However, an Act passed later that decade, which did not include opt-out clauses, was accepted, and in 1860, Douglas elected its first town council, which was predominantly middle class in its makeup. The Town Commissioners could tackle the town's problems with greater efficiency, and by 1869 the sewage problem had been largely resolved. The Commissioners also worked to alter the anachronistic architecture of Douglas, built during the era of fishing and trading, and no longer amenable or safe for tourists. The proportion of the total Manx population living in Douglas was also expanding, with 35% living there by 1891. The Victorian and later modernisation of the town was achieved at the expense of the original maze-like layout of the oldest streets. These were cleared away in the new street schemes and slum clearances of the 1870s to 1920s. The town's infrastructure was radically altered for tourists' convenience, and in 1878 the Loch Promenade was constructed. In 1870, there were 60,000 visitors annually; by 1884, this had grown to 182,000. In 1887, 310,916 visited for Queen Victoria's Golden Jubilee. The earliest organised ferry services emerged between Douglas and Whitehaven, established by William Nicholson in the 1750s. More formally, Nicholson's Packet Service began in 1765 or 1766, and the Post Office mail contract was secured by 1782. Sailings were irregular and heavily dependent on weather conditions. Steamer services brought a considerable improvement; the first regular link (en route between Greenock and Liverpool) was available from 1819. The formation of what became the Isle of Man Steam Packet Company in 1830 led to greatly improved services, and also laid the foundations for growth in both cargo and tourist traffic. The Royal National Lifeboat Institution (RNLI) has a lifeboat station at Douglas. The first lifeboat station in the port was established in 1802. In 1825 it was one of the first lifeboat stations to be provided with a purpose-built lifeboat; this was at the request of Sir William Hillary, the founder of the Institution. It was not operational between 1851 and 1868, and it closed in 1895. The current station, established in 1874, operates the lifeboat "Sir William Hillary". There are three memorials to Sir William in Douglas: one in St George's Church where he was buried in 1847, one on Loch Promenade, and the other on Douglas Head near where in 1832 he established the Tower of Refuge.