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Local Government Reform in Tasmania 1906-1939: with Special Reference to the North West Coast

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Local Government Reform in Tasmania 1906-1939: with Special Reference to the North West Coast Local Government Reform in Tasmania 1906-1939: with special reference to the North West Coast Grant Rootes A Thesis submitted as part of the requ ir ements for the degree of Ma ster of Arts in History School of History and Classics University of Tasmania April 2004 This thesis contains no material which has been accepted for the award of any other degree or diploma in any other university and, to the best of my knowledge and belief, it contains no copy or paraphrase of material previously published or written by another person except where due acknowledgement is made in the text. .. ,r;�::?.�.!h.�...... Date . ... ;.?._.. S ..... ./.... �....... /2004 I authorise the reading of this thesis by bona fid e researchers, students, and members of the staff of the University of Tasmania, and it may be made available for loan and limited copying in accordance with the Copyright Act 1968. .6 '?V!-:d./!a-2!:?:-:. .... '}'/ �� ( Date .... .... ./ ... ........ ./2004 Abstract This thesis examines local government reform in Tasmania primarily between 1906 and 1939. The Local Government Act 1906 gave the state for the first time a comprehensive system of municipal government. This Act arose from the economic pressures placed on the new state government by federation. The government had tried several times to impose a more efficient system on the island, but failed due to an obstinate Legislative Council and strident opposition from local bodies. The 1906 Act was a compromise between the aim of the government for greater economy and efficiency and the desire of local bodies to preserve their existing interests. After the first world war, the Tasmanian municipal system gradually suffered from increasing overheads, lower revenues, and the revolution in motor-transport. This led some municipal councils into financial difficulties in the 1930s. During this decade the state government came under pressure from the Commonwealth government to reform its administrative practices. Faced with some ailing municipalities, the government appointed a Royal Commission in 1939 to review the 1906 Act and suggest some measures of improving the system. The outcome of this process was the lacklustre Local Government Act 1940. The purpose of this thesis is to examine the pressure for such reform and suggest why substantial changes was not forthcoming. Given the large scope of the subject, and with due regard to the limitations on research time and writing space, the focus is on one region, the North West, and, in particular, the Devonport and Leven councils, as case studies in which to draw general conclusions concerning reform in the chosen period. Space has also limited any detailed comparison of Tasmania's expenence during this time with the municipal systems elsewhere III Australia. Chapters one and two give a broad outline of the process that led to the passing of the 1906 Act. Chapter three examines the attachment to the community of interest principle on the North West and its consequences for municipal reform. Chapter four explores regionalism on the North West after the first world war. Chapter five and six examines the stresses put on the municipal system in the post-war period and the government's attempts at reform. The last chapter studies the proceedings and outcome of the 1939 Royal Commission. Acknowledgements Special thanks first and fo remost to my supervisor Stefan Petrow fo r his continual stream of ideas, advice on source material, and for the diligent proof reading of drafts; thanks also goes too Michael Roe fo r his reading and comments on the final draft. For their assistance at various times over the last two years thanks to the staff at the Morris Miller, Law, and State libraries, as well as those in the University and State archives offices. Finally, fo r their constant support and encouragement, thanks to my mum, dad, and sister Megan, as well as Luke Clarke and Rachael Holloway. Contents Page Introduction 1 1 North West Settlement and Local Institutions. 23 North We st Settlements and Localism. 24 Early Attempts of Municipal Governmentin the North We st. 36 Roads Trusts and Town Bo ards. 46 2 Forcing Change? The Road to Local GovernmentReform in 1906. 56 Lo cal Government Reform 1865-1904. 64 The Lo cal GovernmentAct 1906. 71 Aftermath of the Act. 76 3 Municipal Councils and community of interest. 85 Separation and Community of Interest 1907-1908. 88 The Half-Ho liday issue and Parochialism in the North We st. 98 4 Regionalism on the North West. 113 The North We st and Re gi onalism. I 14 North We st Tourism. 118 North We st Municipal Le ague. 127 5 Local Government Reform in the 1920s and 1930s: pressures from below. 