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NEWTON FREE LIBRARY NEWTON, MASSACHUSETTS
TABLE OF CONTENTS
Inaugural Address of the Mayor
Jan. 7, 1878
Officers of Newton City Government 1877 (p. v. and p. x of Auditor's Report ) 1878
Departmental Reports
Period Covered
Auditor
1877
City Marshal
1877
School Committee
1878
Newton Free Library'
1878
Water Registrar
1878
Fire
1878
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N 352 N48P 1877/78 c.1
THE
INAUGURAL ADDRESS
OF
WILLIAM B. FOWLE,
MAYOR OF NEWTON, TO
THE CITY COUNCIL,
JANUARY 7, 1878.
LIBERTY AND UNJON
FOUNDED 1
79.A CITY1873
ING
NO
UM.
TA
ORAT
T
BOSTON :
PRESS OF AMIDON & WASHBURN, 221 WASHINGTON STREET, 1878.
BE
NOIMG
NEWTON,
LIBRARY,
362 NHBP 1 (1877-78)
NEWTON COLLECTION
ADDRESS.
GENTLEMEN OF THE BOARD OF ALDERMEN AND COMMON COUNCIL :-
The management of the interests of the City has been entrusted to our care, and we in our several positions are now to commence the duties attendant upon our acceptance of those positions. Managers should be influenced and governed by surrounding circumstances; those which now surround us are, a depressed state of business, and great shrinkages in values, both of property and income, requiring from all classes the practice of retrenchment and economy ; it therefore becomes us to mark out a general line of action which shall be in accordance with these facts. Had our tax payers money to invest, I should urge that the promotion of the health, security, and com- fort of our city as a home, would be the surest and best paying investment possible, securing to ourselves an additional supply of benefits that help to make life pleasant, enhancing the value of property and reducing the rate of taxation through attractions thus afforded to new citizens to settle among us and share in the public burdens.
4
MAYOR'S ADDRESS.
Now, however, but few if any, have spare means for investment. It seems therefore, true policy, to content ourselves with maintaining the position which, as a city, we have already attained, and await the coming of more prosperous times for such expendi- tures as are attendant upon improvement. I hope and think all will agree that we ought not to deteriorate in the three great points of health, security and comfort.
HEALTH.
To the boards of health of towns and cities as established by law, is given greater and more arbi- trary power than to any other department of govern- ment. To that board is given complete authority to abate all nuisances which are, or may become, dele- terious to the sanitary condition of the community. Boards of health, under the laws, have absolute con- trol over the following subjects : "all sources of filth," "all causes of sickness," "care of contagious or infectious articles," "unfit dwellings," "removal of infected persons," "removal of a neighborhood from about an infected person," "vaccination," "quaran- tine," "providing a hospital, if needed," "establishing locations for offensive trades," "inspection of meat, fish and provisions," "improvement of such lands as are wet, rotten, spongy, or covered with stagnant water." "transportation of offal," "management of
5
MAYOR'S ADDRESS.
night soil," "grave-yards and burial of the dead." Surely all of these are subjects that should command the attention of municipal managers, and nearly all of them can be controlled at a very small expense to the public. Once discovered, pointed out and known, the owners may be ordered to abate nuisances; should they fail to do so, the city may proceed with the necessary work, at the expense of the owners.
It has been proven beyond the possibility of a doubt, that neglect of these matters, causes diptheria, scarlet fever and kindred diseases. It may be, as is claimed by some, that our city is, as yet, healthy enough. To this I reply, we need an agent experienced and educated in such matters, whose entire time shall be devoted to keeping it healthy, procuring that vaults shall have proper ventilation, that drainage shall not find its way to wells, that stagnant pools of water and many other sources of peril to health, shall be cured.
The State Board of Health, composed of seven gen- tlemen, all of them experts in sanitary matters, who perform its duties without compensation, and give much of their valuable time to the sanitary condition of of the state, use this language in their report for 1876: "the boards of health of most of the cities and towns of Massachusetts have no idea of the responsibility which belongs to their office;" and again they say, "the selectmen of our towns and the executive officers
6
MAYOR'S ADDRESS.
of our cities have not the time to attend to the duties of health officers, not to mention that they are not especially fitted by education for such work." This board recommended the passage of a statute requiring that cities should establish boards of health, the mem- bers of which should be others than members of the City Council, one member to be a physician. As origi- nally proposed, the act was mandatory, but it was amended in the Legislature by a proviso that its acceptance or rejection should be submitted to the popular vote; in Newton, at our November election, it was defeated. In the report for 1876, of the State . Board of Health, is a table giving the death rate in sixty of the cities and larger towns of the state; in this table Newton does not appear; in fact, as a city, we have ignored all of the applications of this State Board for even such statistical information as is needed for the benefit of the whole community; we have no officer capable of giving the information required. The City Council of 1877, refused any and all appropriation for health purposes, and in our city the subject has as yet received so little attention that it amounts to nothing.
