 But despite the lack of finances, the massive public works project continued (and intensified) during Shepherd's term as governor of the District of Columbia.Although the Organic Act of 1871 had given the governor power to issue construction bonds in the city, to the consternation of white landowners, Shepherd nonetheless put it to a referendum to demonstrate his widespread popular support in the city thanks to the black voters who backed him.However, the cost of the modifications was excessive.