|BRITISH POLICE HISTORY

Daventry was granted borough status on 26th March 1576 by Queen Elizabeth I. The whole of the Borough included the parish of Daventry and the small township of Drayton and was inhabited by 3,646 persons as of the 1831 census. Daventry was therefore entitled to form a Watch Committee to appoint men to be sworn as Police Constables under the Municipal Corporations Act, 1835. Under the Act, these Police Constables would have jurisdiction not only within the Borough but within the county in which the Borough was situated and within every county within seven miles of any part of the Borough. Although granted this authority, the Corporation of Daventry instead continued to appoint parish constables to protect the inhabitants and preserve the peace. At the time the Act received the Royal Assent, on 9th September 1835, there were two parish constables and three headboroughs comprising the "police" of the Borough of Daventry. These men were appointed by the lord of the manor and were under the control of the Magistrates.

In 1838, it was considered to form a full time paid Police Force not only for the Borough of Daventry but also for the several parishes in the Division of Daventry of the County of Northampton. To that end, a meeting was held on 7th March 1838 with the following resolutions carried unanimously:

  1. That it is the opinion of this meeting that the present parochial constabulary force, within this division, is insufficient for the adequate protection of persons and property, and the detection of felons and other offenders within it
  2. That such insufficiency may be, in a considerable degree, removed by forming a competent number of contiguous parishes into rural districts, and the establishment of a police within their respective limits
  3. That in order to the establishment and maintenance of such police, it be recommended to the several parishes to adopt such of the provisions of the 3rd and 4th William IV, c90, as relate to the purposes aforesaid
  4. That a committee be formed for facilitating the necessary arrangements

Under the aforementioned 3rd and 4th William IV, c90 — the Lighting and Watching Act, 1833 — parishes and towns were enabled, but not required, to form a paid Police Force. Thirty-three individuals from Daventry and the surrounding parishes were named to comprise the committee to study the proposition but neither the whole of the Division of Daventry nor the Borough of Daventry had a police force by 1841 when the question was again taken up within the Borough. At this time, it was proposed to the Corporation of Daventry to appoint two Police Constables solely for the Borough at the expense of the Corporation and to place them under the superintendence of the Northamptonshire Constabulary, the Constabulary for the County that had been established in 1840. Although a Police Force for the County now existed, as Daventry was not liable for the County Police Rate, it could claim no right to police service from the Northamptonshire Constabulary. When the proposal was brought up at the County Sessions in April of 1841, it was referred to the Police Committee for further consideration.

When the County did not accept the proposal the authorities at Daventry put forth an alternative that the Borough be placed under the Northamptonshire Constabulary for the Rate and use of the Borough gaol. This too was passed over by the County authorities resulting in the Mayor of Daventry becoming quite anxious. The offer to the County was then augmented by the sum of £30 annually. Daventry had become a place of lodgement for the many thieves travelling between London and Birmingham and the Mayor was eager the County should decide at once so he attended the County Session in April of 1846 to lobby for this new application in person. The Chief Constable of the Northamptonshire Constabulary, Colonel Cartwright, suggested, and it was adopted, that the matter be referred to the Police Committee. Upon the Police Committee having taken time to consider the request they reported back in the County Sessions on 1st July it was not advisable to accept the terms from Daventry so the Borough continued to appoint parochial constables.

An Act of 1856 ultimately forced action within the Borough to raise a Police Force for Daventry. The Act, the County and Borough Police Act, 1856, received the Royal Assent on 21st July. It had four main points:

  1. Every county and borough must maintain a police force
  2. The police force must be "efficient"
  3. To ensure efficiency, every force will be inspected annually by a newly created Inspectorate of Constabulary
  4. If the police force is found to be efficient by the Inspector the central Government will pay 1/4 of the annual cost of the police force

On the 3rd of September of 1857 candidates were sought for the position of Police Constable to act within the Borough of Daventry. Applicants were requested to appear before the Council on the tenth of the month for the purpose of their selecting and appointing one from their number for the post. The salary was set at £50 per year with a uniform to be provided. Mr Henry Jaggard, who is known to have joined the Borough Force as a Police Constable by at least 1861, may have been appointed as early as this date.

