something rare elsewhere in the state. The town-meeting style of government then prescribed for townships proved ill-suited to those changing times. The New Jersey Constitution gave the state government in Trenton relatively weak powers over the townships, but from time to time the legislature attempted reform. The townships were divided into road districts, with residents appointed to see that maintenance was done; in 1859, the state allowed residents of each district to elect a road commissioner, who saw to it their road taxes were spent effectively. Many of these districts later became individual municipalities, with the road commissioner often the first mayor. Legislation Until 1875, municipalities had been created or modified only by special acts of the legislature, but a state constitutional amendment that year abolished special laws for individual municipalities. Thereafter, lawmakers passed general laws regarding municipalities, and left incorporation of new ones to referendums in areas wanting redress, and to the courts. In 1878, the legislature passed the Borough Act, allowing landowners in an area less than and with fewer than 1,000 people to seek a referendum on secession from the township to become a new borough. This referendum could take place on petition of the owners of 10 percent of the land, as measured by value, in the area in question, and 10 days notice of the vote was required. In 1882, the legislature expanded this measure to allow areas of less than to become borough commissions with some autonomy within the township. Another impetus towards more municipalities developed in the 1870s, with the New Jersey public soured on the railroads because of the Panic of 1873. The newly Democratic legislature passed laws that ended tax exemptions on railroad-owned lands. Much of the land, generally near stations, was sold off, and was transformed into communities that in the following years would secede from the township in which they lay, creating some of the "doughnut holes", with boroughs surrounded by the townships they were formerly part of, that mark the New Jersey municipal landscape today. In the 1893 elections, Republicans recaptured control of the New Jersey Legislature. This was due in part to another economic depression, the Panic of 1893, which had occurred with Democrat Grover Cleveland in the White House, and in part because some Democrats, like Republicans before them, had proven corrupt. The increasing commuter population also played a role; Bergen County contained (and still does)