It is generally conceded, however, that the Council did not satisfy the public aspirations. The president and councillors were all declared either sinecurists or paid servants of the Company. The mass of the people complained at not being represented. It was, however, a step very much in advance of what had been, although there was a suspicion in the public mind that it had something of the form of popular government without the substance. At the first meeting of the Council a number of measures were passed. To preserve order a volunteer corps of sixty men was organized, with a small annual allowance per man. Of this body, Sheriff Ross was commander. The settlement was divided into four districts, over each of which a Justice of the Peace was appointed, who held quarterly courts in their several jurisdictions. At this court small actions only were tried, and the presiding magistrate was allowed to refer any case of exceptional difficulty to the court of Governor and Council. This higher court sat quarterly also. In larger civil cases and in criminal cases the law required a jury to be called. A jail and court-house were erected outside the walls of Fort Garry. To meet the expense involved under the new institutions a tax of 7-1/2 per cent. duty was levied on imports and a like duty on exports. The Hudson's Bay Company also agreed to contribute three hundred pounds a year in aid of public works throughout the settlement. The year 1839 was notable in the history of the colony. A new Governor, Duncan Finlayson, was appointed, and steps were taken also to improve the judicial system which had been introduced. An appointment was made of the first recorder for Red River settlement. The new appointee was a young Scottish lawyer from Montreal, named Adam Thom. He had been a journalist in Montreal, was of an ardent and somewhat aggressive disposition, but was a man of ability and broad reading. Judge Thom was, however, a Company officer, and as such there was an antecedent suspicion of him in the public mind. It was pointed out that he was not independent, receiving his appointment and his salary of seven hundred pounds from the Company. In Montreal he had been known as a determined loyalist in the late Papineau rebellion, and the French people regarded him as hostile to their race. The population of the settlement continued to increase. In the last year of Governor Finlayson's rule, twenty families of Lincolnshire farmers and labourers came to the country to assist with their knowledge of agriculture. After five years' rule Governor Finlayson retired from office, and was succeeded for a short time by his old predecessor, Mr. Alexander Christie.