January 2, 1882

“To the Honorable the Common Council of the City of Buffalo:

“In presenting to you my first official communication, I am by no means unmindful of the fact that I address a body, many of the members of which have had quite large experience in municipal affairs; and which is directly charged, more than any other instrumentality, with the management of the government of the city, and the protection of the interests of all the people within its limits. This condition of things creates grave responsibilities, which I have no doubt you fully appreciate. It may not be amiss, however, to remind you that our fellow-citizens, just at this time, are particularly watchful of those in whose, hands they have placed the administration of the city government, and demand of them the most watchful care and conscientious economy.

“We hold the money of the people in our hands to be used for their purposes and to further their interests as members of the municipality; and it is quite apparent that, when any part of the funds which the taxpayers have thus intrusted to us, are diverted to other purposes, or when, by design or neglect, we allow a greater sum to be applied to any municipal purpose than is necessary, we have, to that extent, violated our duty. There surely is no difference in his duties and obligations, whether a person is intrusted with the money of one man or many. And yet it sometimes appears as though the office-holder assumes that a different rule of fidelity prevails between him and the taxpayers, than that which should regulate his conduct, when as an individual, he holds the money of his neighbor.

“It seems to me, that a successful and faithful administration of the government of our city, may be accomplished by constantly bearing in mind that we are the trustees and agents of our fellow-citizens, holding their funds in sacred trust, to be expended for their benefit; that we should, at all times, be prepared to render an honest account to them touching the manner of its expenditure; arid that the affairs of the city should be conducted, as far as possible, upon the same principles as a good business man manages his private concerns.

“I am fully pursuaded that in the performance of your duties these rules will be observed. And I, perhaps, should not do less than to assure your Honorable Body that so far as it is in my power, I shall be glad to co-operate with you, in securing the faithful performance of official duty, in every department of the City Government.”

“The recent investigation into the affairs of this department has developed the most shameful neglect of duty, on the part of the persons in charge. The entire absence of any record of work done, renders it impossible to give exact data.

“Time mismanagement of the affairs of this department, has led directly to time wasting (to use no stronger term) of time people’s money.”

“The Charter of the city provides, that ‘the Street Commissioner shall superintend the construction and repairs of plank sidewalks and unpaved streets, time cleaning and watering of streets, and the abatement of nuisances.”

“This superintendence means something more than certifying accounts, when presented, without any examination. And it is perfectly clear that, before he certifies any bill for work, the Street Commissioner should inspect and measure the same. In no other way is his certificate any protection to the taxpayers.

“I am told that for a number of years, the city has been charged twenty-six cents per foot, for constructing plank sidewalks; and for all that time, bills have been presented, audited and paid at this rate. During the same period, private persons have had this work done for from fifteen to eighteen cents per foot. I cite this as an example, for I understand the same difference is made between the city amid private parties in relation to other work. This should not be so. There is no good reason why the city should not have its work done as cheaply as any other party. And surely no business man would expect to survive long, if he paid nearly fifty per cent more for work and materials than his neighbor.

‘‘I heartily indorse the recommendation, lately made by my predecessor, that all work of the description mentioned be let to the lowest bidder, he to do all such work that is required, at a stated price, for a certain time. This plan should, of course, not dispense with the inspection, by the proper officer, of the work performed. It may be worth considering, in connection with this scheme, whether it would not be well to establish a local improvement fund, from which the expense of such work could be at once paid—the fund to be afterwards reimbursed by local taxation. This would give the city the advantage of dealing with the contractor on the basis of cash prices, and would prevent the accumulation of interest upon warrants given for work and remaining unpaid.

“In this connection, I desire to call your attention to the very discreditable condition of our streets.

“There is perhaps no purpose to which the money raised by taxation could be more legitimately applied than to securing decently clean and safe streets and sidewalks. The health, safety, and comfort of the citizen is directly involved in these things, to say nothing of the pride which we ought to have in the appearance of our city.

‘‘1 think it has been fully demonstrated that the plan at present pursued in the matter entirely fails to accomplish the desired purpose. We let the contract for carting away the dirt and ashes from the streets, at a price for which no one can afford to do it properly; and we rely upon the citizens to gather up in front of their premises what the contractor has only agreed to carry away.

