Second, the councilmen must have a direct and technical knowledge of
    the city affairs;

    Third, the councilman must be representative of the whole city.

Consider, first, how the legislative and administrative work are connected.  State and national legislation are general in their nature and scope.  The extent of territory, and the variety in local needs have naturally created a separate law-making body.  But in the city such conditions do not exist.  The legislative acts of the council are specific in their nature.  The very name reveals their distinctive character.  They are ordinances as distinguished from other laws, and are designed to meet a particular kind of administration.  The specific act and the particular administration of it go hand in hand.  Hence, satisfactory measures can be enacted only when they come from the hands of a commission council.

President Eliot recognized this fact when he said that the work of the city council is not concerned with far-reaching policies of legislation.  There is no occasion for two or even one separate legislative body.  Dr. Albert Shaw writes, that so indistinguishably blended are the legislative and administrative departments of the city, that it is impossible to separate one from the other.

Second, a commission council is more effective because it furnishes a direct and technical knowledge of city affairs.  An investigation in Des Moines showed that out of 370 acts performed by the council, 32 were granting of saloon licenses and similar permits; 338 concerned matters demanding technical knowledge.  To have a street paved, shall one body legislate; a second group administer; and a third pass upon the validity of the whole thing?  Rather the councilmen should know good paving; they should know how to draw up and enforce a business contract.  These are the vital necessities.

The commission council secures such results.  Its membership is comparatively small.  Its sessions are held daily.  Its members have a direct knowledge of the city’s needs for each one serves as the head of a department.  Satisfactory legislation then becomes a mere business proposition.  It is but carrying forward the work of each commissioner, for successful administration is impossible without competent legislation.  Hence, a city commissioner would no more think of passing improper legislation than a bank director would think of advising unsound loans.

The Cedar Rapids commission met to legislate on replacing an old bridge.  The commissioner of public safety told in what respects the old structure was unsafe.  The commissioner of public property knew how much land the city owned abutting the bridge.  The commissioner of streets explained what alterations should be made in the approaches, and the commissioner of finance knew in just what way the city could best pay for the improvement.