserving of public
confidence. The reason is obvious:--A man in the more reputable
classes on whom the lot may fall, surrenders his functions to a
Substitute who probably makes the office a trade;--performs the
service of the year for four or five Guineas, trusting to other
emoluments, many of which are obtained by corruption, to enable him to
subsist.
To render this branch of Police pure and efficient, an Act of
Parliament should enforce the following or similar regulations:
1st. To assign a competent number of local Constables to
each parish, in proportion to the number of inhabited
houses; to be chosen by the whole number of qualified
inhabitants paying parish Rates--to be presented to the
Court Leet, or to the Magistrates of the Division, according
to a prescribed rule, which shall preclude the possibility
of exemptions or preferences; for which purposes the
qualifications shall be clearly defined in the Act.--Thus
might the abuses which at present prevail, in the selection
and choice of Constables, cease to be felt and complained
of: an equal distribution of the burden would take place,
and the duty be confined to men sufficiently respectable, to
establish in the Public mind a confidence that it would be
executed with fidelity, and an attention to the Public
interest.
2d. That with a view to that necessary discipline, and
knowledge of the duty to be performed, without which
Officers of Justice can be of little use, and may often be
converted into instruments of oppression by an abuse of
power; the High-Constable of the Division shall become _a
responsible permanent Officer_, with a competent Salary; and
shall have under his direction certain subordinate Officers,
not exceeding _one for a large Parish_, and _one for every_
25 _Constables in any number of smaller Parishes, Hamlets,
Precincts, and Liberties_, who shall be stiled _the
Parochial Chief Constable_, whose situation shall also _be
permanent_, with a moderate Salary, and who shall each be
_responsible_ for the execution of the regular duty which
may be assigned to the petty Constables, either by the Act
of Parliament, or by the Commissioners of Police, having
powers for that purpose granted by law.--That a certain
stipend or gratuity for trouble, shall also be paid to each
of the petty Constables, in consideration of the ordinary
duty they are bound to perform, besides 5_s._ a day for all
extraordinary duty. That among other things it shall be the
business of the parochial Chief Constable to instruct the
petty Constables in their duty--to attend them in their
perambulations, and to marshal them on receiving a precept
from the High-Constable, or an order from two Magistrates,
in case of any tumult or disorder requiring their
interference--to impress upon their minds the necessity of
purity, vigilance, and attention to orders--and of being
humane, prudent and vigorous, in the execution of such
duties as belong to their functions.--That they shall
instantly assemble on any alarm of Fire.--That the
Public-houses, in the parish or district, shall be visited
regularly; and also the Watchmen while upon duty, and
regular returns made to the Police Magistrates of the
District, stating the occurrences of the night. That
wherever suspicious characters reside in the parish, who
have no visible means of supporting themselves, the utmost
vigilance shall be exercised in watching their conduct, to
prevent as much as possible the commission of crimes, and to
preserve peace and good order in the parish; and wherever
the execution of any specific law depends on Constables, the
utmost attention to be manifested in giving it effect, and
preventing it from remaining a dead Letter.--That care be
taken to make regular, impartial, and accurate returns of
Jurors; and of persons eligible to serve in the
Militia;--and that immediate cognizance be also taken of all
nuisances and annoyances, and timely notice given to
Magistrates of all occurrences threatening to disturb the
Public peace, or to overturn the established Government of
the Country.
3d. That the different High Constables should return to the
Commissioners of Police annually, after a change of Officers
has taken place, a list of the number of persons who compose
the Civil Force, under their direction in their respective
divisions; and regularly, every quarter, a list of the
Publicans, with such facts as have occurred, respecting
their orderly or disorderly conduct in the management of
their Houses.--The state of the Division with respect to
Prostitutes--to the situation of the Poor for the preceding
quarter, and their resource for employment.--The number and
nature of the offences committed in the District during the
preceding quarter, and the detections of the delinquents,
shewing how many offenders have been discovered, and how
many have escaped justice, and stating the means used and
using to detect such as are at large, charged with specific
offences within the division: so as to bring under the
review of the Central Board a clear statement of the
criminal Police in every part of the Metropolis on the first
day of each quarter, with such other information as the
Commissioners may require.
