Crafting the Machinery of Municipal Rule: The Board of Police in Nineteenth Century Brockville, Upper Canada. By Phillip André Primeau A thesis submitted to the Faculty of Graduate and Post Doctoral Affairs in partial fulfillment of the requirements for the degree of Master of Arts Department of Sociology and Anthropology Carleton University Ottawa, Ontario © 2013 Phillip André Primeau Abstract This thesis traces the coordination, configuration and operation of municipal government in Brockville, Upper Canada, between 1830 and 1836. By focusing on how governing occurred and what was involved in governmental projects, rather than who governed, it presents new insights into the processes that constituted a form of rule in a nineteenth century town. Contrary to presenting a narrative of rationalization, it argues that manner, etiquette and prestige were essential to the machinery of local government, as targets of regulation and as characteristics of the mode of operation. The problem of how the concept of democracy, and the idea of local government, are translated into political practices is explored through an investigation of the agents and arrangements that were fashioned to form the institution of municipal government. Scholarly attention has been directed to the modern incorporated municipality, which owes much of its framework to the Municipal Corporations Act of 1849. Instead, this thesis focuses on its Upper Canadian predecessor, the board of police. Boards of police significantly changed the ways in which the administration and regulation of local affairs occurred. This thesis argues that local government was only possible through the coordination of a political space, populated by agents who had to govern themselves and govern others. It explores how governing through boards of police required crafting the machinery of municipal rule. ii Acknowledgments The tomatoes that were planted in late May dried out by mid-August because of a lack of water and probably because of the neighbour’s air conditioning unit: not the fault of my ‘green thumb’, of course. The peppers and beans grew well, so too did the cucumbers. Gardening provided thinking time, so did travelling across Quebec and Ontario throughout the year. Driving to Montreal became a monthly escape; roaming the old 138 to Huntingdon from Ormstown brought back memories and reminded me why I ever entered graduate school. I was able to peruse a digital edition of an 1833 map while sitting restfully on a warm train from Ottawa to Toronto in the middle of winter, the modern comforts of travelling the province I suppose. The solitary time spent at the Ontario Archives, Library and Archives Canada, Carleton’s basement on micro-fiche or various coffee shops was made bearable with the support of a number of people, all whom deserve more than the limited space granted here to thank them. Most of the research for this thesis was made possible because of the generosity of Jake, Rory, Samantha and Tylor who harboured and fed me during an extended visit to the provincial archives in Toronto. André provided me insights into how municipalities ‘actually’ work. Brigitte was always willing to listen when I needed it. Stacy prompted me to keep going. My mom showed me how to be strong. Jean-Francois tried to sway my arguments; I am looking forward for the next round of debates that this is sure to inspire. Without support from my family, this whole thing wasn’t going to happen. iii My experience at Carleton has been extremely rewarding over the last two years. Certain professors have especially contributed to my ideas, in ways that I have yet to probably fully realize. Bruce Curtis deserves to be signalled out. Our many chats have led me to see the value of historical sociology; his contribution to guiding this work along through its wavering phases attests to his passion for the social sciences and his genuine personal kindness. Thank you. Mike Mopas provided me key commentary at key moments. As did Alan Hunt, Nicolas Carrier, Aaron Doyle, Jacqueline Kennelly, Janet Siltanen, William Walters, Carlos Novas, Peter Gose, Maeve McMahon and many more. I extend my sincere gratitude to Paula Whissell and the department staff who actually make things work and who care when things don’t. I could attempt a long list of friends and peers who endured my tiresome stories of Brockville or my political ramblings, usually over pints, but you know who you are, so I won’t. My best friend, my partner and my love, Amélie, who offered me courage when I was afraid and laughter to cure the aches, thank you. Collectively you have all made this journey sometimes a little easier, sometimes confusing, but mostly unforgettable. Sincerely, thanks. iv Table of Contents BSTRACT II A ................................ ................................................................................................................... CKNOWLEDGMENTS III A ................................ .............................................................................................. ABLE OF ONTENTS V T C ................................ ................................................................................................ IST OF LLUSTRATIONS VII L I ................................ ......................................................................................... 1 INTRODUCTION ................................ ................................................................................ 1 NDERMINING THE HIG YTH OF ROGRESS 1.1 U ‘W ’ M ‘P ’ ................................ ................................. 7 OWARDS A OCUS ON TRATEGIES AND RACTICES 1.2 T F S P ................................ ........................ 17 RGANIZING RINCIPLES OF HESIS 1.3 O P T ................................ ...................................................... 22 ROCKVILLE S OARD OF OLICE RCHIVE N ATERIALS AND ETHODS 1.4 B ’ B P A : O M M ................ 26 2 COORDINATING THE BOARD ................................ ...................................................... 35 ATIONAL ONSENSUAL UBLIC PHERE OWARDS A ETITIONING UBLIC 2.1 A R C P S ?: T ‘P P ’ ...... 39 ONDITIONS OR A ETITIONING UBLIC 2.2 C F P P ................................ ............................................ 43 OVEMENT TO NCORPORATE 2.3 M I ................................ ................................................................. 52 2.4 INCORPORATING B ROCKVILLE ................................ ................................................................. 60 3 TRACING THE PRACTICES OF INCORPORATED LE RU ................................ ........ 84 NCORPORATION N THE OOKS 3.1 I ‘O B ’ ................................ .......................................................... 85 F RESIDENTIAL TOCK ELECTING THE OARD S RESIDENT 3.2 ‘O P S ’: S B ’ P ................................ .. 93 DJUDICATING ISCORD N EARINGS AND ROPERTY SSESSMENTS 3.3 A D : O H P A ....................... 96 RRANGING SSOCIATIONS 3.4 A A ................................ .................................................................... 105 OVERNING UBLIC PACE 3.5 G P S ................................ ..................................................................... 123 HOLERA 3.6 C 1832 ................................ ........................................................................................ 133 v 4 INCORPORATING COMPETITION ................................ .......................................... 137 AISING THE TAKES IN THE OMPETITION 4.1 R S C ................................ ....................................... 139 4.2 GAINING C OMPETITIVE E DGE: COORDINATING THE B ROCKVILLE F IRE B RIGADE ....... 143 5 CONCLUSION ................................ ................................................................................. 151 REFERENCES ........................................................................................................................ 156 APPENDIX – A 1830 POLICE PETITION ................................ ....................................... 173 APPENDIX – B ACT OF INCORPORATION ................................ .................................... 174 APPENDIX – C BROCKVILLE BOARD OF POLICE COMPOSITION 1832-­‐1836 ... 183 vi List of Illustrations FIGURE 1 – MAP OF BROCKVILLE SURVEYED BY JOHN BOOTH 1833 ........................................................... 188 FIGURE 2 – 1816 MAP OF WILLIAM BUELL’S LAND HOLDINGS IN BROCKVILLE ........................................... 189 FIGURE 3 – 1811 “PLAN AND SURVEY OF WILLIAMSTOWN”. ....................................................................... 190 FIGURE 4 - PHOTOGRAPH OF THE ‘SALLY GRANT’ MEMORIAL PLAQUE AT BROCKVILLE, ONTARIO ............ 191 vii 1 Introduction This thesis traces the coordination, configuration and operation of municipal government in Brockville, Upper Canada, between 1830 and 1836. These two objects of inquiry—municipal government, and Brockville—came together through a protracted reconnaissance mission in the archives. I wanted to understand the genesis of preventive practices from a historical perspective, focusing specifically on the problem of fire within urban locales. That journey took me from ancient Rome, during the reign of emperor Nero, to tenth century London where ‘bellmen’ rung a ‘curfew bell’, warning townsfolk to ‘take care’ of their candles during the night. It became apparent that an important aspect of the regulation of fire involved the development of quasi-professional and professional ‘fire engineers’ who