“If our streets are to be cleaned by contract, I think both the gathering up and the carting away should be done by the contractor. We should pay for the work what it is reasonably worth, and a contract, once entered into, should be rigidly enforced.

‘‘The city might be divided into comparatively small districts, with a contractor for each district. In that case parties might compete for the work of a district, who would not be equipped for doing a larger job.

“It has been suggested that a contract might be made for doing all the work for a term of years. with a responsible party. This, it is claimed, would enable the contractor to provide himself with the appliances necessary to do the work properly, which he is not apt to do if his contract is only for one year.

‘‘1 am not prepared to make any positive recommendation on this subject, and leave the solution of the question to your larger experience and practical knowledge.

‘‘It seems to me, however, that much might be said in favor of changing the whole system of doing this, and other work of the same description, and putting it in charge of one of the present departments of the city, or a new one, to be organized for that purpose.

‘‘We have ten street inspectors, appointed by the Street Commissioner, by and with the advice of the Common Council. These persons are supposed to have certain duties to perform,—among others to discover and report any defects dangerous to life and limb, in the streets and sidewalks. I am led to believe that frequently the persons appointed to these positions either have no idea of a proper performance of their duties, or are incapable of doing the work required of them. Suits are constantly brought against the city, for personal injuries caused by defects in the streets and sidewalks; and verdicts are frequently recovered, upon the theory that the defect has existed so long that notice of the same to the city is presumed. There does not seem to be much excuse for this; and these officers should be strictly held to a faithful and efficient performance of their duties, or the offices abolished.”

When this point in the mayor’s message was reached, one of the Aldermen moved that the further reading of the paper be dispensed with. Mayor Cleveland’s strong words were evidently too much for the ring, and they resented such talk. They had never had to listen to such solid truths from any mayor before this, and they disliked it exceedingly. But, to the credit of the Council, this attempted indignity was not perpetrated, for the Council voted to continue the reading. And they got some more of it; although what they had already heard was the severest part of the message. The rest they could sit through with comparative comfort.

With regard to the public school system, the mayor said:

‘‘Our public schools are matters of such vital public concern, and so intimately connected with good citizenship, that I recommend all necessary measures be taken to promote their usefulness and efficiency.”

“I am led to the belief, that in the matter of the repairs and refurnishing of the public school buildings, the utmost economy is not exercised. I am not furnished with the expenses incurred in this matter, but I am convinced that if a committee of citizens in the several districts would take it upon themselves to look after these things, much useless expenditure, by being brought to their notice might in future be avoided.”

In treating of the public health, he said:

“Of the total deaths reported, 1,378, or more than 36 per cent. of all, have been from zymotic diseases, dependent, in some degrees at least, upon surrounding conditions, and which, to a certain extent, are regarded us preventable.

“I mention this fact, because it emphasizes the importance of a due regard and care for our sanitary condition, and the means necessary for its improvement.

“And 1 cannot pass to another subject, before urging upon you the great and present necessity of constructing a sewer in the lower part of the city, and the consequent abatement of the nuisance which now exists, in the Hamburg Canal.

“No argument is necessary to present the importance of this work. I do not look upon it as something that may be dispensed with, or even postponed to a more convenient season. No one has. I believe the hardihood to deny that as long as the present condition of things exists, there lurks in our very midst danger great and imminent. And this danger threatens not the property interests alone, but the lives and health of our fellow-citizens. We have no right to falter or procrastinate. Because we have had a measure of immunity from its worst consequence hitherto, we ought not to tempt Providence further. This work is actually indispensable, and the question of economy is not a factor in the problem, except so far as it should guide us to the selection of the cheapest effectual plan and urge us to insist that the, money raised for that purpose is actually and honestly applied. If a pestilence should be abroad and invited hither by our present condition, should settle in our midst, sweeping off thousands of our inhabitants, there would be but little comfort in the reflections of the survivors of those who had become victims of culpable neglect and false economy. It is unfortunate that this outlay is necessary but as it is, let us manfully face the situation, devise the best means for securing our safety, do the work and pay for it.

The accomplishment of any scheme for our relief seems to be fraught with great practical difficulties. The work, when accomplished, should be for all time, and sufficient for all future needs. I think under such circumstances it would be money well spent to employ the best available engineering skill to plan, and perhaps superintend, its execution.”

