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The Municipal Corporation of Gloucester; THE MUNICIPAL CORPORATION OF GLOUCESTER: ITS COMPOSITION, STRUCTURE AND FUNCTIONS DURING THE EARLY NINETEENTH CENTURY ALAN MICHAEL SPARKES A thesis submitted to The University of Gloucestershire in accordance with the requirements of the degree of Master of Arts by Research in the School of Humanities December 2005 i Abstract Gloucester’s municipal corporation evolved through a succession of medieval royal charters culminating in Richard III’s charter of 1483. Thereafter, the corporation emerged as the governing body of Gloucester and played a substantial but restricted role in the local government of the city until its abolition in 1974. Its responsibilities were distinctly limited during the first half of the nineteenth century and focused on property management, charity administration and trade regulation. These activities were administered or controlled by the common council, which represented the ruling body of Gloucester’s corporation. The structure of Gloucester’s corporation was subjected to its first significant reform by the imposition of the Municipal Corporations Act in 1835. The objectives of this Act were to address perceived failings and abuses in existing corporations in England and Wales and to allow for the creation of new ones in certain areas of growing urbanisation. The Act was based on the findings of the commissioners for municipal reform. Among other objectives the Act sought to allow greater access to municipal office, enforce financial propriety and accountability on corporation expenditure and allow for more effective provision of public amenities. It also sought to restore popular confidence in law and order by ending the role of corporation aldermen in the local magistracy and by making provision for borough police forces. Therefore, the 1835 Act forms the pivot on which this study is balanced. The reform of the corporations has been alternatively praised as a revolution in local government and dismissed as a mere postscript to the parliamentary reform Act of 1832. The unreformed corporations were greatly vilified by their contemporaries and have received comparatively little attention from historians and this neglect has extended to the newly elected councils after 1835. Local historiography pertaining to the impact of reform on Gloucester’s corporation is noticeably absent. A number of local studies do reveal that the corporation was particularly influential in the political, social and economic life of the city during the nineteenth century, but while these works have specified some of the problems that existed, such as the political inviolability of the self-electing corporation and its political partisanship, the individual focus of each study has precluded a more detailed analysis of the internal management and structure of Gloucester’s corporation or the impact municipal reform had on it. Informed by general historiography and specific local studies this thesis uses the records of Gloucester’s corporation along with other primary sources to examine its composition, structure and functions. The thesis focuses on the corporation’s internal management prior to the introduction of the Municipal Corporations Act, the extent and relevance of the changes imposed by the reforms of 1835 and the effects of the Act upon the corporation until the expansion of its powers as a board of health from 1849. In doing so this thesis emphasises the themes of continuity and change and attempts to provide the impetus for a broader examination of the numerous elements of local government in Gloucester during a period of great social, economic and political change. ii Author’s Declaration I declare that the work in this thesis was carried out in accordance with the regulations of the University of Gloucestershire and is original except where indicated by specific reference in the text. No part of the thesis has been submitted as part of any other academic award. The thesis has not been presented to any other education institution in the United Kingdom or overseas. Any views expressed in the thesis are those of the author and in no way represent those of the University. Signed…………………………………………Date…………………………… iii Acknowledgements This thesis and the research upon which it is founded were made possible by the assistance and support of a number of institutions, bodies and individuals and I would like to express my sincere gratitude for their help. In particular, I would like to thank the Irene Bridgeman Research Fund for a grant made by the Research Committee of the Bristol and Gloucestershire Archaeological Society; the Dame Janet Trotter Trust for a grant made to assist with expenses incurred in the course of the research; Learning and Information Services at the University of