USA > Massachusetts > Middlesex County > Lincoln > Town Report on Lincoln 1898-1902 > Part 32
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The foregoing vote was adopted by the town, and, in accordance therewith, the Committee now submit the fol- lowing report :-
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After careful consideration, the Committee employed Messrs. H. T. Whitman and Channing Howard, of Boston, to make a practical examination of the water works of the town, and to make any recommendations which might seem to them expedient in regard to the future management and operation of the same. They also employed Mr. William J. Smith, of Boston, to examine the accounts and to report the financial results of the system from the beginning to the present time, showing how much the works had cost, and suggesting any changes which might seem expedient in the methods of book-keeping and accounting.
The reports of Messrs. Whitman and Howard, and of Mr. Smith, are hereby submitted in full, for the information of the town. They are in the opinion of your Committee comprehensive and thorough, supplying all the information necessary to enable the town to deal intelligently with the matter in question.
Your Committee will, therefore, confine itself to the brief- est possible recapitulation of the more important results reached by the experts. Certain votes will then be sub- mitted, the immediate passage of which by the town is rec- ommended.
From the reports in question, it would appear :
(1) The entire length of public way in Lincoln is esti- mated at 50 miles. Of these 15.133 miles have been piped, or 30 per cent of the whole. Practically all the mileage thus piped is in what is known as the South part of the town.
(2) The apparent actual cost of the Water Works has been $101,132. This does not include any allowance on account of annual deficits under the heads of Interest and Maintenance. It represents only money actually put into the plant.
(3) The outstanding debt of the town, on account of Water Works, is $57,000, from which should be deducted the amount of sinking-fund on hand, $3,989.20, leaving a
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net debt of $53,010.80. The balance, $48, 121.20, besides all deficits in Interest and Maintenance accounts through twenty-eight years, representing, with interest compounded annually, approximately $144,859.00 has been paid out of the annual tax levy.
(4) The present value of the physical plant of the town of Lincoln is estimated at $91,000.
(5) During recent years, the revenue of the Water Works has averaged approximately $6,000, and that sum suffices to pay all costs of maintenance, including interest and provision for sinking fund, with a balance of about $800.00 per annum, after meeting one of the $1,000 bonds which comes due yearly.
(6) The works, therefore, are now practically self- sustaining.
(7) The system as a whole is well designed, and the works, including pumping station, reservoir, distributing pipes, hydrants, etc. are in a fairly satisfactory condition ; though a portion of the main pipe, as originally laid, will require renewal at a time not now remote. Certain exten- sions also should be ordered, and provided for, at an early date.
(8) Sandy Pond can be depended upon for a supply of water of an excellent quality, ample for the needs of the town of Lincoln for an indefinite period.
(9) The annual consumption of Lincoln is estimated at 55,000,000 gallons; that of Concord at 120,000,000 gal- lons ; a present aggregate of 175,000,000 gallons. As the total annual reliable supply from Sandy Pond is estimated at only 200,000,000 ; and, as the consumption of both towns, especially that of Concord, is rapidly increasing, we are obliged to assume that the time has already arrived when Sandy Pond cannot be depended upon safely to supply both Lincoln and Concord.
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(10) The daily consumption of Lincoln is now 361 gallons per capita of its population, and that of Concord 145 gal-
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lons per capita of its population, the figures in each case to be compared with a consumption of too gallons per day, the estimated average per capita in "Greater Boston."
(II) The average annual rate per taker paid in Lincoln is approximately $28.40, as compared with a general aver- age in towns similarly situated of $23.
(12) The charges for water in Lincoln are collected on a fixed rate; whereas, in other towns a system of meter measurement for takers is growing in vogue, and is found Conducive to more sparing use.
(13) The whole southerly section of the town now de- pends for its water supply upon a single 6-inch main pipe, cement-lined, which has been in use twenty-eight years, and is liable at any time to stoppage from accident, or other- wise. It must, of necessity, be replaced at a day not now remote; and, meanwhile, immediate steps should be taken to obviate a pressing danger from this source.
(14) There are seventy-three hydrants in the town, cov- ering, in case of fire, upwards of two-thirds of the dwelling houses.
