When the village, borough, or town becomes so large that its government does not meet the people’s local public needs, it is incorporated as a city.  Where the country is sparsely settled the peace is seldom broken, private interests do not conflict, the people’s public needs are small, and therefore the functions of government are few and light.  As the population grows dense, the public peace is oftener disturbed, crime increases, disputes about property arise, the public needs become numerous and important, and the officers of the law must interfere to preserve order and protect the people.  The fewer the people to the square mile, the fewer and lighter are the functions of government; the more people to the square mile, the more and stronger must be the functions of government.

INCORPORATION.—­Cities and villages or boroughs differ principally in size and in the scope of their corporate authority.  A city is larger in area and population, and the powers and privileges of its government are more extensive.  In most States cities may be incorporated under general laws, but some cities are incorporated by special acts of the State legislature.  The act or deed of incorporation is called the city charter.  The charter names the city, fixes its limits, erects it as a distinct political corporation, sets forth its powers and privileges, names its officers, prescribes their duties, and authorizes the city to act as an independent government.  The legislature may amend the charter at any time, and the acts and laws of the city must not conflict with the constitution of the State or of the United States.

WARDS.—­The city is usually divided into wards for convenience in executing the laws, and especially in electing representatives in the city government.  Wards vary greatly in area and population, and their number depends in a measure upon the size of the city.  Each usually elects a member of the board of education, and one or more members of each branch of the city council.  Each ward is subdivided into precincts for convenience in establishing polling-places.

CITY INSTITUTIONS.—­Cities maintain a number of institutions, peculiar to themselves, for the public welfare.  The frequency of destructive fires causes the formation of a fire department.  A police force must be organized to protect life and property.  A system of sewerage is necessary to the public health.  There must be gas-works or electric-light works, that the streets may be lighted, and water-works to supply water for public and private use.  In many cities gas-works and water-works are operated by private parties or by private corporations.

FINANCES.—­Each city has an independent financial system, which requires skillful management.  The city borrows money, issuing interest-bearing bonds in payment, and engages in extensive public improvements.  The large outlays for paving the streets, constructing water-works, laying out parks, erecting public buildings, and for maintaining police systems and fire departments, cause cities to incur debts often amounting to many millions of dollars.  As the result of the greater expense of its government, and as its people also pay State and county taxes, the rate of taxation in a city is far greater than in rural districts and villages.