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REPORT ON THE NIGHTLY WATCH AND POLICE OF THE METROPOLIS.Ordered, by the House of Commons, to be printed, 24 March 1812.

Householders, has been so effectual, that Your Committee think it necessary only to recommend such measures to be enforced by Legislative enactment, as would give an uniformity and permanency to such a system, and secure its activity by a constant superintendence and controul.

Your Committee finding, that, owing to these and similar means of security, no im

The COMMITTEE appointed to examine into the State of the Nightly Watch in the METROPOLIS and the Parishes adjacent, and farther into the State of the Police; and who were empowered to report their Observations, from time to time, to the House ;-and to whom several Petitions of Licensed Victuallers, Publicans, within the Cities of London and Westminster, and its En-mediate dangers were to be apprehended, virons, were referred ;-Have pro- their duty, to endeavour to obtain a more were desirous, indeed they felt it to be ceeded in pursuance to their Instruc-detailed as well as a more comprehensive tions, and agreed upon the following view of the various circumstances which influence and affect the state of the Metropolis as to its Police, the manner in which its local Limits are divided, the various laws applicable to such divisions, the various public bodies, or individuals, in whom powers are vested, for the purpose of watching over and regulating the means by which its security and good order is to be maintained, and the mode in which such powers are executed.

REPORT:

Your Committee first directed their enquiries to the state of the Nightly Watch. They were induced to pursue this course in their investigations, as well from a desire to conform to the order in which the several subjects submitted to their consideration are classed by the House in the terms of their appointment, as, from conceiving this branch of the subject to be of itself of the highest importance, and in consequence of late occurrences, to be pressed upon their attention with more urgency than any other.

With reference to this view of the subject, the Metropolis may be considered as divided into three parts:

The City of London, properly so called, and the Liberties thereof.

The City of Westminster, and the Liberties thereof.

The several Parishes which are neither within the City of London and its Liberties, or the City of Westminster and its Liberties.

Had they found the defects in this part of the system of our Police to have been such, at this moment, as to have demanded the immediate interposition of the Legislature, they would have hastened to have made an early Report; but they had the satisfaction of observing, that the apprehensions which had been excited had The City of London is governed by vaproduced such a degree of activity and vi-rious ancient Charters and Statutes. The gilance in many Parishes and Districts, Statute of the 13th of Edward 1, called and such a conviction that the former Statutum Civitatis London,' is one of the means of security were insufficient, that all most ancient; and as it is not to be found immediate alarms on this head had been in the ordinary editions of the Statutes, in a great measure removed. Your Committee have inserted it in the Appendix. But the principal Act of Parliament, which at this time regulates the Nightly Watch of the City of London, is the 10 George 2, c. 22.

In some Parishes, indeed, the zeal and energy of the Inhabitants appears to have been most exemplary and meritorious; they have agreed to take upon themselves, in rotation, the duties of Superintendents of the Nightly Watch, to visit and inspect the Watch-houses, the Constables, Beadles, Patroles and stationary Watchmen, so as to ensure the perpetual vigilance and activity of every class of persons on duty during the night, within their parish; and a system of the Nightly Watch, thus introduced by the voluntary exertions of the (VOL. XXII. )—Appendix.

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By this Act, the Lord Mayor, Aldermen, and Common Council, are directed yearly to make regulations on this subject, and the Aldermen, and Common Councilmen in each Ward are to carry these Regulations into effect, and make such minor Regulations as to details, as they may judge necessary.

The Act specifies the duties of the Con(E)

stables and Watchmen, and prescribes the mode in which they are to be punished for misconduct or neglect.

As this is one of the principal Acts respecting the duties of Watch and Ward, Your Committee have also inserted an Extract from it in the Appendix.

Your Committee have not failed to observé, that the City of London, from the nature of its magistracy, the description of its various public officers, the gradation and subordination of their various classes, the division and subdivision of its local limits, affords an example of that unity, and of that dependence of parts on each other, without which no well constructed and efficient system of Police can ever be expected. If such a system could be successfully imitated in Westminster and its Liberties, and within the other adjacent Parishes which have hitherto formed an unconnected mass of scattered and uncontrouled local authorities, considerable benefit might be expected to ensue; for Your Committee are disposed to concur in opinion with several of the witnesses, that a well arranged system of Superintendence, Vigilance, and Controul, would tend more to the prevention of crimes, by rendering it difficult to commit them, than any degree of activity in the pursuit and conviction of criminals after the crime has been committed: at all events, however, the two systems are not only not incompatible, but would necessarily afford mutual aid and assistance to each other.