Gloucestershire for assistance towards the expense of student fees; the staff of the Gloucestershire Collection at Gloucester Local Studies Library for their enthusiastic help; the late Anthony Done whose meticulous Index to Items from the Gloucester Journal, 1722–1899 proved to be of great assistance; the staff at Gloucestershire Record Office for their knowledge, patience and enthusiastic support, especially John Putley; the staff of Oxstalls Learning Centre at the University of Gloucestershire, especially Ann Cummings (Learning Centre Manager), Pam Porter (Senior Information Advisor), Sylvia Lacey (Senior Information Advisor) and Pat Newcombe (Information Assistant); Mrs Anne Bradley at the Bristol Record Office; Mr John Howe, former lecturer at the University of Gloucestershire for inspiring me to focus on English local history in general and the history of Gloucester in particular; my friends and family who supported me in my endeavours, especially Liam O’Brien and my partner Tracey Sparkes. Finally, special thanks are given to my two research supervisors, Dr John Jurica and Dr Charles More of the School of Humanities at the University of Gloucestershire, for their sustained and enthusiastic support throughout my studies. iv The Municipal Corporation of Gloucester: Its Composition, Structure and Functions During the Early Nineteenth Century Abbreviations………………………………………………………………… p.v. Chapter One: Municipal Government: Reform, Debates and Approaches. 1. Local Government and the Municipal Corporations………………... p.1. 2. Historiography………………………………………………………. p.5. 3. Methodology……………………………………………………….... p.10. Chapter Two: Gloucester’s Municipal Corporation before 1836. 1. The Evolution of Gloucester’s Government before 1800...………… p.13. 2. Occupations: Gloucester and its Corporation…….……......………. p.17. 3. The Common Council and its Members……………......................... p.23. 4. The Corporation’s Management of Charities……………….……… p.33. 5. The Finances of Gloucester’s Corporation…………………………. p.40. Chapter Three: Gloucester and Municipal Reform. 1. Support for Municipal Reform in Gloucester.………………………. p.49. 2. The Commissioners for Municipal Reform and Gloucester………… p.53. 3. The Municipal Corporations Act and Gloucester…………………… p.63. 4. Gloucester’s First Elected Council……..…….……………………… p.70. Chapter Four: The Reformed Corporation of Gloucester from 1836. 1. Gloucester and its Economy, c. 1836–56.…………………………… p.74. 2. Occupations: Gloucester and its Reformed Corporation……………. p.77. 3. The Reformed Council and its Members……………..……………… p.83. 4. Charity Management after Municipal Reform..………….………….. p.92. 5. The Finances of Gloucester’s Reformed Corporation……………….. p.98. Chapter Five: Conclusion: Change and Continuity. 1. The Limitations of the Study and Avenues for Further Enquiry……. p.108. 2. Continuity and Change in Gloucester’s Corporation, 1815–56……... p.110. 3. Municipal Reform and Gloucester’s Corporation….……………….. p.115. Appendices…………………………………………………………………. p.119. Maps……………………………………………………………………….. p.138. Bibliography……………………………………………………………….. p.139. v Abbreviations B.G.A.S. Bristol and Gloucestershire Archaeological Society. B.I.H.R. Bulletin of the Institute of Historical Research. E.H.R. English Historical Review. G.B.R. Gloucester Borough Records in Gloucestershire Record Office. G.C. Gloucestershire Collection at Gloucester Local Studies Library (to be amalgamated with the G.R.O. January 2006). G.J. Gloucester Journal. Weekly publication from 1722. G.R.O. Gloucestershire Record Office. J.R.L.S. The Journal of Regional and Local Studies. P.R.O. Formerly the Public Record Office at Kew, West London, now the National Archives. T.B.G.A.S. Transactions of the Bristol and Gloucestershire Archaeological Society. V.C.H. Glos. IV. Herbert, N. (ed.) The Victoria County History of Gloucestershire: Volume IV, The City of Gloucester (Oxford: Oxford University Press, 1988). V.C.H. Glos. II. Page, W. (ed) The Victoria County History of Gloucestershire: Volume II, The County of Gloucester (London: Eyre and Spottiswoode, 1907, reprinted Folkstone: Dawsons of Pall Mall, 1972) 1833 Requisition. A Requisition to the Mayor of Gloucester (Gloucester: Jew and Wingate, 1833). 1st Report. The First Report of the Commissioners Appointed to Enquire into the Municipal Corporations of England and Wales. H.C. 1835 (116) XXIII. 14th Report. 14th Report of the Commissioners Appointed to Enquire Concerning Charities. H.C. 1826, XI. 1 CHAPTER ONE Municipal Government: Reform, Debates and Approaches 1. Local Government and the Municipal Corporations On 9 September 1835 the Municipal Corporations Act passed into law under Lord Melbourne’s Whig government.1 The Act replaced the essentially private constitutions of 178 municipal corporations with new public institutions
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