A second Police Constable for the Borough was advertised for on the 10th of September. In addition to the duties of Police Constable they were also to be appointed Sanitary Inspector and Inspector of Common Lodging Houses with an annual salary of £60 and the provision of a uniform. Candidates were to appear for consideration a fortnight later on 24th September. The successful appointment followed of Mr George Foster to the three combined Offices.

The Daventry Borough Police were first inspected by HM Inspectorate of Constabulary on 5th October 1858. The report from that inspection provides insight into the state of the new Borough Police Force one year on from its establishment:


This force is composed of two efficient men, but it has a population and area that would require at least double the number if it is to be carried on as an independent force. If consolidated with the county, expense to the borough would be saved, and a great benefit derived by both forces. The cells are very bad, and those in use by the county being only held for a short period, will most probably be given up when a good divisional station should be erected. The clothing is as good as any in use in other forces. No return having been sent in of any books or returns kept in the office, I cannot state whether any forms or returns are adopted, but I must report the force to be weak in number, wanting in discipline, and inefficient.

HM Inspector of Constabulary had some latitude in determining the "efficiency" of a police force, as it was not defined absolutely in the 1856 Act. To that end they focused their evaluation on the powers set out in the Act for them to inspect the state of Police Stations, charge rooms, cells and lockups and any other premises used by the Police. Four questions were also asked of each police force:

  1. What is the absolute strength of the force?
  2. What is the ratio of Police Officers to population?
  3. What is the quality of supervision exercised over the Officers?
  4. What degree of cooperation is given to neighbouring forces?

With respect to the ratio of Police Officers to the population, one Police Officer per one thousand inhabitants was deemed the acceptable proportion by the Inspectors based on an 1839 Act. With a population of 4,430 and only two Police Constables, the Daventry Borough Police were far below the desired strength.

By 1862, as the Head Constable, PC Foster continued to receive a salary of £60 per year. Police Constable Jaggard was paid 20s per week and lived in the residence within the Station House on New Street which also had an office and four cells. Crime statistics for the year noted:

  1. Six indictable offences were reported to the police for which six persons were apprehended and four committed to gaol
  2. There were forty known thieves and suspected characters known to reside in the Borough
  3. Fifteen drunk and disorderly persons were charged and proceeded against during the year with the result that two were fined and two committed
  4. A fine was levied against one of the twenty-eight public houses in the Borough
  5. Two of the beer houses were also in violation of the law during the year with one fined

The 1866 Inspection by now General Cartwright found the strength of the Borough Police Force had still not increased beyond two Police Constables. Although they were judged to be active Police Constables the Force was still declared insufficient given there were 2,062 inhabitants to each Constable. In an attempt to sway the Inspector, the Borough contrasted itself to the Northamptonshire Constabulary as the Borough maintained a better ratio of Constables to population but this argument was not convincing as the Borough had no other force to aid them in an emergency whereas the County Constabulary could concentrate its numerous men where they were needed during times of special circumstances. The report highlighted the indictable offences reported to the Police during the year were three with three persons apprehended and committed. Eleven persons were proceeded against for drunkenness, six of whom were fined and two were committed and no offences occurred at any of the public houses or beer houses during the year. Some attention was paid to the cells at the Station House at this time with PC Muscott making a request of the Council to supply some fresh rugs which he was approved to procure. The Council also requested an increase to the frequency of the limewashing of the cells, which had been done only once in the previous three years. Thenceforward it was to be performed twice a year.

