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NEWTON FREE LIBRARY NEWTON, MASSACHUSETTS
TABLE OF CONTENTS
Inaugural Address of the Mayor
Jan. 6, 1879
Officers of Newton City Government
1878
(p. v. of Auditor's Report p. ix of Auditor's Report
1879
Auditor's Report 1878
Includes:
City Clerk
p. 77-93 1878
Overseers of the Poor
p. 97-104 1878
City Marshal
p. 107-111 1878
School Committee 1879
Newton Free Library
1879
Fire
1879
Report of the Commissioners for Drainage and Sewerage Includes:
1879
Report of The Engineer p. 19-43
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3 1323 00360 5036
352 1878179
THE
INAUGURAL ADDRESS
OF
WILLIAM B. FOWLE
MAYOR OF NEWTON, TO
THE CITY COUNCIL,
JANUARY 6, 1879.
TY AND
UNION.
FOUNDED
CITY187
79.A
IN
UM.
NA
R
IT
AT
BOSTON: HENRY WASHBURN, PRINTER, 221 WASHINGTON ST. 1879.
HOLMEN 322
LI.
NEWTON,
MASS.
8852 Netop
2. 1 (1878-79). NEWTON COLLECTION
ADDRESS.
GENTLEMEN OF THE BOARD OF ALDERMEN AND COMMON COUNCIL :-
We have taken the oath of office, and by that oath have sworn to perform the duties of the several positions to which we have been elected. The phraseology of our obligation runs thus: "according to the best of our ability and understanding, agree- ably to the rules and regulations of the constitution and the laws of this Commonwealth."
Upon the due observance of this oath, largely depends the welfare and good management of the interests of our city. "To the best of our ability and understanding." Does not this imply that we should study to understand the powers, the duties and responsibilities of our several official positions, as defined by the Statutes which create those positions ?
Good government demands that the power, and consequently the responsibility, should be delegated to agents. Our City Charter creates many such agencies; the statutes add others; and we, members
4
MAYOR'S ADDRESS.
of the Common Council, of the Board of Aldermen, and Mayor, are agents to perform such duties as are designated by law to devolve upon our several posi- tions. No one of us can, nor ought we if we could, part with one iota of the duty and responsibility laid upon us by law. The duties appertaining to the several offices are established and marked out by the same power that creates these offices, and should be performed by those to whose care they have been entrusted. Thus, the praise for able and faithful performance, or the blame for incompetent or un- faithful service, could only fall where it would justly belong. I recommend study of the laws which charter and govern our city. The information gained through such study of the duties imposed upon each of us would be of great value to the city, and would allay much of that antagonistical feeling which has existed between the several branches, which, in my opinion, has no just cause, and which is much to be regretted.
The general policy during the past year has been to avoid and postpone all expenditures not impera- tively demanded. The result of this policy to the present time will be plainly shown by the figures to be hereinafter given. For the coming year this policy should continue.
5
MAYOR'S ADDRESS.
CITY ORDINANCES.
In matters of municipal government, for the pur- pose of aiding and carrying out in greater detail the statutes of the State, the City Council is given authority to enact ordinances or by-laws, and to establish certain penalties for the breach of their provisions. These ordinances must be strictly con- formable with law, or they are null and void, because illegal. A revision of the Ordinances, which was earnestly recommended in my address of last year, has made no progress. Early in the year 1878, find- ing that Ordinance Number Four could not possibly be obeyed, I addressed a communication to the City Council, calling attention to its contradictions and absurdities, and plead for a remedy. The subject of a revision of this financial ordinance was discussed, and all necessary amendments were agreed upon by both branches. It failed of final passage because of the insistance of the Common Council upon the adoption of an amendment suggested in that body, to the effect that the following words should be stricken out: "All claims and demands against the city not clearly within the province of any commit- tee, and incidental expenses not otherwise provided for, and any claim or demand specially referred by any committee, shall be examined and certified by the Board of Mayor and Aldermen."
6
MAYOR'S ADDRESS.
