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MISSOURI HISTORICAL REVI EW, CONTENTS City Manager Plan in Kansas City Henry M. Alexander Labor Movement in St. Louis from 1860 to 1890 Russell M. Nolen frontier Economic Problems in Missouri, Part II Matlie M. Anderson Historical Notes and Comments Missouri History Not Found in Textbooks STATE HISTORICAL SOCIETY of MISSOURI VOL. JANUARY 1940 OFFICERS OF THE STATE HISTORICAL SOCIETY OF MISSOURI, 1939-1941 ALLEN McREYNOLDS, Carthage, President. •WALTER B. STEVENS, St. Louis, First Vice-President. GEORGE A. ROZIER, Perryville, Second Vice-President. MARION C. EARLY, St. Louis, Third Vice-President. B. M. LITTLE, Lexington, Fourth Vice-President. JOHN T. BARKER, Kansas City, Fifth Vice-President. ROY H. MONIER, Carrollton, Sixth Vice-President. R. B. PRICE, Columbia, Treasurer. FLOYD C. SHOEMAKER, Secretary and Librarian. BOARD OF TRUSTEES Term Expires at Annual Meeting, 1940 JESSE W. BARRETT, St. Louis. W. J. SEWALL, Carthage. ALBERT M. CLARK, Richmond. H. S. STURGIS, Neosho. HENRY J. HASKELL, Kansas City. JONAS VILES, Columbia. McMILLAN LEWIS, St. Louis. L. M. WHITE, Mexico. WM. R. PAINTER, Carrollton. Term Expires at Annual Meeting, 1941 BEN L. EMMONS, St. Charles. ISIDOR LOEB, St. Louis. STEPHEN B. HUNTER, E. E. SWAIN, Kirksville. Cape Girardeau. CHAS. H. WHITAKER, WALDO P. JOHNSON, Osceola. Clinton. LANGDON R. JONES, Kennett. ROY D. WILLIAMS, Boonville. Term Expires at Annual Meeting, 1942 LUDWIG FUERBRINGER, WM. SOUTHERN, JR., St. Louis. Independence. HENRY KRUG, JR., St. Joseph. HENRY C. THOMPSON, DULANY MAHAN, Hannibal. Bonne Terre. JUSTUS R. MOLL, Springfield. GEORGE H. WILLIAMS, JOHN F. RHODES, St. Louis. Kansas City. CHARLES L. WOODS, Rolla. EXECUTIVE COMMITTEE The twenty-six trustees, the President and the Secretary of the Society, the Governor, Secretary of State, State Treasurer, and President of the University of Missouri, constitute the Executive Committee. •Deceased. THF MISSOURI HISTORICAL REVIEW VOL. XXXIV JANUARY 1940 NO. 2 CONTENTS Page The City Manager Plan in Kansas City 145 HENRY M. ALEXANDER The Labor Movement in St. Louis from 1860 to 1890 157 RUSSELL. M. NOLEN Frontier Economic Problems in Missouri, Part II 182 HATTIE M. ANDERSON Missouriana 204 Historical Notes and Comments 241 Missouri History Not Found in Textbooks 291 FLOYD C. SHOEMAKER, Editor The Missouri Historical Review is published quarterly. It is sent free to all members of the State Historical Society of Missouri. Membership dues in the Society are $1.00 a year. All communications should be addressed to Floyd C. Shoemaker, The State Historical Society of Missouri, Columbia, Missouri. The Society assumes no responsibility for statements made by con­ tributors to the magazine. "Entered as second-class matter at the postoffi.ee at Columbia, Missouri, under Act of Congress, October 3, 1917, Sec. 422." CONTRIBUTORS ALEXANDER, HENRY M., associate professor of political science at the University of Arkansas, was formerly a graduate student and summer session instructor at the University of Missouri. He received his M. A. degree at Princeton University in 1926 and his Ph. D. degree at the University of Missouri in 1934. He taught economics and government in the State Teachers College at Maryville, Missouri, until 1937 and has since been at the University of Arkansas. NOLEN, RUSSELL M., a native of Paris, Missouri, is assistant pro­ fessor of economics at the University of Illinois. He received A. B. and A. M. degrees from the University of Missouri in 1924 and 1927, and a Ph. D. degree from Washington University, St. Louis, in 1936. Before joining the faculty of the University of Illinois, he was for a number of years head of the department of economics at the Southern Illinois State Teachers College at Carbondale. ANDERSON, HATTIE M., a native of Carroll county, Missouri, is now professor of history in the West Texas State Teachers College at Canyon, Texas. She received an A. M. degree from the University of Missouri in 1920 and a Ph. D. degree from the same institution in 1935. THE CITY MANAGER PLAN IN KANSAS CITY* BY HENRY M. ALEXANDER Charter revisions have been frequent in Kansas City. It may be that this frequency is a reflection of the city's rapid growth. At all events the structure and form of the city's government have received much public attention. The city government has been cast in many molds. "Tinker­ ing with the charter" has been a popular pastime. A Demo­ cratic election commissioner, commenting in 1917 upon this circumstance, complained that "every sixty days the 'nuts' in this town want a new charter." The first permanent settlement upon the present site of Kansas City was made 118 years ago. This frontier com­ munity, known for twenty-nine years as Westport Landing, was officially christened the Town of Kansas by the county court of Jackson county on February 4, 1850. Three years later the name was changed again. The Town of Kansas then became the City of Kansas