USA > Massachusetts > Norfolk County > Quincy > Inaugural address of the mayor, with the annual report of the officers of the city of Quincy for the year 1928 > Part 1
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City of Quincy
16 O
62
5 JANET 1792
QUINCY
1928
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https://archive.org/details/inauguraladdress1928quin
CITY OF QUINCY MASSACHUSETTS
CITY GOVERNMENT OF 1929
TOGETHER WITH THE
ANNUAL REPORTS
OF THE OFFICIALS OF THE YEAR
1928
6
625
MANET
QUINCY
CITY DOCUMENT NO. 40
BOSTON CHAPPLE PUBLISHING COMPANY, LTD. 952 DORCHESTER AVENUE
AN INDEX OF THE REPORTS APPEARING IN THIS VOLUME WILL BE FOUND AT THE END OF THE BOOK
INAUGURAL ADDRESS OF MAYOR THOMAS J. MCGRATH IN THE HIGH SCHOOL HALL, MONDAY, JANUARY 7, 1929
Gentlemen of the City Council:
As today marks the fortieth anniversary of the existence of city government in Quincy, I think we may for a moment stop and think of what forty years has meant in the life of the community. This span of years is not, either in the life of man or in the measure of time in a community, of much importance.
In comparison with the ancient history of old-world cities our American communities are extremely youthful. The metropolitan community of all New England can only boast of little more than one hundred years as a city and all other muncipalities take sub- ordinate rank as organized city governments.
Quincy, organized as a town in 1792, experienced in the inter- vening ninety-seven years of town government all the vicissitudes and all the hardships of a typical Massachusetts town. When, how- ever, its town form of government became too cumbersome to ade- quately give service to the people a change was made to a less democratic but more representative method of government. Dur- ing the years which have elapsed since 1889, extraordinary changes have taken place in the city. The whole character of the town has in a measure changed, and what was the placid New England country town gave way to the life and habits of a highly developed industrial city.
Perhaps nothing better demonstrates the remarkable changes that have taken place in Quincy since the inception of the first city government than in a perusal of the cost of that initial government and the net cost of the city in 1928. In 1889 the whole cost of the government was $343,486.34, while the budget of last year was more than ten times this sum. The population in 1889 was 14,600 and the estimated population in the present year is 70,000, or five times what it was when Quincy became a city. The valuation of the city in the first city year was $12,319,245 and the valuation in 1928 was more than $135,000,000, or eleven times more than in 1889. The expenditures for all school purposes in 1889 were $60,505.45 while the expenditures last year exceeded $1,000,000 or almost nine- teen times the educational costs of the first year of the city govern- ment.
These comparisons tell the story of Quincy's progress. Oc- casionally many of us demur at the high price which we must pay for living in a progressive community. Most of us upon reflection are willing to concede that these costs are only in keeping with what we demand and receive from the city government. Quincy has no reason to regret the money spent for the many fine public improvements which we have enjoyed in the last few years, and I deem it to be the sense of the community that this progressive policy shall be maintained.
Before proceeding with an outline of the 1928 program I have deemed it a matter of interest to give a summary of what the city
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CITY OF QUINCY
has spent for extraordinary purposes in the eleven-year period be- ginning in 1918:
Streets
$1,923,800 00
Sewers
612,000 00
Water
1,074,700 00
Drains
359,495 00
Hospital
538,000 00
Schools
3,017,500 00
Southern Artery
213,000 00
Norfolk County Hospital
85,951 81
Monatiquot Bridge
52,000 00
Granolithic Walks
211,669 57
Grand Total
$8,088,116 38
Average Capital Expenditures per year during this
eleven-year period
$735,283 30
From the foregoing tabulation it will be seen that Quincy has not been niggardly in providing those public improvements which strongly attract people to the city as a place of residence. While the expenditures in the past have been on a generous scale the needs of the community are still unsatisfied. The rapid develop- ment in certain sections has created an unusual demand upon the City Council, and while a great deal of public work has been accom- plished the extraordinary increase in population has created a sit- uation which cannot be met within the present limit of indebtedness.
New School Buildings
I refer particularly to the immediate and imperative need of new school buildings and the inadequacy of present credits to furnish capital. Under the operation of the statute, cities are allowed to use for all ordinary purposes two and one-half per cent of the average of the three preceding years' valuations. If Quincy were adding to wealth and population at the average increase rate in other cities of the state it would not be difficult to finance all im- provements inside our present debt limit. Quincy, however, has the distinction of adding to its population a greater percentage of increase than any other Massachusetts city or town, with the result that school needs multiply at a rate quite beyond the scope of the statute which limits our indebtedness. Just so long as this increase in population continues we will have the problem of trying to pro- vide sufficient school accommodation out of the wholly inadequate credits provided by law.
Of all the problems confronting the city government none de- mands more serious thought than that pertaining to our schools.
