Historical Society of Cecil County

Head Of Elk And How It Grew

by Michael L. Dixon

Shortly after the Revolutionary War, in November 1786, Head of Elk became the seat of Cecil County's government. Next spring (May 24, 1787) legislators, in an act to incorporate the village, orderd that a plat of it be laid out within two years. The act ordered that the town "heretofore called the Head of Elk ... was to be know by the name of Elkton." Streets and lanes formerly belonging to the Commissioners of Confiscated British Property, the State of Maryland, and others were transferred to the municipal corporation (Laws of Maryland, 1787).

A commission form of government, with seven annually elected commissioners, was provided - the one with the most votes became president. The commissioners, who were also trustees of the town school and market, employed a clerk.

Reflecting the eighteenth-century view of government, the charter was more concerned with regulation of trade than with governance. Elkton's clerk supervised the market house, leased its space, and generally exerted control over trading. Vendors had to sell their goods at the market during market hours on Tuesday and Saturday. Products from Europe "or any foreign power" were forbidden. Town authorities were to maintain streets in "clean and good repair" and could levy taxes to perform street work. Revenue also came from stall rents and tolls on provisions sold at market. Regulations to prevent "horse-racing, gambling and other diversions" could be adopted.

Joseph Scott's A Geographical Dictionary of the United States of America (1805) provided an early portrait of Elkton:

a post and considerable trading town of the Eastern shore of Maryland, the capital of Cecil county. It is situated on Elk river, at the head of navigable water. It consists of one principal street, on which are erected about 90 dwelling, a court house and jail, and on the W. Side of the town, an academy. It carries on a brisk trade with Philadelphia and Baltimore.

The original village boundaries were not clear. In 1808 citizens were to "mete and bound" town boundaries, because of "doubtful adjustments of the limits" (Laws of Maryland, 1808), but the results remained unclear. In an act in 1821, 35 years after the incorporation of Elkton, its emerging governmental structures were improved. Council was given broader powers to regulate the market place, public order, health, nuisances, and animals, and was provided with general taxation authority. Town boundaries were to be precisely defined and properties were to be assessed every five years. The town now had a bailiff who collected taxes and had the power of justice and constable.

Municipal records before 1867 have not survived, so evidence of early town affairs is limited largely to the elusive evidence of newspapers. The Elkton Press in 1824 (May 1) contained the legal advertisement of a new ordinance prohibiting swine from running at large. (It is signed by Frisby Henderson, President, and Henry Hollingsworth, Secretary - the earliest names of town authorities we have, except those found in the State's original charter.)

For some decades Elkton and its government grew slowly. But a pivotal economic advancement occurred in 1837, when, on Independence Day, the first locomotive of the Baltimore and Philadelphia Railroad arrived. From this time until about the close of the Civil War the town advanced steadily in population, wealth and size. In fact, the Elkton of 1855 was already taking on "city airs" so its streets needed "appropriate and pretty names," declared the Cecil Whig (July 14, 1855):

In the good old times . . . in fact till within the last two or three years, the streets of Elkton were so few and far between that names were almost unnecessary, but since we have improved so much, and are rapidly putting up houses and putting down pavement ... we think it but right and proper that our streets should have names by which we can designate them. "Bow" and "North" are no longer appropriate, for the "Bow" has been made straight and half a dozen run parallel with the "North."

In 1858, The Philadelphia, Wilmington and Baltimore Railroad Guide said: "The Railroad has proved of great advantage to Elkton . . . . The population of the place prior to construction of the road was but about nine hundred, although a hundred sixty years had elapsed since its first settlement; while since that time the number of inhabitants has increased fully fifty percent." It reported the population was about 1,450.

While the railroad may have fueled prosperity, it also caused a regulatory predicament for town authorities. Trains were speeding through town, and the Cecil Democrat prodded Council to do something ( Oct. 28, 1865). Heeding the exhortation, town fathers decreed that engines were to "slack up to 6 miles per hour and ring their bells in town." The engineers complied. The freight train, which stops here at 7:37 p.m., takes the lead in this contemptible conduct, blowing the whistle in its loudest and shrillest key, till the cars come to a dead stop at the depot. On one occasion an engineer provided himself with a large fish horn, and blew an accompaniment to his engine while passing through the town, (Cecil Whig).