Both the number of Police Constables in the Force and that PC Foster remained as one of those Police Constables were perennial constants of the Daventry Borough Police. However, the appointee as the second Police Constable changed hands several times during the existence of the Force. PC Jaggard rotated out after he was charged with being drunk and disorderly and for having been abusive to several people in a public house on 11th February 1863. The landlord refused to serve him the glass of ale he requested as he judged him as being too drunk. Mr Jaggard was fined 5s and costs of 8s 6d and appears to have been relieved of his duties with the Borough Police as a result. Mr John Muscott was appointed Police Constable in the Daventry Borough Police in his place. For the five years he served in the Borough Police from 1863, PC Muscott discharged his duties much to the satisfaction of the Mayor and the Council.

PC Muscott was also appointed Inspector of Weights and Measures. In May of 1867 he applied to the Council for a room that was then vacant and contiguous to his living quarters for his use in that capacity. The Council approved the request and ordered the room be taken for him for the rent of one pound per year. PC Muscott was directed to give notice to the tradesmen and publicans to have their weights and measures adjusted. After the 1st of June he was to call at the places and seize any weights or measures he may find unstamped or unjust.

Daventry Borough Police button (Courtesy Steve Seargent)

In December of 1867 PC Muscott applied for an increase in salary and, for his use as Inspector of Weights and Measures, a new pair of scales. Neither request was immediately taken up instead both were held over until the next meeting of the Council. At the start of the following February, little more than a month later, PC Muscott resigned from the Force. There were three applicants for the vacant office, namely Edward Connington Smith, Francis Smith and John Williams. After receiving the testimonials for the applicants, the Council determined to adjourn the election for a fortnight and to repeat the advertisement in order to attract a more suitable candidate. Mr Samuel Royle subsequently came forward and was appointed Police Constable and Inspector of Weights and Measures.

Although the Daventry Borough Police continued to have a strength of two Police Constables the Council continued in their attempts to overstate the resources of the Force. The Council had always considered there to be three Police Constables as they had appointed Mr William Edmunds as Chief Constable of the Daventry Borough Police. It was thought someone should be appointed to have control over the Borough Police although they provided neither a salary nor a uniform to Mr Edmunds. This made for an unorthodox arrangement that caused confusion even within the Council as to the responsibilities of Mr Edmunds. As he was without a uniform, HM Inspector of Constabulary, General Cartwright, informed the Borough Authorities he could not recognise him at all. This gave rise to an action at the annual Council Meeting in November of 1868 not to appoint a Chief Constable for the ensuing year. Other business at the meeting each year included the annual appointment of Police Constables for the Daventry Borough Police. At this time, PC George Foster was re-appointed Policeman as well as Inspector of Common Lodging Houses and Sanitary Inspector. PC Samuel Royle, was also re-appointed Policeman and Inspector of Weights and Measures. In the latter capacity, once a year, according to the Act of Parliament, PC Royle, as PC Muscott had before him, sent notices to all of the tradespeople that used weights and measures informing them that he will be prepared to adjust the weights and specifying where the weights may be sent for the purpose. When on his rounds to test the weights and measures PC Royle did not provide advance notice. Those found to be in violation of the Act could be summoned for having deficient weights. PC Royle was also willing to test anyone's scales but it did not come within his duty to adjust scales nor was he empowered to seize scales. In 1869 he had to summon only one tradesperson for deficient weights but several others for incorrect scales.

Both Police Constables were noted by members of the Council as being thoroughly efficient and attentive to their duties. In January of 1870, the Mayor and the Magistrates contacted several localities to ascertain how their Police were paid so they might review the adequacy of the salaries of the Daventry Borough Police Constables. From the comparisons they made they recommended PC Foster's salary be raised £5 per year, to £65 per year, and PC Royle's raised £2 10s per annum. After lengthy discussion the increases were adopted. The 1870 Inspection soon followed and noted the Constables had made progress diminishing vagrancy and that the four cells at the Borough Police Station were now sufficiently heated and in good order. The offences committed had also decreased considerably.