(15) The rate charged for water in the town (10.3 cents per 1000 gallons) is not high ; but the takers use an unusual quantity (136 gallons per person per day ) of water.
(16) The annual average operating expenses of the works during the last five years have been $2,920.00 repre- senting a cost of 6.1 cents per 1000 gallons used.
(17) In Lincoln the tax payer and the water consumer are not identical ; but the tax payer, as distinct from the water consumer, has heretofore borne the heavier part of the financial burden of the works. This, however, is no longer the case.
(18) The correct basis on which the expense of a muni- cipal Water Works system should be placed, is that the town shall "pay annually to the water department for water and fire protection ; then the annual rates to consumers must be enough, and need be no more than enough, to pay all ex-
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pense of operation, all interest due on cost of construction, and to pay to a sinking fund an amount which will liquidate the debt when it becomes due, or pay notes as they become due, so that the whole plant will be paid for in not over thirty years."
(19) The books and accounts of the town and the Water Works system should be kept wholly separate and distinct, and, in the case of Lincoln, for the immediate future, by sep- arate officials. This change your committee regard as of the first importance, and essential to any effectual reform of the system.
In view of the foregoing conclusions, and the facts set forth in the accompanying reports, your committee respect- fully submit herewith certain votes, the passage of which by the town they would recommend :
All of which is respectfully submitted.
CHARLES F. ADAMS, WILLIAM S. BRIGGS, JULIUS E. EVELETH,
Committee.
VOTES SUBMITTED BY THE COMMITTEE.
Voted, That complete separation be hereafter effected of the expenses of the Water Works from the expenses of the town, and the Water Works be operated as an independent company, having its own Treasurer and Accountant, the cost of the same being charged to the maintenance account of the said works.
Voted, That the Water Commissioners be instructed forth- with to take all necessary measures, gradually to substitute the meter system for the fixed rate system, in all cases of water consumption other than those of a purely household or domestic character.
Voted, That, in the opinion of the town, the entire system of charges now in use, whether for hydrant or household purposes, should be revised with a view to a more equitable
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adjustment of the burden, and to the end that the system may be made absolutely self-sustaining at the earliest practica- ble moment.
Voted, That the Water Commissioners be instructed to take immediate measures to effect a connection from the present end of the pipe, near Baker's Bridge, to the pipe on Higginson Road, with a view to preserving the southerly section of the town from danger of being tem- porarily deprived of its entire water supply through accident to the original cement-lined pipe upon which it now depends exclusively.
Whereas, the inhabitants of the north part of Lincoln have for many years contributed their full proportion of the cost of maintaining the Water Works, and have not received any benefit from the same,
Voted, That the town shall, as soon as possible, extend the service to that section so that it can be used by any resident who desires it.
Voted, That this report, and all the accompanying docu- ments, be referred to the Water Commissioners for their in- formation and guidance, and that they be instructed to con- form to the recommendations therein contained.
Voted, that the Selectmen communicate a copy of this re- port and the accompanying documents, officially to the Se- lectmen and Board of Water Commissioners of the town of Concord, for their information and guidance in any contin- gency which may reasonably be expected hereafter to oc- cur.
Voted, That this report be accepted and the committee discharged.
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Engineers' Report.
BOSTON, Dec. 20, 1901.
MR. CHARLES F. ADAMS, MR. WILLIAM S. BRIGGS, MR. JULIUS E. EVELETH,
Committee on Condition of Water Works, Lincoln, Mass.
GENTLEMEN : -
We have at your request examined and studied with care all matters which appear to us, or were called to our atten- tion by your committee or by the Water Commissioners, as relating to the condition of the water works of the town.
We have visited all parts of the works and traversed the piping system and also other parts of the town, also exam- ined carefully every report made by the Water Commis- sioners, and the financial reports in connection with the same, since the works were instituted, also in a more general way the accounts of the Town Treasurer so far as relating to water works matters.
We found no comprehensive plan showing the water works or the town streets, and therefore we proceeded to make such a plan or map which we hand you herewith.
As the matter has various phase's and any careful report must be at some length, we have treated the matter topi- cally as follows :-
I. GENERAL HISTORY OF THE WATER WORKS.
2. FINANCIAL HISTORY OF THE WATER WORKS.
3. WATER SUPPLY AND CONSUMPTION.
Water Supply.