Town Elections

For nearly a century, the entire town-board stood for election each year. Many exciting elections resulted - in fact, council elections seem to have been the main town sport. A writer to the Whig said: "Elkton would not be Elkton if we could not indulge in an occasional wrangle, of a more or less political tinge. If we do not have a President to elect for the United States, we have a President of the town council to be considered." Three times in the 19th century municipal elections were tied. In 1845, 1852, and 1874 runoff elections had to be held.

As the nation headed toward Civil War in 1860, heated political debate erupted in Elkton over the big issue of whether to allocate money for fixing up pavement or for buying new fire hose. Although the town owned only two feet of good hose (Whig, May 12, 1860) the pavement forces must have won, for in August the stable of Joseph P. Cantwell was completely destroyed by fire, owing, the Whig editorialized, "to a plentiful supply of bad hose."

There was never any dearth of candidates, for everyone who laid any claim to being a worthy citizen took a fling at running. The result was phenomenal turnover in membership, often resulting in a completely new board. From 1866 to 1904, only two men had more than one term as president - they had two terms each. This did not help progress, because a project would hardly be started before a new election occurred. The new board was usually interested in something else - it is a wonder that anything got done at all.

For over 100 years, there was no town office, the treasurer changed many times with new boards, and a new bailiff was hired nearly every year. This job was considered a political plum, but the bailiff did virtually every job the town required - tax collector and supervisor, laborer on public works, and, of course, the preserver of peace.

The job may have been a plum, but it wasn't easy and sometimes it was downright thankless. Bailiff Thomas McCreary began, at the instruction of Council, to energetically enforce ordinances, something Elkton's newspaper editors wanted in 1867. Early in the morning on June 10, while making his rounds Bailiff McCready ran into a gaggle of geese near the Court House, in violation of Ordinance 15. He took them into custody and sold them for $1.95, out of which he kept 20 cents for his commission. Wouldn't you know, that gaggle belonged to a prominent citizen; hence an election was lost. The new board amended the goose ordinance – geese could run at large during daylight hours - and instructed the bailiff to release geese in his possession and refund fines. (Town Min., Jul. 18, 1867)

The bailiff was hired by the town-fathers. In 1874 it took three meetings to choose between the seventeen applicants. The meeting on May 19 was adjourned after 8 ballots. On May 25, 14 ballots were held, still without a majority. The deadlock was finally broken on the third try and Timothy White, former member of the Baltimore police and an ex-deputy sheriff, was elected (Whig, June 6, 1874). In 1890 the treasurer took over the tax collection and supervision. In 1892 the council took three meetings and 102 ballots to choose W. Don Price as treasurer (Democrat, May 14, 1892).

Governmental Services

In 1867, the town's public utilities consisted of two pumps, a public privy, and gas and oil lamps for lighting streets. Street lighting began in 1863 when the commissioners granted a franchise to the Elkton Gas Light Company to furnish twenty street lamps. The lamps were lighted every moonless or dark night by a lamplighter, a new town employee who was paid $100 a year (Whig, March 21,1863).

A couple of decades later, the Whig complained that the lamp- lighter was guided in his "nocturnal task by the almanac. If that book said moonlight, no matter how cloudy the evening might be, the lamps were not lighted, and Elkton was in darkness" (May 21, 1881). Next year, the new board appointed a new lamplighter, Mr. W. W. Willin. "We trust our new man . . . will be willing to be guided by his own eyes and judgment, taking an occasional squint at the almanac as a test. If he does we have no fear but that he will be a success as a light maker." (Whig)

Streets and sidewalks, an original responsibility for Elkton's government, were a perennial problem. Often after rain storms property holders experienced "serious inconvenience," for water was standing in the streets and on the sidewalks. In 1854-55, town authorities were busy building substantial stone and brick culverts on Main Street, Bow Street, North Street, and other areas. Most carried storm water off to the marsh. (A Statement by the Town Commissioners, 1856, May 17)

Late 19th Century Development With the 19th century dwindling, the Delaware State and Peninsula Directory (1882), depicted Elkton as:

a thriving town of 2,000 inhabitants, manufacturing and commercial interests of considerable magnitude and with a rich surrounding agricultural country.... Elkton has many creditable business structures and public buildings, to say nothing of handsome private dwellings ornamenting her streets, which are, in general, well paved and kept in good order.

After standing still for over a decade, in the 1880s, Elkton began to boom, soon doubling in area and almost doubling in population. From 1870 to 1880, town population had decreased by 45 persons, but the federal census showed a population of 2,404 in 1890, an increase of 653 over 1880. (Whig, July 5, 1890)

In the 1880s, new houses were stretching east toward Howard's Meadow and north on North Street toward the fairground. On the other end of town, the Maffitt property was being marked out into building lots along High Street, which was being extended westward to Gilpins Brick Yard. Workmen's houses were being built in this section of town (Whig, Nov. 13, 1886).