Mayor Cleveland was in earnest in his determination to establish, so far as he could, a reform in the city government based on ‘the principles which a good business man employs in his own business.’’ he had already intimated to the Council what he was likely to do in cases when he had the power through his veto to influence legislation, he now went a little further, and told the Council what they ought to do in a matter over which they hold full control. This was the subject of official printing—quite a fat job as it had been considered under the old management—and of this he said:

‘‘The charter provides that the Common Council shall designate one of the daily newspapers published in the city, as the official paper ; and the action of the council in this matter is expressly exempted from the operation of the veto power of the mayor. Thus the whole responsibility is upon your honorable body. Under such circumstances, I might well refrain from alluding to this subject. And yet, I hope it may not be considered entirely out of place, to remind you, that work of this description, like all other, should be done where it can be done the cheapest. This is not accomplished when it is bestowed as a professed reward for party service, or an item of political patronage. Why should other work for the city, involving the expense of a few hundred dollars, be advertised, to the end that the lowest price for which it can be done may be ascertained, and this printing, which involves the expenditure of thousands of dollars, be given to a party organ without question?

The Common Council is to designate, but before you can designate intelligently, if your object is to save the people’s money, you must inform yourselves where this work can be done the cheapest, and designate accordingly. I hope you will see fit to advertise for proposals to do this printing, so that there may he at least a chance of accomplishing a saving in this direction’’

Then he went still further toward the root of in competency in municipal business. by showing the real inefficiency of the system of auditing accounts, and pointing out how it might be made efficient. Of the city auditor lie said:

“It seems to me that the duties which should be performed by this officer have been entirely misapprehended. I understand that it has been supposed that he does all that is required of him when he tests the correctness of the extensions and footings of an account presented to him, copies the same in a book and audits the account as charged if the extension and footings are found correct. This work is certainly not difficult, and might well be done by a lad but slightly acquainted with figures.

“The charter requires that this officer shall examine and report upon all unliquidated claims against the city before the same shall be audited by the Common Council. Is it not very plain that the examination of a claim means something more than the footing of the account by which that claim is represented? And is it not equally plain that the report provided for includes more than the approval of all accounts which on their face appear correct?

“There is no question but that he should inquire into the merits of the claims presented to him; and he should be fitted to do so by a familiarity with the value of the articles and services embodied in the accounts.

“In this way he may protect the interests of the city : other-wise his services are worse than useless, so far as his action is relied upon.”

And, further than this, with a careful eye to the details of the city’s business, he proclaimed, what must have been a very unwelcome doctrine, that city employees should give a fair day’s work for the fair day’s pay which they received. On this point, he said:

“1 am utterly unable to discover any valid reason, why the city offices should be closed and the employees released from their duties at the early hour in the day, which seems now to be regarded as the limit of a day’s work. I am sure no man would think an active private business was well attended to if he and all his employees ceased work at four o’clock in the afternoon. The salaries paid by the city to its officers, and their employees, entitle it to a fair day’s work. Besides these offices are for the transaction of public business; and the convenience of all our citizens should be consulted, in respect to the time during which they should remain open.

I suggest the passage of an ordinance prescribing such hours for the opening and closing of the city offices, as shall subserve the pubic convenience.

“It would be very desirable if some means could be devised to stop the practice so prevalent among our city employees of selling, or assigning in advance, their claims against the city for services to be rendered. The ruinous discounts charged and allowed, greatly diminish the reward of their labor; in many cases habits of improvidence and carelessness are engendered; aid in all cases this hawking and trafficking in claims against the city presents a humiliating spectacle.”

Finally, after so much sound common sense, to which the Council had unwillingly listened, he finished his message as follows:

“In conclusion, I desire to disclaim any dictation as to the performance of your duties. I recognize fully the fact, that with you rests the responsibility of all legislation which touches the prosperity of the city and the correction of abuses. I do not arrogate to myself any great familiarity with municipal affairs, nor any superior knowledge of the city’s needs. I speak to you not only as the Chief Executive officer of the city, but as a citizen, proud of its progress and commanding position. in this spirit the suggestions herein contained are made, if you deem them not worthy of your consideration, I shall still be anxious to aid the adoption and enforcement of any measures which you may inaugurate, looking to the advancement of the interests of the city and the welfare of its inhabitants.

“GROVER CLEVELAND, Mayor.”