As compared with health, dollars are valueless. So long as one family continues to live in a filthy man- ner, and its children attend our schools, none, however cleanly themselves, are safe from contagion. As a simple business question, as a matter of policy only,
7
MAYOR'S ADDRESS.
the mere name of paying attention to this matter is worth tenfold its small cost.
I also recommend that the City Council, in accord- ance with permission given by the city charter, shall elect a City Physician.
SECURITY.
Protection to person and to property should receive the constant attention of all governments. Our Police Force is as follows:
The Chief Marshal-stationed at City Hall-on duty during the day, but subject to calls at all times.
One officer-at Newton Corner-on day duty only. One officer-at City Hall-on duty from 1 P. M. to midnight.
These constitute our protectors by day, and of these the City Marshal has many duties to perform which necessarily render his absences from headquar- ters frequent and long. These absences as far as pos- sible are made in the afternoon while the officer is on duty, but it is often impossible to avoid leaving our police headquarters with no officer. This should not be; in case of emergency citizens should always be certain of finding an officer somewhere, at some fixed point, and this point should be at headquarters. Another day officer is, it seems to me, required to fill this want.
8
MAYOR'S ADDRESS.
Our protection by night is as follows: two officers at Newton, and one each at Newtonville, North Vil- lage, West Newton, Auburndale, Lower Falls, Upper Falls, Highlands and Centre; ten patrolmen in all, and one sergeant, mounted, who is also, like the chief, subject to calls at all times. Our city has about 140 miles of streets; in my opinion one watchman at night in a village covering a considerable area, can be easily avoided by two or more designing rogues, and depre- dation be committed with too great certainty of im- punity. I suggest that the city be divided into two sections, with a sergeant for each; this would require one more sergeant than now. These sergeants, mounted, reporting at times at the several villages, by the celerity of their movements, and the uncertainty to depredators of their whereabouts, would give greater protection to property within the villages and some protection to outlying property. I am well aware that even with these additions our police will form a very small force considering the area to be protected, but for the present it can be made to answer and be far more effective than now. The truth in regard to our police lies here, if the object is to detect and pun- ish crime, we have a much larger force than is neces- sary; if to protect person and property and prevent crime, the force is quite insufficient. So far as its num- bers can make it so, the force as at present consti-
9
MAYOR'S ADDRESS.
tuted is in good discipline and composed of efficient men.
For protection from fire we are well secured. The Fire Department is in excellent working order, both as to the condition of the buildings and prop- erty of all kinds, and as to the discipline and efficiency of the force. In relation to the engineers and perma- nent men, I would suggest that their appointment by the Mayor and Aldermen, should be placed upon the same footing with that of the Police, and their term of office be " during the pleasure of, and until re- moved by, the Mayor and Aldermen." I think this change would give greater permanence to the several positions, and should consequently ensure more careful and attentive service, engendered from the increased desirability of the offices, while it could in no manner prove injurious to the interests of the city.
COMFORT.
This matter has two bearings: first, satisfaction to ourselves in having good highways and sidewalks, street lights, water and kindred comforts; next, the inducements offered, through these comforts, for new comers to locate among us. I believe that while prop- erty owners do, and must pay nearly all the expenses, it conduces to their pecuniary interest that our city should maintain a position in advance of rival
10
MAYOR'S ADDRESS.
localities, and continue to be as attractive a place for residence as any in the state. In my opinion, our city has arrived at a point when it is so thickly settled, that within its limits, sewerage, drainage and offal of all kinds can no longer be disposed of, or purified by the processes of nature, and art must assume these func- tions; and yet, it covers so great an area, and is gen- erally so sparsely settled, that the cost to each indi- vidual must be greater than it would otherwise be. Heavy expenditures for drainage, especially, cannot much longer be avoided, and the true, business like remedy for a large percentage of taxation, lies in offering every possible inducement towards the increase of the numbers of our citizens. These remarks are now intended to urge that we do not, in these particulars, permit our city to retrograde; we should await a more prosperous future ere we under- take to do more.