This system of Watch and Ward, adapted by the Legislature to the City of London, is not a dead letter, but is kept alive and in action by the constant superintendence of the Marshals of the City, with their Assistants, who every night visit the different Wards and Precincts, and take care that the Constables, Beadles, and Watchmen of all descriptions, are alert and do their duty. Morning Reports are made to the Lord Mayor, as Chief Magistrate; deficiencies are noticed, as well as any disorders or irregularities, or other occurrences of the night.

In ancient times, when the whole of the Metropolis consisted of little more than the City of London (properly so called) such a system might have been abundantly sufficient for its good government and security. The City of Westminster, owing to its having never been incorporated, is not provided with the same means, and the same gradations of its public Officers, to ensure the unity and efficiency of its exer

tions for the prevention of crimes, by the same system of controul and superintendence.

But Your Committee have to observe, that by the Statute of the 27th of Elizabeth, presiding and subordinate Officers are appointed, and powers given to the Dean and Chapter, and to the High Steward and others, to make Regulations for the good government of the City of Westminster. It appears that Lord Bur. leigh was appointed the first High Steward, and a Code of Regulations was introduced by him, and a division of its local limits into twelve Wards, for the purpose of a more perfect superintendence.

Your Committee have inserted this Statute of Queen Elizabeth in the Appendix, together with the original Regulations introduced by Lord Burleigh.

This Statute is specifically referred to, and its powers enlarged, by the 29 Geo. 2, c. 25, and by the 31 Geo. 2, c. 17, and a unity and gradation of authority are endeavoured to be established; and the High Constable is directed to obey the orders of the High Steward, and the Petty Constables to obey the High Constable.

The duties and superintendence of the High Steward have fallen into great disuse, although very important duties are imposed on him.

It appears, however, that on great occasions of ceremony, he has from time to time personally interfered, and put himself at the head of the whole Civil force of the City of Westminster, marshalling and arranging the subordinate Officers.

The present High Steward, the Marquis of Buckingham, is stated to have so interfered at the funerals of Lord Nelson and Mr. Pitt.

The Statute of 14 Geo. 3, c. 90, seems to have superseded this system, and is of such pre-eminent importance with reference to the subject matter of present investigation, that Your Committee have inserted large Extracts from it in the Appendix. It is a local Act applicable to the City and Liberties of Westminster, and certain other Parishes therein named; and, with great detail, prescribes the doties of Constables, Beadles, Patroles and Watchmen. It is not founded upon the principle of 10 Geo. 2, c. 22, which relates to the City of London, and which entrusts to the Lord Mayor and others the whole of the details of the Nightly Watch as to numbers, distribution, wages of the Watchmen, and other particulars, but it limits

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and Police of the Metropolis. the discretionary powers of the different parochial Authorities, and, with the most scrupulous minuteness, prescribes the exact manner in which the various descriptions of persons employed must discharge their duties, and defines the smallest number which each Parish is to employ, and the lowest amount of wages to be paid. It details the manner in which misconduct and neglect is to be punished, and meritorious exertions rewarded. It is observable, that both these Statutes refer to the ancient Statute of Watch and Ward, the 13th Edward 1, and recognize the principle, that the protection of every District is a compulsory duty incumbent on the inhabitants; and therefore, an express clause is inserted in each of these Acts, to discharge from this duty such Inhabitants as shall contribute to the Rate for defraying the expence of such Watch and Ward. Other Parishes or Hamlets are governed by particular Acts of Parliament, authorizing the raising of Rates for Watching and Lighting, and yesting powers in certain Commissioners or Vestries for carrying these purposes into effect; but in many cases, the execution of the Law is extremely defective, and in some cases the power of raising Money is inadequate; in others the full amount is not levied; the mode of Watching generally bad, and the men employed, both in number and ability, wholly inefficient for the purpose.

In other Parishes there is no Legislative provision, and upon the whole, no uniform system prevails; and neither the Magistracy, or the Government, have at present any connection whatever with the state of the Watch, and no controul or superintendence over it.

It would appear that this Statute of the 14 Geo. 3, c. 90, has been very little known, or very loosely examined and considered, for many of the Witnesses whom we have examined, and many of the projects which have been submitted to our consideration suggest, as valuable improvements, the very principles, and very details, which are enforced by substantive enactment in this very Statute.