A large part of the boom undoubtedly can be attributed to William M. Singerly's Pulp Works, which employed as many as 300 people and was an industry of importance to the town. Other large industries in the later 19th century included Scott Fertilizer Company, Deibert Brothers Boat Works, James F. Powers Foundry, and Deibert & Wilson Textile Mill. Elkton also provided excellent shipping facilities for its own manufacturers and others further up the Elk who sent their products to market in ships that came up the Elk River and tied up at any of the numerous wharves behind Main Street. Big Elk Creek was navigable to the Scott Brother's Fertilizer Works and Singerly's Pulp Mill. There was also quick communication with cities by railroad.

As for smaller enterprises, the Maryland Directory of 1882 listed four blacksmiths, two brick manufacturers, nine carpenters and builders, two furniture and cabinetmakers, three printers, one carriagemaker, one lumber yard and one marble yard. Professionals listed in the directory included one dentist, five physicians, and twenty-one attorneys. Elkton was also well provided with merchants, hoteliers and bakers serving the burgeoning community.

What were the advantages for industrialists to locate here in the last two decades of the 19th century? "Tax is low, transportation good, supplies and raw material may be obtained in any quantity at the lowest rate," reported the Commercial and Industrial Review of Northern and Western Maryland (1885).

The conditions of living in a flourishing community, and all the problems that could present, were forcing attention to improvement of streets, new methods of lighting them, introduction of water supply, promotion of public health, and improved systems of municipal government, including the need for modern police and fire protection, and regulation of emerging utilities.

Forward thinking members of the community knew that Elkton required a more comprehensive and effective system of government in this new age, and the town fathers asked the leislature for more powers. But there was wide disagreement about what powers town authorities should have. Some changes were made in 1870, and in 1880 the number of commissioners was reduced from seven to five, the bailiff's position became elective, and the power of the commissioners to abate nuisances and disturbances and to build and improve streets and sidewalks were stengthened (Whig, April 24, 1880), but political contention went on for decades.

The modern period of town government began with decisive charter changes in 1890 that considerably altered government. Council was given important powers to move the expanding town forward. A President and four Commissioners were elected to serve two year terms at a salary of $25 each (previously there was no salary). A new position, that of town treasurer, was created. The treasurer, who could not be a member of the board, received a salary of $250. The bailiff's job, besides his police duties, consisted of lighting the streets (there was now no lamplighter), superintending work of the streets, and keeping the fire engine in order. His salary was $500, but he had to wear a blue uniform that he provided, furnish oil for the street lamps, and give all his time to the duties.(Whig, Feb. 8, 1890). Later Bailiff Boulden reminisced with the Cecil Whig that he had "walked a distance of 5,000 miles in lighting and putting out street lamps." in the two years since the lamplighter's position was eliminated. (Whig, Mar. 4,1893). But at least he no longer collected taxes.

The new charter gave town commissioners power to meet the costs of needed municipal improvements. The town could pay up to $800 a year to a water-works company to supply the town with water and fire plugs and the Commissioners were empowered to issue bonds to erect a town-building. (Elkton Appeal, Feb. 12, 1890). They could also grant franchises to utilities, such as railroads, trolley lines and electric companies.

The street oil/gas lamps and posts were removed in 1893 and replaced by 80 electric lights put in by the Elkton Power & Light Company which had the franchise to light the town streets. House lighting quickly spread throughout the town.

Under the new charter, the commissioners passed the first regulation requiring building permits (Elkton Appeal, June 11, 1890). As an inducement for businesses to locate here, the town exempted new manufacturers from town taxes for 10 years (Whig, Jul. 25, 1891). And the Board of Trade offered free land to any responsible manufacturer who would locate a manufacturing plant in town.

The Council Hall was erected on the site of the "engine house," on land in which the county and the town of Elkton shared interest. The land had been taken by the Commissioners of Confiscated Property at the close of the Revolutionary War from a luckless Tory, Robert Alexander, and deeded to certain trustees for the use of Cecil County and the citizens of Elkton for a court house and market house. The county built a Court House, Clerk's and Registers office, and jail on the lot. The town built an "engine house" about 1828. The "engine house" was little more than a shed to house the town's two hand-pumpers. Despite opposition from some, including prominent Elkton Attorney William J. Jones, Esq. who believed the county should purchase the town's interest in the lot to erect "a much needed addition to the county buildings," the town fathers went ahead , and so sealed the fate of Cecil's venerable old courthouse, now hemmed in on every side.