During the last month, the commission, created by the City Council of 1876, upon the subject of drain- age and sewerage, reported in general terms that the matter was under consideration, and that the engi- neer (Mr. Sawyer) employed by them, was at work upon the data essential thereto. Ere long we may expect such information as will enable us to estimate the cost attendant thereon. The laws permit this cost to be provided for by a twenty year loan.
11
MAYOR'S ADDRESS.
FINANCES.
It is impossible at this time to give an exact state- ment of the financial condition of the city, but we may approximate closely to facts, the difference being such bills as have not been rendered, and which will probably add a small amount to the liabilities. By ordinance, our financial year closes upon December 31st; the practice has heretofore been to make up the accounts as of that date. This has been very imper- fectly done. The account for 1876 gives the liabili- ties as they stood on December 31, 1876, but in those liabilities is not included some of the salaries, and all of the bills for the month of December, 1876, which were then due. This same condition of things now exists. It is true that an entire year's expense, or what is intended to be such, is included in each yearly account, but the practice is peculiar. The salaries of teachers and some city officials is embraced to Jan- uary 1, 1877, while those of the police, and all bills are included from December 1, to December 1; in other words, there is omitted from December expenses just what was omitted the previous year, and there is included what was included the previous year. It will be plain that an opening is here left for great abuse, and that manipulation can always prevent expenditures from exceeding appropriations, in appearance.
12
MAYOR'S ADDRESS.
Our yearly grant has been made to cover the expenses of the city from January 1st to December 31st.
The expenses of a city are not alone money paid, but also all liabilities incurred for material supplied, work performed, or service rendered, in short, all just claims, whether paid or unpaid. By our practice we vote taxes to cover the expenses in part, of two Decembers, and the eleven months between them in whole. As long as this practice continues our citi- zens can never learn from published statements the exact financial condition of the city. Should this practice continue, there will, of the expenses of 1877, those incurred in that year, go forward to be paid in 1878, a known amount of $28,000, and perhaps other bills not yet rendered. I recommend that the Auditor be instructed to see that there is included in the accounts for 1877, the payment, so far as is known, of all the expenses of that year, so that his state- ment of assets and liabilities may, when published, be brought to a definite point, be reliable and exact.
With the exception that some small bills may yet come in to increase liability, the following was the financial standing at the close of business on December 31st, 1877 :-
13
MAYOR'S ADDRESS.
Total liabilities, as per books, $1,286,020 93
Add unpaid for December, estimated 28,000 00
Total liabilities.
$1,314,020 93
Assets as per books, $220,200 68
Deduct unpaid taxes of 1871, 1872 and 1873, considered uncollectable, . 2,549 73
Total assets, $217,650 95
Total net indebtedness January 1, 1878. $1,096,369 98 Net indebtedness of January 1, 1877, per Auditor's statement. $1,075,112 85
Increase of net indebtedness during 1877.
$21,257 13
For the year ending December 31, 1876, the total payments of the City Treasurer were $1,096,348.93, say-
Water construction, $553,058.98
State, county and bank tax. 40,283.59
Interest, 57,087.12
Sinking funds,
21,344.20
State aid,
1,612.00
Education,
86,533.64
Ordinary city expenses, 202,629.40
Loans paid,
133,800.00
$1,096,348.93
The corresponding figures of 1877, were as fol- lows :-
Total payments of City Treasurer were $755,551.56
Say-
Water construction,
$113,985.03
State, county and bank tax, 39,755.16
Interest,
72,206.19
Amount carried forward,
$225,946.38
14
MAYOR'S ADDRESS.
Amount carried forward,
225,946.38
Sinking funds,
25,000.00
State aid,
1,400.00
Kenrick fund.
202.50
Water maintenance,
6,247.78
Education.
83,581.15
Ordinary city expenses.
213,173.75
Loans paid,
200,000.00
$755,551.56
The receipts of the City Treasurer for the year ending December 31, 1876. were from all sources. $926,111.54
Say-
From Loans,
$484,000.00
Taxes.
398,074.96
Premium and accrued interest
on bonds sold.