Your Committee feel that much would be done by merely extending the provisions of the 14 Geo. 3, to the adjacent Parishes in and near the Metropolis, which should be particularly described, provided it were duly executed; but they are convinced that it may receive very beneficial amendments, for the details of

many

instances,

which they would refer to the Appendix,
stating here only, that, in
it may be absolutely necessary to give
powers for levying a higher Rate than is
now allowed, in order to defray the ex-
pence arising from an increase of the
numbers or wages of the persons employed
in different capacities in the Nightly
Watch; Your Committee being strongly
impressed with the opinion of the expe
diency, if not necessity, of relieving the
Watch once at least in the night.

But the main improvement of this Law would consist in creating a superintending Power, to whose discretion should be entrusted the dismissal of the persons appointed by the Parochial Authorities in cases of misconduct, negligence or inability, and to whom it should belong to enforce generally, if necessary, the due execution of this Act; for, with all the other proposed amendments, it cannot escape observation, that the system would still remain imperfect, and very inferior in efficacy to that which subsists within the City of London (properly so called); there still would remain that want of unity, that want of dependence of parts on each other, that want of a general superintendence and controul, without which every system of government must be imperfect.

Your Committee, considering with this view whether there are any public Bodies. or individuals already known to the laws, and vested with judicial and administrative powers, and on whom might conveniently be imposed the duty of connecting in some degree the scattered Parochial Authorities, have naturally found their attention directed to the several Boards of Magistracy which have been created by the 32 Geo. 3, c. 53.

This Act, reciting that a regular attendance of fit Magistrates at certain known places, and at stated hours, was much wanted, establishes seven Boards of Magistracy in various parts of the Metropolis.

These Boards of Magistracy have in common parlance obtained the name of Police Offices, although neither by the provisions of this Act, nor by the nature of their duties as Justices of the Peace, have they any superintendence whatever in matters of preventive and parochial Police, or any necessary knowledge of the principles on which the several independent unconnected Parishes act, or of the details by which the Peace and good

Order of the Metropolis are endeavoured to be maintained; nor have they any means of obtaining this knowledge, except incidentally, in consequence of persons being brought before them charged with disorderly conduct, or suspected of having committed crimes. They merely constitute the first stage in the administration of Criminal Jurisprudence. It would seem to be extraordinary, that in such a Metropolis as London, there should be no Office in which information is collected, from which intelligence can be obtained as to the state of the Police. The Secretary of State for the Home Department has not, necessarily, any knowledge' on this subject, nor has he the means of obtaining any such knowledge, except with reference to crimes committed, or of disturbances which have arisen, or of the number of informations or committals which have taken place during any given period.

and report in the morning to the office to which they are attached, as to the vigilance, good conduct, and fitness of the Constables, Beadles, Patroles, and Watch men, on duty during the night.

It is also proposed that it should be the duty of the High Constable within the several divisions, occasionally to make similar visitations and Reports, and with this view, it might perhaps be advisable to attach to them a certain number of Assistants, who might be stipendiary officers, to be paid out of the County Rate, or out of some Rate to be levied within each respective division to which they belong.

Nor are these the only means by which it is proposed to furnish the Boards of Magistrates with information respecting the state of the Metropolis as to its Police, and as to the manner in which the parochial Authorities execute the powers entrusted to them; but it is further recommended, that the excellent provisions of the Statute of 14 Geo. 3, c. 90, should be extended.

Your Committee are therefore persuaded, that the greatest advantages would arise from making use of these Boards of Magistracy, even if it were for no other This is the Statute which Your Commitpurpose, than as constituting centres to tee have before alluded to as applicable which information might habitually and to the City and Liberties of Westminster, constantly be communicated, and daily and certain other Parishes therein named, Reports made from the several Parishes and which, after having prescribed the situated within the District, which, for general outline of the manner in which the sake of mutual convenience, is con- Watch is to be kept, directs that the sesidered as assigned to each of these seven veral parochial Authorities shall meet, Police Offices. and make more detailed rules and reguBy means of this system of daily Relations for the instruction and guidance port, detailing the number and description of the Constables, Beadies, Patroles, and of the persons employed on the Watch Watchmen. during the preceding night, and the occurrences which may have taken place 'while they were so on duty, the Magisstrates would be informed as to the manner in which the proposed Act of Parlia ment had been complied with; and also of the state of order, or disorder, which might prevail in the various Parishes within their district.