Simply stating that, as here used, there is no such thing as a " Board of Mayor and Aldermen," - the phraseology should be, the Mayor and Board of Aldermen,- I proceed to the important point. If the approval of bills, claims and demands is a legis- lative function, the power of approval belongs equally to both branches; if, on the contrary, it is an execu- tive duty, it then belongs, by law, solely to the executive department. The Board of Aldermen, with the Mayor, are the legal heirs of the Selectmen of the town. The charter says, "The executive power of said city generally, with all the powers heretofore vested by special statute in the selectmen of the town of Newton, and in the selectmen of towns generally, by the laws of the Commonwealth, shall be vested in and exercised by the mayor and aldermen as fully as if the same were herein specially enumerated." The selectmen, not the citizens, in town days, approved all claims.
As no ordinance can override the law, the result of such an amendment, had it been adopted, would have amounted to nothing, because of its conflict with the statutes. The approval of claims duly con- tracted, either under the statutes or under the ordi- nances, is an executive function which belongs to the Board of Aldermen and Mayor. If they see fit, they may employ agents; but neither themselves nor any other power, except the legislature, can divert
7
MAYOR'S ADDRESS.
the responsibility placed upon them by law to over- see, and, if they deem it necessary, control those agents.
Could this amendment have prevailed, and have been legal, it would have taken from the Board of . Aldermen and Mayor all power of decision for or against the validity of claims against the city, and have conferred it upon a joint standing committee composed of one Alderman and two members of the Common Council. This small committee could have rejected, and without appeal, bills contracted and approved by yet larger joint standing committees, or by the City Council, or by the School Committee, or in fact by any power whatever, and this power would hold until the ordinance giving it was amended or repealed. The superior policy and the greater safety to the city of such a course, even were it legal, is not perceptible to me.
The proposed amendment was illegal and conse- quently failed, and with it failed all hope of improve- ment for the time to the Ordinance on Finance; therefore, throughout the year, the City Treasurer has been prohibited by ordinance from paying: 1. "Claims certified by the Board of Aldermen;" 2. "Principal or interest due on any note, bond or other security of the City;" 3. Money "in advance on contracts made," or "for work begun and not completed, when payments are due."
2
8
MAYOR'S ADDRESS.
Under this ordinance the Mayor has the barren privilege of drawing several kinds of warrants upon the Treasurer, which the Treasurer is, by the same ordinance, forbidden to honor. It requires a clearer head than mine to reconcile these things; they are incompatible and absurd. No difficulty has arisen under this state of facts, because when the legislative power fails, the executive must act; but none the less is this ordinance a discredit to the city, and there are several others which sadly need the exercise of common sense towards their improvement.
If the subject of revising the ordinances should be acted upon, I would advise that from them should be excluded all that is now contained in the State laws. Much of our present ordinances is simply a repetition of the statutes; this is unnecessary, the State does not need that the City should endorse its laws; and it is always desirable to know what is State law and what is City ordinance. I would then, recommend the compilation of a City Reg- ister which should contain in connection with each subject of municipal management; first, such extracts from existing laws as bear upon the subject; next, the City ordinances relating thereto.
Again, as last year, I earnestly recommend a care- ful and thorough revision of the City Ordinances, and that competent legal assistance should be employed.
9
MAYOR'S ADDRESS.
FINANCES.
The organization of our City government follows so closely upon the termination of our financial year that it becomes impracticable to give precise and exact figures, the aggregate of the variation can, however, but be very slight in the following state- ments, and as the Auditor's detailed accounts will be placed before the citizens at a much earlier date than heretofore, I shall give herein only general results.
The financial standing of Newton at the close of business on December 31st, 1878, was as follows:
Total liabilities (excepting water construction,) $466,682.31 Total assets available, (excepting water construc-
tion,) . 162,043.58
Net City debt, December 31, 1878, 304,638.73
Net City debt, December 31, 1877,
323,748.12
Net reduction during year 1878,
19,109.39
Net water debt, December 31, 1878,
777,608.54
Net water debt, December 31, 1877,
771,440.59
Net increase during year 1878,
6,167.95
Total net indebtedness, December 31, 1878,
.
