Metropolitan Board of Works
The
Metropolitan Board of Works (MBW) 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 was an appointed rather than elected body. This lack of accountabillity made it unpopular with Londoners, especially in its latter years when it fell prey to
corruption.
London's growth had rapidly accelerated with the increase in railway commuting from the
1830s onwards. However London's local government was chaotic, with hundreds of specialist authorities (few of them elected) representing parts of streets. All had to agree in order to provide services which crossed their boundaries.
In 1835 elected
municipal boroughs had been set up covering every major city except London. The
City of London, only the very core of the sprawling metropolis, was untouched by the
Municipal Corporations Act 1835 and resisted all moves to expand its borders to include the poorer inner-city districts surrounding it. This meant that three counties had authority over the metropolitan area:
Middlesex covered the area north of the Thames and west of the
River Lee,
Surrey the area to the south and south-west, and
Kent the far south east.
In 1837 an attempt was made to set up a London-wide elected authority, however the wealthier districts of
Marylebone and
Westminster resisted this and ultimately defeated the move. In 1854 it was proposed to divide London in to seven boroughs, each represented on a Metropolitan Board of Works. The proposal to divide the city into boroughs was abandoned but the board of works was set up in 1855.
In order to have a local body to coordinate local work to plan London, Parliament passed the
Metropolis Management Act 1855 which created the Metropolitan Board of Works (which also took over the responsibilities of the short-lived
Metropolitan Buildings Office and
Metropolitan Commission of Sewers, established in
1845 and
1848 respectively). It was not to be a directly elected body, but instead to consist of members nominated by the
vestries who were the principal local authorities. The larger vestries had two members and the City of London had three. In a few areas the vestries covered too small an area, and here they were merged into a district board for the purpose of nominating members to the MBW. There were 45 members, who would then elect a Chairman who was to become a member
ex officio. The first nominations took place in December and the Board met first on
December 22,
1855 where
John Thwaites was elected as Chairman.
Sewage
A major problem was sewage: most of London's waste was allowed to flow into the
Thames resulting in a horrendous smell in the summer months. In 1855 and
1858 there were especially bad summers with the latter being known as "
The Great Stink". A notable achievement of the Board was the creation of the core
London sewerage system, including 75 miles (120 km) of main and 1000 miles (1650 km) of street sewers, which solved the problem. A large part of the work of the MBW was under the charge of the Chief Engineer,
Joseph Bazalgette, previously engineer with the Metropolitan Commission of Sewers.
Streets and bridges
|
Sir John Thwaites in 1858. |
Its other activities included
slum clearance, and the driving through of new streets to relieve traffic congestion. The most important streets built were
Charing Cross Road,
Garrick Street,
Northumberland Avenue,
Shaftesbury Avenue, and
Southwark Street. From 1869 onwards the MBW acquired all the private bridges crossing the
River Thames and freed them of tolls. It also rebuilt
Putney Bridge,
Battersea Bridge,
Waterloo Bridge and
Hammersmith Bridge. The Board wanted to build a new bridge to the east of
London Bridge, which had been discussed for many years; in
1878 Bazalgette drew up plans which were estimated at costing £1.25 million. Despite the Treasury refusing to help by extending the coal and wine dues which paid for the Board, it went ahead with the plans, but saw its
Private Bill rejected by the
House of Commons.
Embankment
The Board also created the three section
Thames Embankment from 1864.
|
James Macnaghten Hogg in 1887. |
The MBW at first had its meetings in the Guildhall of the City of London and its headquarters at Greek Street in
Soho. It then built its own headquarters at Spring Gardens, (which became a
metonym for the MBW), designed by its first chief
architect Frederick Marrable and built in an Italianate style in 1859. When John Thwaites died (
August 8, 1870), he was eventually replaced by
James Macnaghten Hogg, later Lord Magheramorne, who remained Chairman until the MBW was abolished. There was an increase in the membership to 59 in 1885 when some district boards were divided and others were given more members.
However the MBW had very little affection from the people of London. Its status as a
joint board insulated its members from any influence of popular opinion, though all property-owners had to pay for its work as part of their
local government rates. Worse, the very many building contracts issued by the MBW made membership of it desirable for anyone wishing to bid for them. The MBW took most of its decisions in secret. There were a succession of corruption scandals in the late 1880s, which led to a
Royal Commission investigation.
The essence of the scandal arose from the purchase by the MBW of the old
Pavilion music hall in
Piccadilly Circus in
1879, when the site was thought necessary for the construction of
Shaftesbury Avenue. As the street was still in the early stage, the site was leased to music hall proprietor R.E. Villiers for the time being. In addition to his regular payment to the Board, Villiers paid a small
sub rosa amount to F.W. Goddard, who was Chief Valuer for the Board, for favorable treatment.
In
1883, it seemed likely that demolition of the site for road construction was likely to take place, and Villiers met with Goddard and Thomas James Robertson (Assistant Surveyor) to ensure that the remainder of the site was granted to him for a new Pavilion. They agreed to help him, in return for one corner of the site being a public house under the landlordship of W.W. Grey. Grey was in fact the brother of Robertson, though this was of course not immediately apparent.