PC Royle continued as a Police Constable in the Daventry Borough Police until his untimely death in April of 1878. Four applicants were present at the Quarterly Meeting of the Council in May of 1878 to fill the empty post. After some discussion it was unusually concluded that the whole Council should appoint the new Constable, rather than the Watch Committee. The candidates were each called into the room to be interviewed and Mr Henry Saunders of Rushton was elected.

Reverse of the button (Courtesy Steve Seargent)

Although the annual Inspections by HM Inspector of Constabulary reiterated year after year the inefficiency of the Borough Police Force it was not until pressure was also introduced by the three religious bodies in the town in 1878 that a change was considered. Three representatives of these parties appeared in the annual Council meeting in November of 1878 to present a memorial that, although it was not numerously, it was influentially signed, asking the Council to consider uniting the Borough Police Force with the Northamptonshire Constabulary. They felt there was a great deal of room for improvement with respect to the Police Service in the Borough and that placing their Police Officers under the supervision of the County Police Officers would better serve the Borough. The three stressed it might be accomplished with little increase to the current expense and supposed the men could still be under the control of the Borough Magistrates. In light of this memorial it was agreed Police Constables Foster and Sanders should be re-appointed for only six months, as opposed to the usual period of one year, whilst the Watch Committee considered the matter. PC Foster was also re-appointed Sanitary Inspector and PC Sanders as Inspector of Weights and Measures until the end of the year when the Weights and Measures Act of the last Parliamentary session came into effect, by which all trade thenceforward would be under the imperial system of weights and measures.

In a Special Meeting of the Council in December to take up the question of amalgamating the Daventry Borough Police with the County Constabulary the report of the Watch Committee was adopted directing that the Town Clerk enquire:

  1. As to the conditions on which the police of the County could be introduced into the Borough
  2. As to how many men would be required to make the force efficient and to enable the Borough to obtain the grant from the Treasury
  3. And such other particulars as may be needful to form a judgement on the advisability of making such a change

The tender for police clothing was also due to be distributed but was delayed until these questions could be answered. The uniform worn by the Police Constables was adorned with silver plated buttons, 26mm in diameter, as pictured above. They featured the Seal that was produced for the Borough in 1595.

The sobriety of one of the Borough Constables was again a concern in April of 1880 when PC Sanders was charged with being drunk while on duty. However, the testimony of the several witnesses conflicted with many insisting he was perfectly sober on the day in question. PC Sanders volunteered that he had one glass of ale but that any question about the steadiness of his gait was due to him being out all day in a new pair of boots that hurt his feet and affected his walking. The PC was absolved and the complainant assessed the £1 2s in costs.

With an amalgamation once again failing to be brokered in 1878, the Daventry Borough Police continued as an independent concern until 1885 when the Town Clerks of Peterborough, Warwick and Higham Ferrers were contacted with a view to understanding their experiences amalgamating with the Northamptonshire Constabulary. Letters were received from each:

Warwick, 17th April, 1885

Dear Sir,

We find the amalgamation with the County Police to work very well indeed, and it is a great saving to the Borough, the only drawback we suffer from is the removal of the Constables rather too often, but on the whole we are well policed. I can send you a copy of the agreement should you desire it.

Yours Faithfully,

Ghathill Grunway

Town Clerk's Office, Peterborough, 18th April, 1885

Dear Sir,

Pressure of business alone prevented my answering your letter of the 14th inst. sooner. I cannot say that any inconvenience has arisen in relation to the control of the Police Force, as that is subject to a Watch Committee appointed by the Town Council; but there is a strong feeling in favour of a Borough Bench, so that all Borough cases may be tried by Magistrates resident within the city, and not, as now, by such Magistrates, together with others who have no stake in the city itself.