15.515.24
Interest.
9,697.42
State aid,
1.400.00
Miscellaneous sources.
17,423.92
$926,111.54
The corresponding receipts of the City Treasurer
for 1877, were from all sources. $785,108.93
Say-
From Loans, $321,000.00
Taxes, 397,862.31
Premium and accrued interest. 315.00
Interest.
7,105.01
State aid. 1,553.50
Water collections (construction), 14,837.27
Water Rates, 17,986.77
Kenrick fund
1,202.50
Land sold,
9,835.00
Miscellaneous sources, . 13,411.57
-
-$785,108.93
MAYOR'S ADDRESS. 15
One source of income, which during 1875 and 1876 had lessened taxation and the net indebtedness of the city very materially, ceased to assist us in 1877. In 1875, the premium upon water and municipal bonds sold, and the interest collected for the use of water money amounted to $16,377,65; in 1876, they amount- ed to $15,619.24; in 1877, this source yielded only $315.00. Although these receipts kept down taxa- tion and reduced net indebtedness in appearance, they really and simply are the result of promising for a term of years to pay a higher rate of interest than money was worth, and are consequently to be repaid gradually in the form of a higher rate of interest than would otherwise have been required.
To the above add the fact that the town under its government, used to pay all its bills to February 1, while the city now only settles in full to December 1. and pays only a small portion of the December bills, and that both town and city have in each year laid a tax which was intended to cover a full year's expen- diture, and it is evident that we have somewhere gained in appearance, a sum equal to the whole expenses of January, including a semi-annual pay- ment of interest, and nearly all the expenses of one December month, therefore in all comparisons that may be made between our different published reports, these items, amounting to some $90,000 to $100,000,
2
16
MAYOR'S ADDRESS.
must be taken into account in order to ascertain the true reduction of net indebtedness.
The credit of our city is second to none. Such loans as it has been necessary to make, have been negotiated at the lowest prevailing rates of interest.
SCHOOLS.
The total payment for educational purposes in
1876, were $86,533 64
In 1877, they were 83,581 15
Reduction below previous year, $2,952 49
In my belief our schools have fully maintained their rank and usefulness, and are the models they should be. The annual report of this department gives all possible information concerning them, and as my own experience in connection with them has been slight, further comment would be valueless. I will only add, that I regard with great interest the introduction of military drill, and hope for its con- tinuance and extension ; an erect bearing and improved physique are in themselves no slight advantage. Education in this direction, and the taste often acquired through such education, has already proven of incalculable advantage to the nation, and may become of equal advantage in the future.
17
MAYOR'S ADDRESS.
HIGHWAYS.
During 1876, the payments for this department
were
$78,015 75
During 1877, the payments were $81,076 67
Increase over previous year, .
$3,060 92
During the past year, the management of this department has been subjected to close criticism. I shall bear testimony that the work of the Committee on Highways, and especially that of its chairman, has been judicious, arduous and untiring, and I regret to add, with some of our citizens, owing to misrepresentation, it has been thankless.
We have about one hundred and forty miles of roads. If we intend to maintain our reputation for their character, the repairs alone of this immense extent must be costly. In my opinion, true economy demands that they should be maintained at the standard. Suffer them to deteriorate, and the after cost of recovering that standard will be much greater. Thanks to the work of this committee, the roads, generally, were never in better condition than they now are.
Upon consultation with the present chairman of the Committee on Highways, I find that if this department is relieved from assisting in the support of the poor, the expenses for 1878 need not exceed $50,000, a sum $10,000 less than was appropriated, and
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MAYOR'S ADDRESS.
$20,000 less than it was found necessary to expend during last year. Of this $50,000, it is estimated that $10,000 will be needed for finishing work heretofore ordered by the town, county and city, the remainder, $40,000, will suffice for mainte- nance.
In 1876 there was expended in this department. beyond the cost of maintenance, the sum of $10,427 73. During 1877, these extra items have been as follows: High street, $1,500; Walnut street, $1,300; Concord street, $1,500; Beacon street, $1,000; Crafts street, $500; Station street, $500; Lyman and Willow streets, $250; Eldridge street, $300; Salary of City Engineer, $1,300; Horse for Superintendent of Streets, $250; Almshouse, care of horses, grain, etc., $1,082 79; Cheesecake Brook, $6,000; and estimated cost of employment of poor above the value of the service received, $5,000- a total of $20,482 79, exceeding similar expenses of the previous year by $10,055 06. Upon this basis the expense for maintenance for 1876 was $67,588 02, and for 1877, $60,593 88, a reduction below the pre- vious year of $6,994 14.