1,082,247.27
Total net indebtedness, December 31, 1877, . 1,095,188.71
Net reduction of all indebtedness,
$12,941.44
10
MAYOR'S ADDRESS.
During the year, $19,000 of the water bonds have been sold, and the proceeds expended in extending the mains and for other purposes of construction. This net reduction as shown would, except for this investment, have been some $19,000 larger.
With the hope that it might prove interesting to compare the expenditures of several successive years, one with another, I have carefully gone through the accounts of the several years since February 1, 1870, and have prepared the following table. The method adopted seems the only one under which a true com- parison can be obtained; it is, to deduct from the expenditures of each department the receipts carned by each, the result being the net cost to the city of such department. This process absorbs all of the receipts of the city excepting taxes collected. A careful examination of this table will show that our expenses as a city do not compare unfavorably with our former expenses as a town.
CLASSIFICATION OF EXPENDITURES.
TOWN. Year ending Jan. 31, 1871. One Year.
TOWN. Year ending Jan. 31, 1872. One Year.
TOWN. Year ending Jan. 31, 1873. One Year.
TOWN. Feb. 1 to Dec. 31. 1873. Includes a part of Dec. 1873. About 10%% months.
CITY. Year ending Dec. 31, 1874. Includes some Town Indebt- edness and a part of Dec. 1874. About 1 Year.
CITY. Year ending CITY Year ending Dec. 31, 1875. of Dec. 1874 Dec 31, 1877. of Dec. 1876 and CITY Year ending Dec. 31, 1876. Includes a part Includes a part Includes a part of Dec. 1875 and a part of and a part of all of Dec. 1877. Dec. 1875. About 1 Year. Dec. 1876. About 12% months. About 1 Year.
CITY. Year ending Dec. 31, 1878. One Year.
POOR .- Almshouse and Poor outside of Almshouse, MILITIA .- State Aid, Memorial Day, Burial Grounds,
$3,985 10
5,648 32 3,063 80
3,550 11
3,784 50
$4,659 89 775 55
$10,817 02
$12,132 76
$14,256 26 1,444 48
1,072 89
LIBRARIES,
6,250 00
1,760 96
6,399 38
7,371 09
POLICE,
3.543 84
6,285 72
12,295 02
7,488 77
11,084 83
14,161 89
17,131 31
15,199 34
14,601 75
LIGHTING STREETS,
7,874 53
16,641 14
22,048 03
21,049 08
20,608 37
25,952 97
22,071 98
25,875 01
22,194 09
FIRE DEPARTMENT,
19,286 72
31,172 57
24,559 12
41,615 89
44,688 43
30,757 45
23.681 33
42,478 32
31,707 33
INTEREST on all but Water Bonds,
19,143 33
21,139 68
24,858 94
27,554 61
28,514 73
30,200 77
18,949 79
22,326 85
23,805 84
GENERAL
16,500 28
15,381 54
20,987 18
20,745 51
20,673 42
25,247 66
23,450 04
21,273 77
19,345 51
EDUCATION-School Expenditures,
114,656 87
94,090 86
129,856 45
107,462 57
96,918 20
121,542 10
86,517 71
84,716 21
85,295 83
Including Ordinary Repairs, New ) Streets, Widening and Altering Streets Drains and Sewers, Sidewalks and
40,772 82
52,430 02
91,553 68
99,670 48
156,066 90
155,180 32
83,800 34
82,429 21
65,545 38
WATER MAINTENANCE, Including Interest on Water Bonds,
12,924 67
31,375 86
30,126 32
WATER SINKING FUND,
9,135 00
12,750 00
12,750 00
CITY DEBT SINKING FUND,
12,209 20
12,250 00
12,250 00
New City Hall .- Total cost $21,872.30; less Public Property sold $5,805.61,
10,138 08
5,928 61
2,000 00
Total Net Expenditures,
225,763 49 186,735 41
247,453 65
332,971 20
394,128 40
428,206 71
325,422 78 357,791 37
372,774 69 358,104 43
336,919 53 356,008 36
Premium and accrued Interest on Bonds sold,
21,306 29
39,028 08
28,380 01
46,144 96
11,312 60
23,375 35
39,554 15
14,670 26
32,368 59
19,088 83
2
3
8
9
9
13
14
15
456
486
516
550
819
886
993
1,047
1,084
71
73
86
99
96
96
97
96
97
44
789
354 951000
96.547 161000
7.97 911000
1001000
1011000
1021000
91,083 83
536,810 93
98,832 76
19,714 96
.