4th. It is humbly suggested, that the Salaries and
allowances to be paid to the _High Constables_ and
_parochial Chief Constables_ should be paid out of the
General Police Fund, under the Management of the Board, and
the gratuities and allowances to the petty Constables out of
the County Rate.
It might be expedient that the Stipend of the petty Constables should
be very moderate, and that their remunerations should, partly at
least, arise from _premiums_ and _gratuities_, granted by the Judges
and Magistrates, for meritorious services to the Public, _actually
performed_; for which there would so many opportunities occur, that no
fit man, acting as a Constable under such a system, and doing his duty
conscientiously, need be under any apprehension of obtaining a very
comfortable livelihood.
The invariable rule of rewarding, in every case where it can be made
appear that any useful Public service has been performed, would have a
most wonderful effect in preventing crimes: The expence, if
judiciously and oeconomically managed, need not exceed, in any
material degree, _the present aggregate_ of what is disbursed in
different ways, in all the branches of the Police and Criminal
Establishment; it might, in fact, be defrayed, as well as every other
charge, _by the Police itself_, under the direction of the _Central
Board_, hereafter more particularly alluded to, from the produce of
the _Licences_ proposed to be granted for regulating particular
classes of Dealers, by whose aid and assistance, in supporting Thieves
and Pilferers, such a system is rendered necessary.
Nor should the rewards be wholly confined to Officers of Justice,
either _parochial or stipendiary_. The Public Good requires, that they
should extend also to Watchmen and Patroles, who should have every
reasonable encouragement held out to them to be honest and vigilant,
by small premiums paid down immediately, for every service they may
render the Public; either in detecting or apprehending persons who are
guilty of felonies, or other offences against the public peace.
At present, the watchmen destined to guard the lives and properties of
the inhabitants residing in near _eight thousand_ streets, lanes,
courts, and alleys, and about 160,000 houses, composing the whole of
the Metropolis and its environs, are under the direction of no less
than above seventy different Trusts; regulated by perhaps double the
number of local acts of Parliament, (varying in many particulars from
one another,) under which the _directors_, _guardians_, _governors_,
_trustees_, or _vestries_, according to the title they assume, are
authorised to act,--each attending only to their own particular
_Ward_, _Parish_, _Hamlet_, _Liberty_, or _Precinct_; and varying the
payment according to local circumstances, and the opulence of the
particular district, from 8-1/2_d._ up to 2_s._ each night.[117]
[Footnote 117: There is, in some respect, an exception to this rule,
with regard _to the City and Liberty of Westminster_, and the parishes
of _St. Clement Danes_,--_St. Mary le Strand_,--_The Savoy_, The
united parishes of _St. Giles_ and _St. George, Bloomsbury_,--The
united parishes of _St. Andrew, Holborn above the Bars_, and _St.
George the Martyr_, and the liberty of _Saffron Hill_, _Hatton
Garden_, and _Ely Rents_.--The Act of the 14th George III. cap. 90,
contains regulations applicable to the whole of these Parishes and
Liberties, fixing the _minimum_ of watchmen at 523, and patroles at 56
men, for the _whole_; but leaving the management still to the
inhabitants of each respective Parish or Liberty. The same act fixes
the _minimum_ of wages at 1_s._ a night, and patroles 15_d._ In the
City of London, the salaries given to watchmen vary in each Ward, from
13_l._ to 18_l._ 19_l._ 20_l._ 21_l._ 7_s._ 23_l._ 8_s._ up to 26_l._
and patroles are allowed from 13_l._ to 35_l._ and 40_l._ a year.]
The encouragement being, in many instances, so small, few candidates
appear for such situations, who are really, in point of character and
age, fit for the duty which ought to be performed; the managers have
therefore no alternative but to accept of such aged, and often
superannuated, men, living in their respective districts, as may offer
their services; this they are frequently induced to do from motives of
humanity, to assist old inhabitants who are unable to labour at any
mechanical employment, or perhaps with a view to keep them out of the
workhouse, and to save the expence of maintaining them.
