On the other hand, state governments often interfere in matters that might better be left to local determination.  Usually all the counties of a state have exactly the same form of government, with exactly the same officers who exercise exactly the same duties.  Yet some counties within a state are almost wholly rural, some are almost wholly urban, others are mixed in character.  A form of government adapted to one may not be suited to another.  So there has arisen a demand for a larger degree of “home rule” in counties.  In Illinois, counties have had the right to determine for themselves whether the township should or should not be given prominence in local government, and whether the “supervisor” or the “commissioner” plan of government should be used.  California now has a law which provides that counties may apply for “charters” in the same way that cities do in all states.  The “charter,” like a constitution, determines the form and powers of the government, and is framed by the people of the county themselves, though it must then have the approval of the state legislature.

THE GROWTH OF URBAN COMMUNITIES

We have noted how the growth of cities with their elaborate organization for service tends to divert attention from the less conspicuous county government.  While probably half the counties of the United States contain no city, or “town,” or village of 2500 people, there is in almost every township at least one compact settlement that has grown up around the trading center.  Sometimes there are several of them in a township and many in a county.  In such compact communities cooperation becomes necessary to provide for needs that are not felt in more rural districts, such as paved streets, sewers, public water supply, fire and police protection, and so on.  A separate government becomes necessary.  The people of such communities may appeal to the authorities of township, county, or state, for incorporation as a village, borough, town, or city.  “Village” and “borough” are simply two names used in different localities for the same thing.  The difference between them and an incorporated town or city is principally one of size and corresponding complexity of organization.

GOVERNMENT OF VILLAGES AND INCORPORATED TOWNS

The chief governing body of a village, or borough, or incorporated town, is a small council, or board, elected by the people.  It has legislative powers in a small way, enacting ordinances for the regulation of local officers and in the public interest.