As shown by the summary just given the expenditures for school buildings exceeded three million dollars in eleven years, an average outlay of $274,318. In every year since 1923 one or more buildings have been added to the school equipment. Despite this liberal policy the need for new buildings is far from being fulfilled. In 1927 the city opened two junior high schools and in 1928 the Web- ster addition was ready for occupancy. The natural thought was that those new buildings would suffice for some time, and that the city would be relieved from the anxiety caused by crowded school- rooms.
The new buildings, however, only helped the situation for a while. The three junior high buildings are already filled and in the North Junior High the pupils greatly exceed the capacity of the building. The situation in this district is so acute that an addition to the
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INAUGURAL ADDRESS
present building is an imperative necessity. The request for an addition to the North Junior High and for additions to the Wol- laston and Gridley Bryant are among the possible recommendations of the school committee for 1929. In extending the facilities for housing the children in the Merrymount and Adams Shore district two ten-room buildings are now under construction and will be ready for the opening of the September term. These buildings will relieve the present over-crowded condition in the Coddington School and will at the same time provide the necessary school facilities for the children in two rapidly growing communities.
In seeking to meet the exigencies of a school building situation, which has no parallel in the history of Quincy and perhaps is with- out parallel in any municipality in the State, the Council late in the year granted $3,000 to be spent in procuring plans for addi- tions to the Montclair and Atherton Hough buildings. These plans are now being made and it is expected that they will be ready for inspection by the school committee early in February. In both these districts the children in the first grades are on a part-time basis and in the other classes the crowded conditions seriously im- pair the efficiency of the school work. At best these latter plans will not be ready for the Council much before the middle of Feb- ruary or early March, and appropriations for them will not be available, even if there is no lapse in the processes of legislation, before the first of April. If by good fortune, the contracts for construction could be awarded by the middle of April there might be hope that the buildings could be finished in six or seven months. This would mean that in these districts, now badly overcrowded, relief would be afforded some time in the fall.
I have devoted more than the usual amount of space to consider- ation of school matters for a two-fold purpose: first, to draw at- tention to the unusual situation relative to our school buildings; second, to bring forcibly to the attention of the Council and the people of Quincy the paucity of our resources. On one hand we have innumerable demands, and on the other hand we have the insuperable barrier of limited credits.
I believe that the members of the Council feel the urge to do as much constructive work as is possible, not alone in school buildings but in every other activity which is a part of a city's life.
Financial Review
In considering the work of the new streets, sewers, school build- ings and the general development of the city we must always keep our eye on the financial side of the ledger. For this reason I will give here a summary of our credits on January 1, and what these credits will be at different periods during the year. In parallel column I am also giving the estimated cost of some of the projects which will early demand attention from the City Council. I have also given the margin accumulation month by month through the year.
Credits
Margin within debt limit.
To which may be added the maturities by months :
$431,009
February
16,500
April
67,000
May
17,000
June
14,000
July
135,000
August
68,500
September
72,000
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CITY OF QUINCY
47,000
October
6,000
November
44,000
December
$918,009
Liabilities
Schools at Merrymount and Adams Shore
70,000
Sewer Construction
55,000
Squantum Street Widening
90,000
Chestnut Street
150,000
New Streets
325,000
Schools at Montclair and Houghs Neck
$773,000
Estimated
Borrowing Margin During Each Month, 1929
January 1
447,509
March 1
514,509
May 1
531,509
June 1
545,509
July 1
680,509
August 1
749,009
September 1
821,009
October 1
868,009
November
874,009
December 1
918,009
January 1
From the exhibit here shown it will be seen that our total credits for the year will be $918,009. If this sum were available on June 1 there would be no difficulty in financing any of our many under- takings, but unfortunately this sum is largely made up of accumu- lations after August 1st. This is rather late in the year to start work that is seasonal in character, and in consequence the Council will be forced to provide money for many objects from credits avail- able not later than June 1. The margin on June 1st will be $531,509.
The whole question of how to finance our urgent needs is the out- standing problem of the year. If I may so suggest to the mem- bers of the Council I think our wisest plan would be to allocate the sum of $325,000 for new schools at Montclair and Houghs Neck and $70,000 for sewer construction. These sums would total $395,- 000 and would leave a credit balance January 1 of $36,009. On May 1 this credit would be $119,509 and the Council could at that time make an initial appropriation of $100,000 for new streets. The payment for West Squantum street and for the preliminary work on Chestnut street could be financed out of surplus income until such time as the margin available was large enough to sup- port a loan issue. The money for both these projects could be ob- tained after August 1.
This outline of what is possible to do within our financial re- sources leaves untouched the problem of how to finance the exten- sion of Franklin street. I do not believe that this matter need give undue anxiety this early in the year as the preliminary work of surveys and studies of the proposed street will take some time. The public hearing on the acceptance of this street will probably be held early in February and the probabilities are that the Coun- cil will want to take reasonable time before taking final action.