Population and Consumption.
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4. DESCRIPTION AND INVENTORY OF THE WATER WORKS.
Pumping Plant. Force Main and Reservoir. Distribution System.
5 . PRESENT VALUE OF WORKS.
6. INCOME AND OUTGO.
Annual Income or Revenue.
Annual Outgo-Maintenance-Operation. Water Rates.
Town Appropriation.
7. THEORIES OF PAYMENT FOR WATER WORKS. Construction and Maintenance. Tax Payer vs. Consumer.
8. FUTURE PROSPECTS.
Financial Problem. Source of Supply. Physical Plant. Extensions.
9. RECOMMENDATIONS.
GENERAL HISTORY OF THE WATER WORKS.
The town of Lincoln is supplied with water for the ex- tinguishment of fires, generation of steam, supply of public fountains and hydrants, and for domestic and other uses, under a permissive act being Chapter 188 of the Acts of the General Court of 1872. This act, while somewhat brief and general, and providing with one exception the same terms for the towns of Concord and Lincoln, covers most of the points necessary for the construction and convenient admin- istration of a water plant. This act provides as follows : -
Both towns may take water for the purposes aforesaid from Sandy Pond in the town of Lincoln, and also waters which flow into and from the same; may erect dams, reser- voirs, buildings and other structures ; take and hold land for such purposes as raising the level of the waters in the pond
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and for purifying and preserving those waters and convey- ing them as desired through conduits or pipes; must pay any damages which may occur to any person or corporation by these special privileges, and also provides a penalty for any person other than said towns, who shall use or divert or cause impurities therein. It also provides for a water loan not exceeding $50,000, payable within thirty years; and provides that it shall be ultimately paid from the water rates if practicable, providing for annnal payment of the interest and not less than one per cent of the principal and also pro- vides that any net surplus beyond this amount shall go into a sinking fund to be applied solely to the payment of the principal of the bonds; provides for the election of a Board of Water Commissioners who shall consist of the treasurer of the town, the chairman of the Selectmen ex-officiis, and three persons to be elected by ballot by the inhabitants of the town, and provides for their compensation ; and it further provides that " if in the future the water of said pond shall prove insufficient for both towns, the town of Lincoln shall be first supplied." The act is made subject to the accep- tance by a majority of the legal voters of the town present and voting at a meeting held for the purpose within one year from the time of the going into effect of this act. The act was approved by the governor April 10, 1872.
The inhabitants of the town in Town Meeting assembled on Nov. 5th, 1872, voted by a majority vote to accept the above mentioned act. The work of construction was commenced in 1874, and the works apparently were first operated in 1875. During these years, the present reservoir and a pumping station were constructed, and a single boiler and two small pumps were installed. During these years about two and three-fourths miles of pipe of the cement lined variety was laid. This pipe is shown by a heavy red line on the accompanying plan. Several hydrants were set at this time, and the Water Commissioners reported on Febru- ary Ist, 1876, that the works were entirely completed, some $33,000 having been spent.
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The system seems to be in general well designed for the purpose to which it was to be put, although some parts of the works were built on too cheap a basis. We judge that the reservoir was well built, and the pipe-laying well done.
The works seem to have been operated without extra- ordinary incident so far as the mechanical operation is con- cerned, but from a financial standpoint the first term of years could not be called either successful or satisfactory. It would seem that the limited number of water takers com- pared with the original cost of the plant and the mileage of pipe laid, was so small that without most excessive water rates the works could not, and did not, pay their way as provided in the Act.
In 1877 the operation of the water works was turned over to the takers, they paying the operating expenses in return for the benefit received for the taking of the water. The town seems to have received no benefits from the water rates, except what it received through this method of barter, and paid the interest of the water works outstanding liabili- ties, i. e. $1,800 per year. This condition of things con- tinued until July Ist, 1887, when, by a vote of the town the operation of the works was turned back to the Water Com- missioners of the town.