Thus circumstanced, and thus encouraged, what can be expected from
such watchmen?--
Aged in general;--often feeble:--and almost, on every occasion, half
starved, from the limited allowance they receive; without any claim
upon the Public, or the least hope of reward held out, even if they
perform any meritorious service, by the _detection of Thieves and
Receivers of stolen Goods_, or idle and disorderly persons: and above
all, _making so many separate parts of an immense system, without any
general superintendance, disjointed from the nature of its
organization_, it is only a matter of wonder, that the protection
afforded is what _it really is_.[118]--Not only is there small
encouragement offered for the purpose of insuring fidelity, but as has
been already shewn innumerable temptations are held out to dishonesty,
by Receivers of stolen Goods, to the watchmen and patroles in their
vicinity; as well as by thieves and housebreakers in all situations
where they contemplate the commission of a burglary.
[Footnote 118: This proves how highly meritorious the conduct of the
_Managers_ and _Trustees_ of this branch of the Police of the
Metropolis must, in many instances, be. There can indeed be no manner
of doubt, but that great advantages arise from dividing the labour,
where all the benefits of local knowledge enter into the system.--So
far as this goes, it ought not to be disturbed. But it is also
necessary to consider the Metropolis as a _great Whole_, and to
combine the organs of Police which at present exist, in such a manner,
by a general superintendance, as to give equal encouragement, and to
instil one principle of universal energy into all its parts.]
Money is also received from disorderly persons in the night, to permit
them to escape from the just punishment of the Laws; while on the
other hand, unfortunate females are often cruelly oppressed and laid
under contribution, for permission to infringe the very laws, which it
is the duty of these nocturnal guardians of the Police to put in
execution.
Excepting in the city of London, under the jurisdiction of the Lord
Mayor and Aldermen, (where there are, in the 25 wards, 765 watchmen,
and 38 patroles) and the parishes and liberties combined by the act of
the 14th Geo. III. cap. 90, it will not be easy to ascertain the exact
number of watchmen, &c. employed by the great variety of different
Trusts, in every part of the Metropolis; more especially, as in
several instances they vary in their numbers according to the season
of the year, and other circumstances; but the following statement is
believed to be very near truth:--
_Beadles,
Watchmen,
and Patroles._
25 Wards in the City of London 803
11 Parishes, &c. in the City and Liberty of
Westminster 302
13 Parishes, &c. in the Division of Holborn 377
5 Parishes, &c. in that part of the Division of
Finsbury which joins the Metropolis 135
7 Parishes, &c. in the Division of the Tower
Hamlets 268
1 Liberty of the Tower of London 14
5 Parishes and Hamlets, being part of the Division
of Kensington, near the Metropolis 66
9 Parishes in the Borough of Southwark 79
----
Total Beadles, Watchmen, and Patroles 2044[119]
----
[Footnote 119: Watch-houses are now placed at convenient distances all
over the Metropolis; where a parochial constable attends, in rotation,
every night, to receive disorderly and criminal persons, and to carry
them before a Magistrate next morning.--In each watch-house also (in
case of fire) the names of the turn-cocks, and the places where
engines are kept, are to be found. This circumstance is mentioned for
the information of strangers unacquainted with the Police of the
Metropolis; to whom it is recommended, in case of fire, or any
accident or disturbance requiring the assistance of the Civil Power,
to apply immediately to the Officer of the night, at the nearest
watch-house, or to the watchmen on the beat.]
Nothing can certainly be better calculated for _complete protection_
against acts of violence in the streets, than _the System of a
well-regulated Stationary Watch_; composed of fit and able-bodied
men, properly controlled and superintended: and from the number of
persons already employed, independent of private Watchmen, it would
seem only to be necessary to lay down apposite legislative rules, with
respect to _age or ability_, _character_, _wages_, _rewards for useful
services_, and _general superintendance_, in order to establish that
species of additional security, which would operate as a more
effectual means of preventing crimes within the Metropolis.
Let the same system of moderate rewards also be extended to
beadles,[120] for useful Public service _actually performed_, as is
proposed with regard to officers of justice, watchmen, and patroles;
and much good will arise to the community, without any great
additional expence.