PLAN FOR THE CONTROL OF QUASI-PUBLIC WORKS 839
management. Because the public consciousness is so alert upon this question, fewer complaints are necessary; and except in times of drought, or in cases where the supply is polluted by causes for which no one is to blame and which cannot be immediately removed, there is little dis- satisfaction.
Now the case is different with every other form of public service. From the beginning of a settlement, everybody wants water ; but the demand for gas, electric lights, telephones, and rapid transit is only gradually developed. These things are luxuries when they are first introduced. A demand for them has to be created. Therefore there is room for individual initiative. Frequently a private undertaker has little difficulty in getting a franchise, but much difficulty, at first, in making his enterprise pay. To the general public, then, it is of little moment whether the consumer has to pay much or little for his product or service ; for the general public does not consume. The function is not essential to the welfare of the whole community ; there- fore, the community is not interested in gaining control over it. If the undertaking proves to be profitable, the community may regard it as a fit subject for taxation ; but beyond this there is little public interest. This condition of affairs has existed in most cases when these works have been initiated. Although, later, many towns may become so anxious for them that they are willing to stimulate undertakers to come to them, the method of private, irresponsible control has become so universal that any other plan is then seldom considered.
But the changing conditions of city life are such that, one after another, these things become necessities. It is in the interest of civic welfare to have good and cheap means of illumination, heating, com- munication, and transportation. There is a growing recognition of this fact ; yet it has been thus far true that efforts of reformers have been chiefly directed to the securing of compensation for franchises which make it possible for the private corporations to gain immense profits, and not to the lowering of the cost to the consumer. The lat- ter has not been left entirely out of consideration ; but the question has usually been made one of finance, rather than one of raising the standard of comfort of the masses and of establishing communicating systems which both relieve congestion and bind the sections of the city together in a more organic life. So long as the managers of these quasi-public works enjoy monopoly benefits, the community will be benefited by taxing the franchises. But the use of these products and