But Your Committee further propose as a means of superintendence and controul, and for the purpose of verifying in some degree the correctness of such Reports, and of ascertaining the fitness as well as good conduct of the persons so employed, that it should be the duty of some of the principal Officers attached to the several Boards of Magistracy (generally known by the name of Police Officers) to go rounds according to some rotation, to be settled during the night, and to visit the several Watch-houses within their district,

These detailed Instructions are directed to be written or printed, and delivered to each of such persons respectively.

Your Committee would further propose, that copies of such Rules and Regulations should also be transmitted to the Police Office of the district for their information, that the principal Officers attached to each Office may, in their nightly visitations, be able to judge, whether such Regulations are properly complied with. Copies also of these Regulations should, in some convenient manner, be affixed to the walls in each Watch-house.

By means such as these, the several Boards of Magistrates would acquire such a degree of knowledge, as would enable them to give instructions to their princi pal Officers for their conduct during their visitations, and would enable them for ther to exercise, with correctness, the power which should be given them, of

displacing such of the Watchmen or Patroles as appear to be unfit, from bodily infirmity, or from negligence or misconduct.

are several other measures which may come in aid of this System and may conduce materially to the prevention of

crimes.

With this view, Your Committee advert to the Police Office which has been established at Wapping, called The Thames Police Office, for the detection of felonies, &c. committed on the River Thames. The Magistrates of this Office have also a jurisdiction co-extensive with the other Magistrates.

Your Committee are fully convinced of the beneficial effects which have been derived from this Establishment; the increased protection which has been afford.

Having thus collected at each respective Police Office a great mass of information, as to the principles and details by which the good order and security of their district is endeavoured to be maintained, and having thus called into activity the attention of a great number of persons as to matters of preventive Police, and introduced that system of superintendence and controul which may keep alive and continue the activity and vigilance which has thus been excited, it would still appear that the system would be im-ed to every species of property on the perfect unless this information, thus collected at each of the seven respective Boards of Magistracy, was accumulated at some one central point, in order that there may be the means of comparing the occurrences and transactions and circumstances of the various parts of the Town, and of forming estimates from the comparison of such facts, of the probable means for the effectual prevention of crimes, or for the detection, pursuit, apprehension, and conviction of criminals. It should seem, that the Office at Bow-upper part of the River is consequently street, which is wholly unconnected with either of the seven Offices, might form the proper centre, to which this various information should be transmitted.

It would probably be necessary, considering the great pressure of business which devolves on that Office, to attach to it some fit person, whose immediate duty it should be to compare and digest such information, for the purpose of being communicated to that Board of Magistrates, and also to the Secretary of State of the Home Department.

Your Committee have dwelt the longer on this branch of the subject, as they deeply feel the necessity of introducing some system which may give unity and connection to the scattered parts of which the Metropolis consists; and which may, by introducing more means of superintendence, and more means of knowledge, secure a due execution of the Laws, and above all things, may secure that active vigilance and precaution which may lessen the number of Criminals by rendering it difficult to commit crimes.

Although Your Committee consider this part of the subject to be of pre-eminent importance, and as some of the witnesses have said, to be all in all, yet there

River, furnishes the strongest proof of its utility. But it is stated to your Committee, that the Funds of this Office are at present inadequate for such an increased Establishment as would be necessary to guard the valuable property on the vari ous wharfs and line of River from London Bridge to Battersea; added to which, at certain periods of the tide, the communication between the parts of the River above and below London Bridge is so in terrupted, that during several hours the

open to great depredation. It is therefore recommended that an additional number of boats should be provided, locally applicable to that part of the River above the Bridge.

It has also been represented, that the great and increasing population in the neighbourhood of Greenwich requires another Police Office on that side of the River. Your Committee are informed, that it is now in the contemplation of government to remove the Thames Police Office to the Surrey side for that pur pose: this might then be made the Of fice for an eighth division, comprehending Greenwich, and the other surrounding Parishes.

It has also been represented to Your Committee, that the most notorious Pickpockets and other reputed Thieves are permitted to frequent the public avenues of the Town with impunity, notwithstand. ing the provisions of 32 Geo. 3, made for the purpose of their apppehension: but the Law, as it now stands, does not autho rize the Officer to apprehend them, unless, first, they are seen in some public avenue; secondly, unless they are reputed thieves; and thirdly, unless they are on the spot with the intent to commit a felony: this

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