The Council House was completed in 1891 for $2,973. The first floor contained space for the town's fire apparatus and other property. Of two rooms upstairs, the front was used by the commissioners as their meeting place and the other was available for the fire company.

Fire Protection

In the early years, all citizens rendered assistance at fires, usually by joining the bucket brigade. In 1804 the town had been authorized to hold a lottery to raise money for a fire engine, but there is no evidence that one was purchased. Around 1828 the simple bucket brigade was supplemented by a hydraulion, a combination hand pumper and hose cart bought with donations from townsmen. Elkton's bailiff was responsible for the fire apparatus and the town had a standing Committee on Fire Engines" of three commissioners (Ordinance of May 12, 1884) Later, about 1858, the citizens purchased a suction pumper that could draft water, thus ending the bucket brigade.

During the 19th century volunteer fire organizations came and went, presumably maintaining the fire apparatus during their brief periods of existence. Before the Singerly Fire Company, organized in 1892, there were at least two others. Since the creation of the Singerely Fire Company the town has no longer been responsible for manning and directing fire suppression.

The impetus for the Singerely Fire Company's creation was serious fires in 1890 and 1891. The 1891 fire broke out on Main Street early one Sunday morning in September, "the most serious experienced in Elkton." The President of the Commissioners, George A. Blake, telegraphed to Wilmington for help. Some "19 minutes later" the Phoenix and Weccaco fire engines, hose carriages, and about 100 men arrived from Wilmington." Council took the Wilmington firefighters to breakfast at the Howard Hotel.

The fires also caused the town board to call a public meeting to see if the citizens would finance a water company. When it was found there was insufficient local capital, the town advertised for outside firms to build the plant and install 49 fire hydrants. One Elkton Newspaper, the Appeal, thought this a wise step. "Other towns," the Appeal (Jan. 28, 1891) reported, "that have undertaken to construct water works at the expense of the tax-payers have, as a rule, had a sad experience." It had required a bonded indebtedness.

In February, 1892, the commissioners granted a franchise to the Maryland Water Company. The company built a reservoir on Red Hill and a pump house near the southeast side of the Farr Creek bridge (Whig, Feb. 27, 1892; Mar. 4, 1893). It was bought by the town in 1919 at a cost of $35,000 (Cecil County News, Oct. 1, 1919).

Town Finances. Sources of revenue and expenditures became more complex as municipal government evolved. Revenue came mostly from property taxes, though there were other sources as well. For the year ending May 1, 1860, the town had receipts of $1,759, nearly nine-tenths of which came from property taxes ($1,532). Also, there was an allowance of $100 from the county commissioners and $18.50 from fines and street dirt sold. That year, the largest expenditures ($835) was for materials to maintain the streets and sidewalks, followed by payment of debts contracted by the previous board of commissioners ($514). Town employees (bailiff and secretary) received $225. Assessing properties cost $20, and a judge and clerk were paid $2.00 each to supervise the town election. The only unpaid debt was a note for$214 for the purchase of fire hose in Baltimore. (Receipts & Expenditures, 1861).

For the year ending April 30, 1897, receipts were $9,562, two-thirds from property taxes. Revenue that year also included $100 from the county commissioners, fines ($40), licenses ($17) and building permits ($3). The largest expenditure was to service municipal debts ($2,232). Other outlays included materials and hauling for street and sidewalk ($1,556); street lighting ($1,465); labor on streets and sidewalks ($473); water rent ($800); and a bridge over Ben's Gut ($96). Town officials received $888. (Annual Report, 1897).

A New Century Dawns

In the early spring of 1900 the appearance of the first "locomobile" on Main Street heralded the beginning of a new era. .Only ten years before, in 1890, Elkton had relieved a transportation problem by providing public parking, installing public hitching posts on land behind the court house. But now the days of hitching posts were numbered. Soon, as this new kind of traffic was getting out of hand, Council decreed automobiles could go only 6 miles per hour in town. As we know with the benefit of hindsight, automobile regulatory and enforcement problems had just begun. Nonetheless, as the town fathers pondered their first regulatory problem of the new century, it was clear that the little "burg" and its government had grown up. Elkton, a modern, progressive town, had a local government sufficiently empowered to regulate for the common good, and it had the infrastructure to support economic and community growth in the new century.

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