Division of labour in the arts derives its efficiency from combination, adaptation, and subordination to direction to one end; but that which appears to be a division labour in local administration is, in fact, an insubordinate separation weakening the means of securing adequate skill and power, occasioning obstructions and defective execution, and enhancing expense. Were pins or machines made as sewers or roads are constructed, shafts of pins would be made without reference to heads---in machines screws would be made without sockets and it may be confidently stated, there would not be a safe or perfect and well working machine in the whole country [Sanitary Report 323]

Since Land drainage, street sewerage, house and cleansing, and water supply were now viewed as a united whole, it followed that 'the consolidation of all the structural arrangements comprising under-drainagem and surface-drainage, road structure and repair under one service is most required for the sake of efficiency'[233]. Since 'the extent od the area to be drained determines arbitrarily the extent of the operations of drainage'[303], the area of this service must be the same as the geological area of drainage. Drainage per se would be 'found to be a reduction of an existing charge for the expenses of sickness and mortality'[58]. But 'science applied to the improvement of drainage not only gives it efficiency, but reduces greatly the expenses'[58]. Since 'the local arrangements for cleansing and drainage of towns' generally presented only instances of 'varieties of grievous defects from incompleteness, want of science or combination of means for the attainment of the requisite ends'[36-7], it followed that the officers supervising the new arrangements must be thoroughly skilled in their work. Since the improvements would cost a great deal of money, impossible and unjust to impose on landlords with only short interests in their property, the cost must somehow be spread over a period of years. Lastly, since 'in the poorest districts ... the superior direction of such expenditure will, in the ordinary coursem fall into the hands of the owners of the worse-conditioned tenements who have the greatest dread of immediate expenses, who are under the stronest influence of prtty jealousies', the authority must be purged clean of all sinister interests [F 224-225].

A competent authorities he invented was a trifle vague. A precise formulation would not be reached until 1845, when the Health od Towns Committee investigated his suggestion. There must be new authorities, nominated by the Crown. Their area of jurisdiction must be the natural drainage basin, Their range of duties must embrace land drainage, sewerage and street cleaning, water supply, and the upkeep of the roads. These authorities must appoint as civil engineers only those who, by some public diploma, were admitted to have requisite skill and ability.

In 1840 a Select Committee of the Commons on the State of Towns had recommended that such Borads of Health should be set up as permanent advisory committees on sanitary problems. Chadwick opposed to this suggestion. The only real expert in detectiong insanitary conditions was the medical officer of the Union. All experience showed that the efficiency of such boards depended entirely upon how effciently facts could be brought to their notice. Inexperienced, amateur, part-time, and without expert guidance they blundered along, working hard but achieving little [227-228].