In November
1884 Robertson told Villiers that the time had come to make a formal offer to the MBW to lease the site, and Villiers duly offered £2,700 ground rent per annum. The Board instructed its superintending architect, George Vulliamy, to value the site: however, Vulliamy was old and left practically all of the work to his subordinates – Goddard and Robertson (it was said by the Deputy Chairman of the Board that "Mr. Goddard and Mr. Robertson were Mr. Vulliamy"). They prepared a report valuing the site at £3,000 per annum, which Villiers immediately accepted; this was then hurriedly pushed through the Board which agreed the lease despite a higher offer of £4,000.
The site was leased off in two portions, £2,650 for the largest part, and £350 for the western corner of the site. Goddard continued to collect his extra payments from Villiers, and the western corner was transferred to Grey – who sold his existing public house on Tichborn Street and divided the £10,000 profit between Goddard and Robertson. In December
1886, Villiers sold the Pavilion, and Goddard received a total of £5,000 of the proceeds.
Subsidiary corruption
For years, vague hints had been made that the Board tended to encourage those applying for leases to employ members of the Board as architects. In particular, James Ebenezer Saunders had been appointed as chief architect on the Pavilion, and on the Grand Hotel and Metropole Hotel on
Northumberland Avenue, both on land owned by the Board, and had done little actual work. Francis Hayman Fowler, although he had done much other work as a Board member, had taken money from site owners and lessees in circumstances which clearly indicated bribery.
On a more base level, the Assistant Architect at the Board, John Hebb, had responsibility for inspecting theatres for safety. He began to write to the managers of theatres with upcoming inspections to suggest that they might want to send him free tickets. Given the power of the board to close theatres, most complied. However, displeased by the inspections themselves, and by the attempt to extract gifts, the managers tended to send Hebb tickets for seats that were at the back of the house or hidden behind a pillar.
Royal Commission
The Goddard-Robertson scandal was revealed by a series of articles in the
Financial News beginning on
October 25,
1886. The Board itself undertook an incompetent investigation under the Chairmanship of Magheramorne, which found Robertson was "injudicious in allowing relatives to become tenants of the Board without informing the Board" but could not find anything worthy "of more severe censure". Anti-Board campaigners were not pleased and kept up the pressure. On the motion of
Lord Randolph Churchill (who represented
Paddington South where anti-Board feeling was at its highest), the
House of Commons voted on
February 16,
1888 to establish a Royal Commission to inquire into the Board.
The Commission was headed by
Lord Herschell and found the main allegations of the
Financial News to have been correct, and indeed understated. Some other scandals were also discovered including the corruption of architects who were members of the Board. However, the Commission repudiated the view of critics that corruption was endemic in the Board.
While the Royal Commission was still preparing its hearings, the
President of the Local Government Board Charles Ritchie announced that elected
County Councils were to be created throughout the United Kingdom. Almost hidden in the Bill were clauses that separated the area of the MBW from the counties of
Surrey,
Middlesex and
Kent and created it as the County of London. This decision was in general what the anti-Board campaigners of the
London Municipal Reform League had called for.
The last weeks of the MBW were its most inglorious period. The London County Council had been elected on
January 21 1889 with
April 1 set as the date it would assume its powers. With the MBW a lame duck but the LCC liable for any of its long-term decisions, the MBW started awarding large pensions to its retiring officers and large salaries to those who would transfer. The MBW then decided to allow the Samaritan Hospital in
Marylebone to use an additional 12 feet of pavement, which the LCC opposed. The LCC wrote to the MBW asking it not to take the decision; the MBW did not reply and gave the permission.
Finally, the MBW received the tenders for the
Blackwall Tunnel and decided to take a decision to award the contract at its final meeting. The LCC again wrote asking the MBW to leave the decision to them. The Chairman of the MBW replied (
March 18 1889) that it intended to continue. At this the LCC decided to appeal to the Government which exercised its power to abolish the MBW and bring the LCC into existence on
March 21,
1889.
The magazine
Punch printed a cartoon to mark the abolition of the MBW entitled 'Peace to its Hashes', representing the MBW by a black suit of armour (ie
blackmail). The citation lauded the MBW for showing 'how jobbery may be elevated to the level of the fine arts'.
The MBW's headquarters were taken over by the London County Council as its headquarters until
County Hall was built and occupied in
1922; the building was then renamed 'Old County Hall' and continued as a subsidiary office for the LCC until the original hundred-year lease on the site expired in
1958. It was subsequently used for central government offices and demolished in
1971 to make way for a new headquarters for the
British Council. The site is adjacent to
Admiralty Arch, off
The Mall.
*
Sir John Thwaites 1855-1870
*
James Macnaghten Hogg 1870-1889
*'Professionalism, Patronage and Public Service in Victorian London: The Staff of the Metropolitan Board of Works, 1856-1889' by Gloria Clifton (Athlone Press, London, 1992)
*'The Government of Victorian London, 1855-1889: The Metropolitan Board of Works, the Vestries, and the City Corporation' by David Owen (Harvard University Press, Cambridge MA, 1982)