by special act of the State legislature. This statute, enacted in 1853, was the first formal charter of the municipality. The present name of the city was acquired in 1889. The City of Kansas inherited little from the Town of Kansas. Old records show a cash balance of $7.22 in the municipal treasury. During the first year of its corporate existence the City of Kansas collected less than $5,000 in taxes. Charter revisions were facilitated and even encouraged by the general home rule provisions of the State constitution adopted in 1875. These constitutional provisions, applying only to cities with a population of over 100,000, enabled any *This paper is listed as Research Paper Number 656, Journal Series, Uni­ versity of Arkansas. The author has here drawn freely upon material in his study of Council-Manager Government in Kansas City, a doctoral dissertation written in 1933 and 1934 at the University of Missouri and published in micro­ film. Documentary source materials are there indicated. He wishes here to acknowledge his indebtedness to Mr. Walter Matscheck, former director of the Kansas City Civic Research Institute, for material taken from articles published by him in the National Municipal Review and in Public Management. (145) 146 MISSOURI HISTORICAL REVIEW such city to draft, adopt, and amend its own charter. A quite similar but separate home rule provision applying only to St. Louis was also written into the constitution. At the time of the adoption of this general home rule law in 1875, no city in the State came within the scope of its application. It was felt, however, that Kansas City and also St. Joseph would in a few years attain the required population. Kansas City did not attain a population of 100,000 until some years after 1880. Kansas City is today the only city in the State to which the general home rule provisions of the State constitution apply. The city's first official charter, granted by the State legis­ lature in 1853, remained theoretically in effect until 1889. In this latter year the city drafted and adopted its first home rule charter under the enabling provisions of the Constitution of 1875, incidentally assuming in the charter of that year, 1889, its present name, Kansas City. During the thirty-six years from 1853 to 1889 the city remained nominally under its original legislative charter, but there were seven revisions in the statutes applicable to Kansas City, all so extensive in scope as virtually to constitute seven separate charters. Under the authority to frame its own charter and thus determine its own plan of municipal government, Kansas City has drafted and adopted three charters. These home rule charters were adopted in 1889, 1908, and 1925. On four occasions charter commissions have drawn up home rule charters that failed to receive the necessary approval of the voters. These four proposed charters were discarded in 1888, 1905, 1917, and 1922. A fifth home rule charter was drafted in 1918, but was never submitted to popular vote, since the members of the charter commission that drew up this proposal had not been legally selected. Kansas City's present charter providing for the city manager plan was overwhelmingly approved by the voters on February 24, 1925. The city manager plan became formally effective on April 10, 1926. The present charter and form of city government are thus thirteen years old. The adoption of city manager government in Kansas City followed an advocacy of many years. In fact this type of city government was almost continuously urged upon the voters from 1916 THE CITY MANAGER PLAN IN KANSAS CITY 147 until 1925. Success was hindered and delayed by constitu­ tional obstacles. The general home rule provisions of the Constitution of 1875, under which Kansas City was authorized to draft and adopt its own charter, were seriously defective in several respects. These defects were the obstacles which handicapped and delayed the adoption of the city manager plan. Chief among these defects was the constitutional requirement that all home rule charters "shall provide, among other things, for a mayor or chief magistrate, and two houses of legislation, one of which at least shall be elected by general ticket." It was clearly impossible to adopt an orthodox city manager plan and also to conform to the constitutional demand "for a mayor or chief magistrate, and two houses of legislation." The old- time conventional mayor and the bicameral city council have no legitimate place in city manager government. As will be pointed out later, two charter commissions made awkward attempts to adapt the desired plan to the constitutional requirements. This constitutional obstacle was removed by amendment in 1920. The amendment paved the way for the adoption of the city's present charter. On two occasions prior to 1920, charter commissions sought to draft city manager charters with provision for a mayor and a two-house city council.
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