The Commissioners made some much needed repairs and improvements, viz .: Repairs to pumps, a new boiler and new chimney, which were paid for as a part of maintenance. Commencing with 1890, various extensions of the piping system were made, and the number of water takers was materially increased in the next few years, and it would seem that the works got upon a more substantial footing. The extensions made from 1890 to date have been eighteen in number and about eleven miles in total length and the number of takers has increased comparatively rapidly dur- ing this time.
On January 2Ist, 1896, a narrow strip of land was taken around Sandy Pond for purpose of protecting the purity of its waters. We have not been able to ascertain the exact
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cost of this land as in some cases suits were brought, and have not yet been settled.
In 1897 a new Act was obtained from the Legislature being Chapter 341 of the Acts of that year, enabling the town to borrow an additional sum of $25,000.00 on much the same condition of payment as the original act specified, money to be used for the purpose set forth in the original act.
In 1897 a new twelve-inch cast iron pipe was laid from the pumping station to the reservoir, a much needed im- provement, both as to safety and economy of operation. In the following year a small new pump, called an " under- writer fire pump," made by the Dean Steam Pump Co., was installed. In 1899 a new boiler was installed in the old pumping station. In 1900 the old pumping station was torn down and a new one built, and a new pump and one new boiler both of permanent and substantial size and ar- rangement were installed, and new connections made from the pumping station to the edge of Sandy Pond, and a sub- stantial gate or intake chamber was there constructed and new connections made with the distributing system, giving, as a result, the water works plant as we find it today.
FINANCIAL HISTORY OF THE WATER WORKS.
In the following approximate summary, the cost of con- struction is taken as given in the Town Reports of the various years, and will only give the true cost of construc- sruction in case all items which should be charged to con- struction account have been so listed in the Town Reports. The amount given below is probably a little short of the full amount paid for construction to date.
The construction of the works as originally built, seems to have cost up to 1877, $33,810.33 . This construction ex- pense was not materially added to until 1890, when the policy of making extensions was adopted, and from that date to the present time extensions put in have amounted to
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about eleven miles, and have cost, including about sixty hydrants, about $37,000. Adding to the above amounts $9,453.79 the sum spent for the new force main in 1897, $868.37 the sum spent for new pump and connections in 1898, about $18,000, the sum spent in 1899, 1900 and 1901 for new pumping station with two boilers, new pump, intake chamber, etc., and say $2,000 as the cost of land takings around Sandy Pond, and we have about $101, 132 as the apparent cost of the works to date. Of this amount we ยท understand the outstanding debt at the present time to be $57,000, the remainder, together with interest, having been paid (practically all) from the sinking fund and annual tax levy - the sinking fund having in turn been made up by contributions through a term of years from the annual tax levy.
Although the accounts seem to be somewhat mixed, as between construction and operation, we judge that the oper- ating expenses have always been paid from the annual revenue, and since 1895 the interest on the outstanding debt has apparently been paid from the same source, and for say three years there has been a sufficient annual balance from the revenue to pay one of the $1,000 bonds which come due yearly.
The original bonds of the face value of $30,000 bearing interest at six per cent were apparently sold in 1874 for $28,835. These bonds were for a term of twenty years, falling due December Ist., 1894, when $10,000 was paid from the proceeds of a sinking fund which had been accu- mulating for several years, the remaining $20,000 by refund- ing. Other bonds and notes have been issued since, see inventory in the last Town Report.
We are told there is still a sinking fund kept up and that it now amounts to $3,989.20. The total debt is of course the amount reported, viz .: $57,000 less the amount in the sinking fund.
To find what amout the water works are really indebted to the town (if they had in financial matters been conducted
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according to the original act of 1872, and according to the usually adopted methods of keeping water works finances entirely independent of the town's, both as to interest account, payment to sinking fund, and payment for exten- sions) would be an intricate matter, which should be referred to an expert accountant, and possibly would gain no useful end. Whether or not interest were computed on interest, it would show a very large sum against the water works.
WATER SUPPLY AND CONSUMPTION.
(Water Supply) Sandy Pond, located centrally in the Town of Lincoln at the head of Stony Brook, is the source of the water supply for the Towns of Lincoln and Concord. (Sandy Pond has an area of about 150 acres and a tributary watershed of probably a little over 300 acres.)