...
HIGHWAYS Crossings, Culverts, &c., Gravel, Land Damages, Public Squares, City Stables Concreting and Curbing, City Engi- neer's Department,
1,600 00
196 59
Commissioners on Sewerage,
Taxes Collected, net,
219,073 64
286,826 24
330,121 41 318,808 81
370,753 05
367,346 27
Accumulations of Sinking Funds for year,
21,344 20
25,865 21
26,147 00
Number of Permanent Police Officers,
Number of Teachers, Janitors, &c. (Schools)
757
570
, 14
Number of Miles of accepted Streets, . Net Expenditure for Water Construction,
418 871,000
901000
921 J-1000
$8,853 50
3,066 08
2,167 92
1,657 69
750 00
...
( Including City Hall, Printing, &c., Sala- ) ries, Insurance and Miscellaneous Ex- ( penses,
Excess of Expenditures over Receipts,
Excess of Receipts over Expenditures,
Number of Street Lights,.
12
MAYOR'S ADDRESS.
As the last eleven months of the existence of the Town of Newton may have, and probably did, include some unusual expenditures, and as it was not a full year, I have taken for comparison with the year 1878, the last full year of the Town govern- ment ending January 31st, 1873; the result is as follows:
EDUCATION.
Town year to January 31, 1873, . $129,856.45
City year to December 31, 1878, . 85,295.83
Reduction,
$44,560.62
The expenditures for new school-houses and lands in 1872-3, were $44,050.25, against but about $1,500 of similar expenditures in 1878. This would leave the actual reduction of 1878 below 1872 at $2,010.37. Number of teachers and janitors in 1872, 86; in 1878, 97.
HIGIIWAYS, ETC.
Town year to January 31, 1873,
$91,553.68
City year to December 31, 1878, . 65,545.38
Reduction,
$26,008.30
The miles of accepted streets have increased from 92 1000 to 102 014 1000· Sidewalks, drains, crossings, etc., have been greatly increased since the year 1872, and each year, to keep them in proper order, costs a considerable sum.
.
13
MAYOR'S ADDRESS.
FIRE DEPARTMENT.
Town year to January 31, 1873, $24,559.12
City year to December 31, 1878, 31,707.33
Increase,
$7,148.21
In 1872 an engine-house was built at a cost of $9,797.00, while in 1878 was built an engine-house at a cost of about $6,000. In 1878 the Fire Depart- ment paid to the Water Department $5,000 for the use of hydrants. In 1872 there was no such charge; in those days at fires we generally did without water. These items deducted, reduces this increase to $5,945.21, against which the efficiency of the service has been largely increased.
LIGIITING STREETS.
Town year to January 31, 1873, $22,048.03
City year to December 31, 1878, 22,194.09
Increase, $146.06
In 1872 there were 516 street lamps, against 1,084 in 1878.
POLICE.
Town year to January 31, 1873, . $12.295.02
City year to December 31, 1878, 14,601.75
Increase, $2,306.73
The number of permanent men in 1872 was 8; in 1878, 15.
14
MAYOR'S ADDRESS.
ALMSHOUSE AND POOR.
Town year to January 31, 1873, . .
$3,550.11
City year to December 31, 1878, . 8,853.50
Increase, $5,303.39
NEWTON FREE LIBRARY.
Town year to January 31, 1873, . .
0.00
City year to December 31, 1878, . .
7,371.09
Increase,
$7,371.09
INTEREST ON CITY DEBT.
Town year to January 31, 1873, .
$24,858.94
City year to December 31, 1878, 23,805.84
Reduction,
$1,053.10
WATER MAINTENANCE AND INTEREST.
Town year to January 31, 1873, . .
$196.59
City year to December 31, 1878, . .
30,126.32
Increase,
$29,929.73
SINKING FUNDS.