In this department the law places upon the Mayor and Aldermen the duties of surveyors of highways, and requires them under a penalty, to keep the roads in good condition in summer and winter. This duty must be performed by surveyors of highways, at the
19
MAYOR'S ADDRESS.
expense of the city, whether there is any appropria- tion for such purpose or not. Inasmuch as this duty is, by statute, laid upon the board of Aldermen, I think the present practice of appointing a joint standing committee, having in charge the repairs of highways, is improper. The responsibility being
placed by statute upon the Aldermen, that board should have control of the matter and receive the praise or blame their management shall merit. In committee they may now be outvoted by the members upon whom no legal responsibility rests. In the City Council there should be three committees upon high- ways. 1. A joint standing committee upon "the laying out, altering and widening of highways." 2. A committee of Aldermen upon repairs of high- ways. 3. A committee of the Common Council also upon "repairs of highways," which latter com- mittee should keep itself advised and propose such legislation as it may deem desirable or advan- tageous.
OVERSEERS OF THE POOR.
During the past year the sum of $10,259.57 has been expended upon the "Poor out of Almshouse," against $9,336.14 so expended during the previous year. Justly this outlay should stand debited with
*
20
MAYOR'S ADDRESS.
an additional amount, which amount, (about $5,000). should go to the credit of highways, to cover the employment by the latter department of many labor- ers who were partially, if not wholly incapable, but out of work and suffering. The employment of John Warner as agent or almoner of the Board of Over- seers, has, I believe, resulted in quite a saving to the city, not alone from the closer examination into the necessities of applicants, but largely on account of reclamation upon other places for repayment of assist- ance afforded to persons not having a legal settlement in Newton. I hope that such an agent of the board may be continued, but the office should be legally established, and the agent legally ap- pointed.
During the present year, the charities of the city must necessarily be large, as those out of employ- ment will probably be many, we should therefore watch this department closely, not to prevent assist- ance when needed, but solely to evade imposition. I suggest the appointment of a joint standing com- mittee of the City Council, whose duty it shall be, to keep advised as to the condition of our poor, the doings of the Board of Overseers, the management at the Almshouse, and all other subjects connected with this department.
21
MAYOR'S ADDRESS.
ASSESSORS' DEPARTMENT.
The total valuation of our city for May 1, 1876, was as follows:
Real estate, .
$21,128,120.00
Personal estate,
7,074,945.00
Corporate stocks,
1,192.310.00
Bank stocks,
1,101,623.00
Total valuation.
$30,496.998.00
The total assessments were $421,668.04, and the rate of taxation was $13.60 on $1000.
The total valuation of our city for May 1, 1877, was-
Real estate, .
$20,007,025.00
Personal estate.
6,627,488.00
Corporate stocks,
1,007,000.00
Bank stocks,
862,000.00
Total valuation,
$28,503,513.00
The total assessments were $394,111.95, and the rate of taxation was $13.60 on $1000.
The valuation, and assessment thereon, of our prop- erty is a subject of great interest and importance, and it seems to me desirable that the City Council should keep itself better informed than it has heretofore been, upon all matters relating to this department. I would suggest the creation of a joint standing com- mittee for this purpose. I have the utmost confidence
22
MAYOR'S ADDRESS.
in its present management, but think the City Coun- cil should maintain a link of connection between itself and all the departments.
The question of what property is exempt from taxation, and why it is thus exempt, should receive examination and perhaps action. In relation to relieving all property used for religious and benevo- lent purposes from the burden of taxation, the propriety is unquestionable. The only question that affects our city is the justice of exempting private schools from taxation, and also its legality. The statute provides that corporations established for educational purposes shall be exempt from taxation, provided, " no part of the income or profits of their business is divided among members or stockholders, or where any portion of such estate is used, or appropriated for other than literary, educational, benevolent, charitable, scientific or religious purposes." In my opinion, private schools, although incorporated, are not covered by this provision, and while Newton annually appropriates a sum sufficient to provide for the education of its own children, it does not seem just that this especial business should evade its fair portion of the public burden.
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