The average water service of the pond is about 220 feet above mean high water in Boston Harbor, and while the rise and fall of the water is not usually very emphatic, it has been known to vary in depth to the extent of four and one- half feet. We understand that the water has always been, and is, of good quality and we see no reason why it should not continue both potable and wholesome for a considerable, if not an indefinite time to come. The small population in the watershed and the slow growth in the population and the preservation of the wooded areas, together with the taking made by the Town above mentioned of the shores of the pond extending nearly the entire circumference, insures a good and plentiful supply. Plentiful if, when it shall become necessary, Concord will seek a new supply.
The State Board of Health reported in 1895 that "prac- tically all of the water which it (Sandy Pond) will furnish in a dry year is used to supply the Towns of Concord and Lincoln." And in 1896 the consumption has probably already nearly reached its safe capacity."
In 1895 Mr. Wheeler, Civil Engineer, reported to the Concord Water Commissioners that Sandy Pond would
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yield over 182,000,000 gallons of water per year on the average. January 1, 1895, Mr. A. E. Wood reported to the Lincoln Water Commissioners that Sandy Pond would give an available water supply (per year) of 182,476,800 gallons. Mr. Wheeler says in the report indicated that there need be no alarm or anxiety as to the adequacy of the supply to meet all the normal requirements of Lincoln and Concord for years to come, or till the population materially increases.
While we are told that there has not been an actual shortage of water up to the present time, we are forced to the conclusion that Mr. Wheeler's opinion to hold good to-day must be read with the emphasis on the word " NORMAL."
The consumption in Concord and Lincoln-as will appear below- is doubtless over 200,000,000 gallons per year and with a supply of only 182,000,000 gallons per year, it is patent that the consumption must materially decrease or that it will only need a dry year, or a series of dry years -- as was experienced in 1894 and '95-to cause a very appa- rent and perhaps a distressing shortage.
Neither Concord nor Lincoln are in the Metropolitan Water District and so apparently cannot expect supply from that source.
(Population and consumption). The growth in popula- tion of Lincoln and Concord is shown by the following fig- ures, viz :- The population of Lincoln in 1850 was 719, in 1870, 791 ; in 1890, 987 ; and in 1900, 1127. The popula- tion of Concord in 1850 was 2249 ; in 1870, 2412; in 1890, 4427 ; and in 1900, 5652.
Of course all the inhabitants of Lincoln or Concord, like many other towns, do not obtain their water from the pub- lic water supply.
About 4,000 people are supplied with water from the public supply in Concord at the present time. It was re- ported by the Concord Water Commissioners in 1894 that approximately 186,000,000 gallons of water were used or an average of upwards of 508,000 gallons per day. It was also
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reported by the Commissioners that in June, 1896, the con- sumption in one day was about 500,000 gallons. Assuming there were 3,500 people then supplied, this would give an average consumption of about 145 gallons per day per capita, which is a large amount.
Mr. Wheeler says in the report above mentioned that figuring 100,000 gallons per day for the Reformatory, the consumption in Concord should not be over 325,000 gallons per day, or 119,000,000 gallons per year.
Where a gravity system is in use the water consumption is usually large and Concord would seem to be no exception.
The number of water takers in Lincoln (besides the Town) is 136 and the consumers number about 725 and the amount of water pumped and used per year, as recorded at the pumping station, is upwards of 45 million gallons for several years past, and it is estimated that the amount used in 1901 will reach 55 million gallons or more.
Assume 48,000,000 gallons as the annual amount pumped and allow one-fourth of that amount as sold to the Boston & Maine Railroad Company, and the balance supplied to 725 persons as mentioned above, and we have the rate of consumption in Lincoln as about 136 gallons per capita per twenty-four hours, which is also a large amount.
A canvass of about fifty cities and towns has shown an average consumption of about seventy-two gallons per day per consumer. In "Greater Boston " the consumption is supposed to be something like 100 gallons per day per con- sumer, and 136 to 145 gallons would be considered as wasteful.
If Concord and Lincoln insist on using water at this rate, Sandy Pond will one day fail them.
DESCRIPTION AND INVENTORY OF THE WATER WORKS.
(Pumping Plant). The Town owns about one-half acre of land between Sandy Pond Road and Sandy Pond where
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