Town year to January 31, 1873, .
0.00
City year to December 31, 1878, . .
$25,000.00 .
Increase, $25,000.00
SEWERAGE COMMISSION.
Town year to January 31, 1873, .
0.00
City year to December 31, 1878, . $2,000.00
Increase, $2,000.00
ALL OTHER EXPENDITURES.
Town year to January 31, 1873, .
$24,053.26
City year to December 31, 1878, . 20,418.40
Reduction, $3,634.86
15
MAYOR'S ADDRESS.
The total net expenditures for town year to Jan-
$332,971.20 uary 31, 1873, were .
Deduct cost of schoolhouses, etc., $44,050:25
Deduct cost of engine house, 9,797.00 53,847.25
Leaving as the ordinary expenses of 1872-3, $279,123.95
The total net expenditures for city year to Dec.
31, 1878, were
$336,919.53
For purpose of comparison deduct as follows :
Cost of schoolhouses, . ·
$1,500.00
Cost of engine house at Upper Falls, 6,000.00
Cost of poor, excess of 1878 over 1872-3, 5,303.39
Newton free library, new expense, · Water maintenance, 66
7,371.09
30,126.32
Use of hydrants by fire department,
new expense, 5,000.00
Sewerage commission, new expense, 2,000.00
Sinking funds, new expense, . 25,000.00
$82,300.80
Leaving as the corresponding ordinary expenses of 1878,
$254,618.73
Reduction in favor of 1878, 24,505.22
The gain of 1878 over 1877, to the citizens of Newton, cannot be fully shown without the introduc- tion of another point, which is, that in 1878,
The total assessment of taxes upon the citizens
$378,057.64 was, .
While in 1877, it was, 394,111.95
Decrease in amount assessed, 16,054.31
Add reduction of City debt as previously stated, 19,109.39
Actual gain of 1878 over 1877, 35,163.70
3
16
MAYOR'S ADDRESS.
SINKING FUNDS.
Upon January 1, 1879, the Water Loan Sinking
Fund consisted of 19 of its own bonds at par, $19,000.00 In cash, 16,706.55
Total accumulation, . $35,706.55
The City Debt Sinking Fund consisted of 21 City
of Newton Water bonds, at par, . · $21,000.00
In cash, 16,927.83
Total accumulation, . $37,927.83
Total accumulation of both funds, . $73,634.38
Towards this amount the City has con- tributed three annual payments, as follows :
November 30, 1876, $21,344.20
November 30, 1877, 25,000.00
November 30, 1878, 25,000.00
$71,344.20
Accumulations in addition to cash supplied, $2,290.18
At simple interest, rated at three per cent. per annum, these payments would have yielded $2,209.01. Making proper allowance for premium paid on bonds purchased, it appears to me that, consistently with ample security, these sinking funds, gathering inter- est upon interest, should result in a greater accumu- lation than at the rate of three per cent., figured as simple interest.
I find upon examination of the accounts of the sinking funds, that upon November 30th, 1877,
17
MAYOR'S ADDRESS.
(besides the $21,000 bonds previously purchased,) there was on hand in cash $25,607.83; to this, on January 1st, 1878, was added collections amounting to $601.58. From these two amounts, on January 31st, 1878, $10,391.67 was invested in ten City of Newton water bonds. The balance, $15,817.74, re- mained on deposit in bank until September 9, 1878; it then, with accumulation, amounted to $16,914.10; upon the latter date, $9,400 was paid for nine City of Newton water bonds. The remainder, $7,514.10, with the $25,000 due November 30, 1878, remains uninvested to the present time.
These bank balances draw interest at the rate of 2 1-2 per cent. per annum. I believe that the money should have been used to better advantage. All the expenses of the sinking funds are paid by the city. They are not liable to sudden calls for outlay. Their only use for money is for investment; and I believe if promptly and properly invested, it could be made to yield a much higher rate of interest than 2 1-2 per cent., which rate only was earned on $25,607.83 from Nov. 30, 1877, to Jan. 1, 1878; on $26,209.41 from Jan, 1, 1878, to Jan. 31, 1878; on $15,817.74 from Jan. 31, 1878, to Sept. 9, 1878; on $7,514.10 since Sept. 9, 1878.