Yours Faithfully,

W. Mellors

Unlike Warwick and Peterborough, the Borough of Higham Ferrers never appointed their own Borough Police Force, instead choosing to appoint parish constables. In 1876 they entered into an agreement with the County to have one Police Officer of the Northamptonshire Constabulary supplied to the Borough:

Higham Ferrers, 15th April, 1885

Dear Sir,

In reply to your letter of the 14th inst., I think that the arrangement by which our small Borough is worked for police purposes by the County Police is not unsatisfactory. The arrangement is that one Policeman should be permanently stationed here, and the Borough paid £25 a year to the County, who have to find a residence for the man. Some members of the Corporation and other inhabitants think that we don't get enough for the money. But I can certainly see no disadvantage other than the pecuniary terms the County make being rather high; but, on the contrary, some advantage in the Police who work in the Borough being under the control of the Chief Constable of the County. I should add that the man stationed here does not confine himself to the Borough, and that the Police stationed in the neighbouring villages also patrol the Borough.

Yours Truly,

W. Hirst Simpson

In addition to the above replies to their correspondence, a memorial dated 2nd May was presented that was signed by 606 of the 779 burgesses who were vehemently opposed to the introduction of the County Police into the Borough of Daventry. In light of the large number of signatories opposed to the measure in that memorial it was unanimously carried that no further steps should be taken to substitute the County Police for the Daventry Borough Police.

By 1887, PC Foster and PC Sanders continued to comprise the Daventry Borough Police. As head of the Borough Police, Police Constable Foster continued to received £65 per year and lived at the lock-up rent free. As Lodging House and Sanitary Inspector, he received an additional £5 per annum. PC Sanders was provided free accommodation at the old lock-up and continued to be compensated with 21s per week in wages. As Inspector of Weights and measures he received an additional £5 per year. Crime returns for the year recorded nine convictions against thirty-one indictable offences. Three offences for drunkenness occurred and there were no assaults on the Police Officers.

The end of the proverbial road for the Daventry Borough Police came in 1889. The Force was disbanded on 1st April in accordance with the Local Government Act, 1888. The Act required municipal boroughs with a population under 10,000 to merge their borough police force with the county constabulary.

In their final year as the Daventry Borough Police the crime figures included convictions for nine indictable offences against 31 in the previous year; drunkenness remained the same, with three offences and there were no assaults on the Police. Upon the disbanding of the Daventry Borough Police PC Foster was granted a superannuation of £38 a year for his more than thirty-one years' of service. A gratuity of £40 was presented to PC Sanders. As PC Foster was over sixty years of age and PC Sanders over fifty, neither was not eligible to join the Northamptonshire County Constabulary. The Town Council offered PC Foster the position of Inspector of Nuisances for £10 per year and £10 per annum for the additional appointments of Inspector of Common Lodging Houses, Inspector of Markets and Fairs, Collector of Market Fair Tolls, Mayor's Sergeant, Attendant at the Council meeting, et al. As PC Foster had always done his duty efficiently it was thought they could not appoint a better man for the duties. Mr Foster was pleased to accept the appointments at the sums named. 

Sources
  1. Northampton Mercury, 04 July 1835, 24 February 1838, 17 March 1838, 17 April 1841, 11 April 1846, 04 July 1846, 05 September 1857, 19 September 1857, 16 April 1859, 28 February 1863, 14 March 1863, 17 November 1866, 04 May 1867, 14 December 1867, 15 February 1868, 14 November 1868, 26 June 1869,13 November 1869, 05 February 1870, 04 March 1871, 11 May 1878, 16 November 1878, 07 December 1878, 08 May 1880, 09 May 1885, 12 April 1890 *
  2. Western Daily Press, 31 October 1878, 07 April 1888 *
  3. Oxford Times, 27 April 1867 *
  4. Nuneaton Advertiser, 06 April 1889 *
  5. Northampton Herald, 11 May 1889 *
  6. The History of Her Majesty's Inspectorate of Constabulary The First 150 Years
  • * The British Newspaper Archive
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