Total credits for year
$83,000
$431,009
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INAUGURAL ADDRESS
Need for More Money to Provide School Buildings and Hospital Additions
With the unusual situation relative to school buildings now fairly well understood by all I hope that the needs of another splendid institution will not be overlooked. The hospital is doing a fine work for the people of the city and its good name is growing even faster than the demand made upon it for service. The present facilities do not meet the needs of the city and the Council last year voted the sum of $5,000 for the purpose of procuring plans for a new building. The architects, Mclaughlin and Burr, promise these plans within a short time and then the city government will be con- fronted with another problem-that of finding a way to finance the hospital addition.
This brings us to a realization of the limitations of our present indebtedness law. By the terms of the municipal indebtedness act cities are allowed to incur indebtedness not exceeding two and one- half per cent of the preceding three years' valuation. When Quincy became a city and for some years afterward the limit of in- debtedness was one and one-half per cent. The increase of one per cent was granted because of changed conditions in the cities. The present limit antedates the war period and is manifestly insuffi- cient to meet the needs of a community like Quincy. To repeat an old story we can only say that under the present law Quincy is un- able to meet the demands caused by the increase in population.
For many years there has been a feeling that the law relative to municipal indebtness should be changed, but so far the Legisla- ture has not granted additional latitude to cities. A recess com- mittee has been studying this problem and perhaps some more gen- erous provision will be made in the matter of indebtedness. The nature of these recommendations has not been given to the public, but in the meantime our own situation impels me to ask the sup- port of the Council in petitioning for an additional grant of credit. As of January 1st of this year our debt outside the limit is $2,543,- 500, of which sum $788,000 is for water and the debt inside the limit is $2,770,000, making the total indebtedness $5,313,500.
Based on a valuation of $135,452,648 our indebtedness is 3.92 per cent of last year's valuation. I believe this is a very favorable showing and a good argument why we should be allowed to add at least one-half of one per cent to our total indebtedness. This would give $640,201 and would assure the city that all school and hospital buildings could be immediately constructed. Once we can overcome our present difficulties I am sure that all future construction can be provided out of accumulated credits. I hope the Legislature will listen to our plea as I feel that we are amply justified in asking for relief because of the operation of two factors: the growth in popu- lation and the decreased value of the municipal dollar through the inflation of construction costs.
Abolition of Grade Crossings
For many years the people of Quincy have waited patiently for fulfillment of the conditions embodied in the decree plan but un- fortunately nothing substantial had been done up to 1927. Soon after the opening of the year proceedings were brought to compel action by the railroad company and a decision favorable to the city was rendered by the court.
From this decision the railroad company appealed and while this appeal was pending the whole matter was taken up directly with the railroad officials.
With the city solicitor I have attended many conferences with
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CITY OF QUINCY
the railroad heads with the result that the latter submitted certain modifications to the decree plan. I felt that this was a matter which had been long delayed and which did not promise immediate fulfillment unless the parties in interest could accept a plan which might be somewhat different from the decree.
The late city engineer and the engineer of the railroad company had substantially worked out plans that seemed worthy of the con- sideration of the city council, and as soon as these plans are com- pleted the whole matter will be submitted to the Council.
Beale Street Widening
Now that the city has successfully carried through the widening of West Squantum street and the new bridge, we may look forward to the time when Beale street, from Hancock street to Newport avenue, will be similarly treated. This main artery carries con- siderable traffic of all kinds and the present roadway and bridge are not of sufficient width to accommodate the constantly increasing travel. Beale street is the principal business street of the district and a new bridge and wider roadway will do much to increase the value of property in this section.
While this meritorious undertaking may not be possible this year I hope that plans may be soon perfected so that if means are at hand in 1930, the work can be done. If, however, the grade cross- ing problem at Quincy and Quincy Adams can be solved this year it might be advantageous to the city if the Beale street work could be done at the same time. The two projects are in no sense re- lated, except that the railroad intends to drop the tracks at Wollas- ton when the grade crossing work is done. If this plan is followed our only difficulty will be a matter of finance, but I believe that this can be taken care of at the proper time.
Public Health and Recreational Work
I feel it would be unfair if mention was not made of two agencies which have splendidly responded to the public needs. I have in mind the work of the Health and Park departments, which, although dissimilar in scope, similarly serve as builders of the body.
The health work in this city is second to none in its intensity and thoroughness, particularly among young children, and I feel a defi- nite pride in the enthusiastic co-operation of the public in the work of the various clinics and in the health camp at Braintree, the latter a new activity in 1928. That the work for the children has been of inestimable value is attested by the health statistics of the city, and it is to be hoped that this commendable undertaking will gain increased public support.
