His bill allowed for two elected councillors from each township, but the warden, clerk and treasurer were to be appointed by the government. This thus allowed for strong administrative control and continued government patronage appointments. Sydenham's bill reflected his larger concerns to limit popular participation under the tutelage of a strong executive.[13] The Councils were reformed by the Baldwin Act in 1849 which made municipal government truly democratic rather than an extension of central control of the Crown.