142 The Fina nc ial Diffic ulties of the Municipal Councils. 143 Road Maintenance and Municipal Reform. 161 6 Local Government Reform in the 1920s and 1930s: pressures fro m above. 172 7 1939 Royal Commission into Local Government. 196 The Roya l Commission. 197 The Commissioners Report. 210 The LocalGov ernmentAct 1940. 218 Conclusion 228 Appendices I Map of the North West 235 II Map of the County of Devon 236 III Map of Tasmanian Municipalities 237 Bibliography 238 Tables Page 1.1 Road Trust Revenue and Expenditure 1886-1906 (£) 49 1.2: Town Boards Statewide : Receipts and Expenditure 1895-1907 (£) 52 5.1: North West Councils Expenditure 1934-1939 (£) 150 5.2: Devonport ward road revenue and expenditure 1930-1937 (£) 168 6.1: Local Government Taxation, per head of population (s d) 189 7.1 : Municipal Council Revenue and Overheads 213 7. 2: Proposed Changes for North West Municipal Councils 193 9 215 C.l: Total Receipts and Expenditure fo r Local Authorities in Each State 1930-1936 (£) 234 Abbreviations AJPA Australian Jo urnalof Public Administration AJPH Australian Jo urnalof Politics and History AMJ Australian Mu nicipal Jo urnal AOT Archives Officeof Tasmania CPP Commonwealth of Australia: Parliamentary Papers JPPP(Tas) Tasmania: Jo urnal and Printed Papers of Parliament JRAHS Jo urnalof the Royal Australian Historical Society PA Public Administration (Sydney) THRAPP Tasmanian Historical Research Association Papers and Proceedings Introduction Local government reform in Tasmania has long been a fiercely contested battle between the state government, municipal councils, and the Legislative Council. The focus of this thesis is to explore local government and attempts at reform in Tasmania between 190 6 and 1939. In 1906 an Act was passed by the Tasmanian parliament giving the state fo r the first time a comprehensive system of municipal government. After the First World War, the municipal system began to suffer from increasing overheads, lower revenues, and the revolution in motor-transport. Several attempts were made to amalgamate municipalities in the 1920s with the aim to solve these problems, but were unsuccessful. The position of the councils worsened in the 1930s, with some falling into financial trouble. The Ogilvie Labor government, not the most sympathetic supporter of the existing municipal system, and under pressure from the Commonwealth government, announced in 1938 that it intended a major overhaul of local administration on the island. Looking to amalgamate municipalities, it created a Royal Commission to propose reforms. The subsequent report and proposed amalgamations were not viewed favourably by local bodies or the Legislative Council. Faced with much opposition and anxious to pass some sort of municipal reform, the Labor government dropped from its proposed local governmentbill of 1940 the most contentious refonns of the municipal system, including amalgamation. Afterpromising much, the outcome from the Royal Commission of 193 9 was little. In order to determine why this was so local government in Tasmania must first be placed in a broader context. It is often said that local government is the poor relation in 2 h•(:ll ;!tl'.·t.:llllllt:llt in this cnuntry has bi..":i..":ll allributt.:d to gcograph/ and culture;' but has t:{ll b :�·n... lll:lpcd hy schnl;m; s�i..":ing local go\'i..":rnmcnt as an umnspmng or ununportant . :�llh]L'(I Ill \\ hidl \l) study ; Thc carly histonography or the development or local ( llblltllllPns in :\ustr:!lia vie\\'c:d the process negat1vdy. • fn 1947 F. A. 13land lamented th:11 'tH)\\'lH.:n: in the: British Commonwealth ts local government so rud tmcntary as in .\u:;trali:l. lltH do lm:al institutions and local opin1on exerctsc so little mHuence on the Cl.'lltra! or��ans ol'politics and admtntstrallon'.1 Ruth Atkins in 1960 wrote 'at no stage k�.S th..:t\: bt .. ·�..·u any gc:ncral demand for local self-government, nor have the conditions �-; ..:\·..:r bi..":i..":n l'anntrabk to 1ts easy growth'_ She concluded that a charactenstic feature of \neal goY�..:rnmc.:nt tkvdopmcnt in Australia has been 'the attempt of htgher go\'ernment t sm Pohfln, · J 1{11 hh 111,. '!.ned and l.oc;t\ ( io\ Clllll\Cill in Sou1h A u�1ral1 a·. vol 13( 1) 197X pl\l : :\. \'. < i rt.:�. ·I .neal ( ion:rntncnl 111 Early ,\ ustr;Jiia'. Auxrrultwl Mtmlclpo! Journal (A MJ). August 1CJ70 pp. �;,.:-;_ . 'inr lll>'!;nt.:�·- \\ K. llanco.:k . .-l11.�1mlia. (Nt.:w York. 1CJ3l) pp OCJ-70 -� R :--; Sp;l!\11, F'uhlw Adminitrmrion i/1 ..Ju.wralw.. '\'' 1 t.:dition, (Sydney JCJ73) p221 " C. :\ultch. "From Col\\t.:rgo.:ncc: to Din·rgcncc 1cfonmng Ausuallan local government', Awtralwn Jnum<1l oll'uhlw :ldmintslmtimt (:\Jf'A I. Vol 5R (\} I CJCJCJ p 12, f.ee also l Gr.1y, PoltflC.S 111 Plate soc.wl po·,, ,·r rdattnll( 111 WI :lustra/ian cotiiiiiJ toll'//, (Cambndgc 19CJ I} p44; and J Robbms 'Locahsm' p8l •• .;c· c- { i. ir�·�n{ v. (1od ( c-d.l . .·lustral/a.
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