To the work of the Park Department equal praise must be given. Our playgrounds have been equipped and supervised, and during the season have been the rendezvous of hundreds of young children who have been expertly guided in their summer play. By advice of the Park Board the time of supervised play was extended until middle October, but I am not fully informed as to the net results of this innovation. The whole purpose of our playgrounds has been so manifestly successful that I hope that the good work of child recreation will gain new momentum with the succeeding years.
Tax Collections
In my statement to the Council at the beginning of 1928 I called attention to a matter which has long been a reproach to Quincy. Our tax collections are altogether too slow and in consequence the
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INAUGURAL ADDRESS
city is penalized each year in interest and principal charges on temporary notes. The fault does not rest with the tax collector or with those working with him, but is the cumulative result of many years' indulgence toward the backward taxpayer. City officials are importuned year in and year out to withhold tax sales and the sequence is always the same-our colections are so long delayed that the temporary loan obligation becomes a fixed debt charge.
The fault is so largely in custom that I sincerely hope that in any discussion of the problem of tax collections all tax collectors may be absolved from blame. The situation, however, calls for drastic action. The city needs the income to maintain its depart- ments, and this should be collected with reasonable promptness.
One reason for the outstanding success of the state and county governments is that their incomes are collectible within a specified time. If a municipality or individual does not meet demands by the state and county, penalties are immediately imposed and the offending city or individual is humiliated as well as penalized for not meeting just demands. There are, of course, obvious difficulties in enforcing collections in municipalities. Concessions must be made to those who either because of poverty or sickness are unable to pay promptly, but in the majority of cases failure is simply the result of too much lenity on the part of the city.
The situation here has become so alarming that a more stringent policy must be adopted. Tax sales will be held early this year and will be continued until such time as the entire levy is collected. In 1928 the city was forced to incur an indebtedness of $150,000 to cover the shortage in tax collections. To avoid a repetition of this circumstance and also to force a different attitude toward this im- portant matter I intend to invoke the power of the law to get pay- ments of overdue taxes.
Water Department
At other times the members of the Council have been informed of an impending change in water rates due to certain increases in Metropolitan charges because of the new water loan. This loan is $65,000,000 and it is expected that it will be taken up within fif- teen years, with the heaviest drafts within ten years. It is apparent that this means a very heavy increase in assessments to Quincy. Unless the city is willing to assume the burden in general taxation water users must pay higher rates. An attempt was made last year to defer principal payments until the peak of the present loan was passed but failed because of the governor's veto.
Another attempt may be made to get a similar measure through the Legislature this year and thus avoid the burden of two big debts coalescing within the next few years. Our present municipal water charges are not adequate to meet the expenses of the de- partment, and the city annually makes up a deficit through charges against departments. No present computation has been made by the Metropolitan District commission as to the probable charges against any community. Therefore Quincy must wait until actual outlays are made for the new system before definite information can be obtained.
The Fire Department
Under authorization by the Council in 1928 this important de- partment will be strengthened by creating four new places and by an addition to the personnel. The men promoted to deputy chiefs and to captaincies will have an opportunity to get training to fit them for the responsibility of directing operations at fires. I feel
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CITY OF QUINCY
that the appointees will fully realize the responsibilities of their new berths and will give freely of their efforts to fit themselves for their new duties. When all the appointments are confirmed and ad- justments made I am confident that the earnest work of increasing the efficiency of this department will go forward with enthusiasm.
Last year the Council consented to the retirement of two mem- bers and this year, if possible, it might be well if other retirements are made. The majority of the members should be men in their prime, more especially so because of the type of buildings being constructed which offer a greater challenge to physical agility than did the one-story type. The department is in the main well- manned and well-equipped and the promise is good that soon after reorganization the force may be given periodical drills in all the phases of fire fighting.
One great disadvantage in successfully coping with the fire haz- ard in the business districts is the overhead wires but I am hopeful that within these districts immediate steps will be taken to carry all wires in conduits. This work has actually started and from the station on Field street to a point near the High School the wires are underground. The company has signified its inten- tion of extending this work to cover part of Quincy Square. The work of burying the wires is expensive, but considering the dangers of the present overhead system and the obstacles placed in the way of the firemen I feel that the change should be carried on until all business districts are cleared.
The Police Department
Six new members were added to this department last year to meet the demands for more protection in certain sections of the city. I am of the opinion that the force is large enough for the needs of the city provided that every member is giving his maxi- mum service.
This maximum service is not given in all cases due to much in- termittent sickness and as a consequence there is more or less shift- ing about to take care of these absences. This brings down the efficiency of the force and also tends to weaken morale. Sympathy and consideration will be generously given to those stricken with a serious sickness.
One loses patience where periodical absences are ascribed to sick- ness, either fancied or simulated. The mayor has no power under present ordinances to deal with this situation but must rely on the council to correct what appears to be a growing evil in this de- partment.
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