During this entire period, the city has been obliged to borrow money and pay four per cent. per annum
18
MAYOR'S ADDRESS.
for its use. It could, except for the prohibition of the law, have paid this higher rate to the sinking funds; the law, however, forbids the Commissioners to loan to the city.
I hope we may soon have a Board of Commission- ers to govern the investment of $33,634.38, which is now earning but 2 1-2 per cent.
SCHOOLS.
The net payments for educational purposes in
1877, were
.
$84,716.21
In 1878, they were . 85.295.83
Increase over previous year, 579.62
The standing of our schools is second to those of no other city or town in the State, this is due to the efficient labors of the School Committee and the Superintendent of Schools, and to the general excel- lence of the teachers. The annual report of the School Committee, soon to be published, will fully inform our citizens in relation to school affairs. I would especially call attention to facts which will therein be given, showing that the cost per pupil rules very low in Newton, compared with many other towns and cities. The City and the schools have suffered a great loss through the resignation of the Rev. Bradford K. Peirce, for four years the very efficient chairman of the school committee.
19
MAYOR'S ADDRESS.
HIGHWAYS.
In this department I include all expenditures which are under the management of the several committees on highways.
During 1877, the net cost was $74,502.75
During 1878, the net cost was 65,545.38
Decrease below previous year, $8,957.37
During the past year the expenditures of this department have been confined to things absolutely necessary to be done, viz: such repairs as were needed to prevent deterioration ; such work as seemed necessary to avoid litigation; and sufficient employ- ment for deserving citizens to enable them to escape pauperism.
Experience can alone show if it be possible yet farther to reduce the expenditures of this depart- ment. The requirements of the law must be obeyed or the same danger and trouble from which we have not ceased to suffer since we became a city, and from which we are now escaping, will be repeated. I allude to the action and orders of the County Commissioners.
Previous to the year 1872, the town did not grant sufficient money for the proper repair of the high- ways, nor did its votes meet the wishes of some citi- zens in the laying out, widening and improvement of highways. Appeals to the County Commissioners
20
MAYOR'S ADDRESS.
were frequent, and despite the urgent remonstrances of the Town authorities, were too often successful. Many very expensive and some very unnecessary widenings, layings out and improvements were ordered. These orders the Town and City were forced to obey and carry out, under the penalty of having the work done at their expense and yet not under their control. The action of the citizens in Town meetings was also left to the City as a legacy. Then it was not a very difficult matter, by careful management, to procure a vote laying out a street at the expense of the Town, which, when built, served principally to enhance the value of private lands, and was of small consequence to the Town.
The following list of expenditures made by the city in carrying out the orders of the County Com- missioners and of the town, may prove interesting; at all events it will enable our citizens to appreciate the fact that much of the expenditure upon highways since we became a city, is not fairly blamable upon the City Government.
ORDERED BY. COUNTY COMMISSIONERS.
LAID OUT. Cost to City.
Concord Street, width 50 feet, length 3,400 feet, $2,200.00 Needham Street, width 60 to 86 feet, length 5,600 feet, 22,589.00 Valentine Street, width 50 feet, length 3,900 feet, 9,911.00
Amount carried forward, . $34,700.00
21
MAYOR'S ADDRESS.
Amount brought forward, WIDENED.
$34,700.00
Beacon Street, from 50 to 70 feet, . 8,660.00
Crafts Street, from 40 to 50 feet, length 550 feet, 532.00
Homer Street, to 50 feet, length 5,600 feet, 500.00
North Street, to 50 feet, length 3,000 feet, 575.00
Walnut Street, to 50 feet, length 14,600 feet, . 18,681.00
Waltham Street, to 50 feet, length 4,300 feet, . 16,151.00
Watertown Street, 493 to 60 feet, length 5,520 feet,
250.00
STRAIGHTENED.
Centre Street, length 1,700 feet, .
650.00
Washington Street, length 3,600 feet, 1,000.00
GRADE CHANGED.
Chestnut Street,
1,906.00
Parker Street, length 800 feet,
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