USA > Massachusetts > Essex County > Andover > Town annual report of Andover 1955-1959 > Part 9
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Our program is a program for youth and we are grateful to all who have given a hand in making our task a little lighter and our year most successful.
Respectfully submitted,
GEORGE STANLEY, JR., Chairman WALTER PEARSON BART F. SMALLEY L. GLEYNN YEATON FRANCIS P. MARKEY, Secretary
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Report of the Special Committee On Water Sewerage for 1955
Your committee was first created by vote of the Town in 1941. The War interfered with any work, but in 1945 the Town authorized the committee to engage engineering as- sistance to conduct a survey. Weston and Sampson of Boston were chosen and they prepared a report which the com- mittee presented to the Town, comprising a comprehensive study of the water and sewerage systems, with recommen- dations and plans for widespread improvements.
Beginning the next year, the Town from time to time has carried out much of the work recommended, especially a new intake and added pumping facilities at Haggetts Pond, a new force main to the Low Service Reservoir, and a new High Service Pumping Station with a cleaned main to the High Service Reservoir. Part of the recommended enforce- ment and extension of the distribution system has been done. Progress has been made in obtaining land around Haggetts Pond, to protect our supply and to make possible the raising of the level in the pond, at some future date.
Some of the more urgent improvements in the sewerage system have been made. The building of a treatment plant in Ballardvale promises to solve a difficult problem in disposal.
Thus the Town, working through its Boards of Selectmen and Public Works, generally with the approval of the Finance Committee, have carried out much of the planning offered by your committee ten years ago. However many of the plans remain unfinished, and because of the great growth of Andover many items which seemed to be far into the fu- ture now are becoming urgent. Our storage capacity and parts of our distribution systems are becoming rapidly in- adequate. Our available supply of water, which with some
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additional storage at Haggetts Pond, seemed to be sufficient for perhaps 30 years to come, is now not too far in excess of our demand, and it appears inevitable that an additional supply must be sought before many years.
Although these problems remain, and our sewerage sys- tem is almost equally in need of further improvements, we feel that the reorganization of the Water Department under a competent engineer and the creation of a Planning Board with strong powers and the ability to obtain engineering aid offer Andover the means of completing the necessary work. We feel therefore that the time has come to terminate the activities of your committee.
Respectfully submitted,
JOSEPH A. MCCARTHY, Chairman SIDNEY P. WHITE WILLIAM R. EDWARDS
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Report of Town Government Study Committee
I. INTRODUCTION AND PURPOSE
At the town meeting of the Town of Andover on March 21, 1955, the following article appeared in the town war- rant: "To see if the Town will vote to instruct the Modera- tor to appoint a committee of five persons to study the pre- sent administrative organization of the Town and the ad- vantages, if any, of adopting a Manager plan of adminis- tration, or an Executive Secretary to Selectmen form of government, and to make a report of its findings and re- commendations (together with any necessary legislation) to the next annual town meeting, and to appropriate $500. for the use of said committee, or take any action relative thereto." This article was adopted, but without any appro- priation. The undersigned committee, appointed by the Moderator, now respectfully submits its report and recom- mendations as called for by the article.
It is important at the outset to make it very clear that in statements of fact concerning the present Town administra- tion, there is no intent to be critical of any Town official or employee. Our conclusions are based solely upon a careful study of the present organization of Town Government.
II. PRESENT TOWN ADMINISTRATION
We made a survey of the present Town administration, interviewing the Selectmen, the Board of Public Works, the Town Clerk, the Town Accountant, and other Town officers and employees. As a result of the information we obtained, from the above and other sources, we prepared a chart which is attached to the end of the report, showing the pre- sent form of administration and how the various officials and boards are selected.
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Upon examining the chart, it will be seen that at present, in order to keep our Town functioning, we must elect 15 dif- ferent individuals and boards, comprising all told, fifty per- sons. It requires a great many capable, conscientious, public spirited citizens satisfactorily to fill all of these offices and boards.
There are three main boards that constitute the present administration of the Town, supplemented by a number of other boards and offices. The Selectmen supervise the police department, and the fire department, plus several other ac- tivities such as welfare and recreation. The Board of Public Works has complete charge of all public works, including water, sewer, highways, parks, trees, and other smaller ope- rations. The school department supervises the educational functions of the Town, including the operation of the school buildings and their maintenance and repair. These three main boards operate independently, are responsible only to the voters of the Town and have little communication one with the other except as some one individual may be a mem- ber of more than one board. The Board of Health, Planning Board, and Board of Library Trustees also operate as in- dependent units.
There is no single body or official controlling the adminis- tration of the Town's affairs or the disbursement of funds appropriated by the Town meeting for the conduct of the Town's business and the extension of its services. The fact that there is no central administrative head and that so ma- ny different boards have to consider so many different facets of Town administration leads to much confusion. Frequent- ly, problems are referred from one board to another, because of confusion as to statutory requirements or for other rea- sons. This form of administration is ineffective and con- fused. The situation has convinced your committee that a change is desirable, and necessary.
The consistent and rapid growth of the Town is throwing a heavier burden from day to day upon the various depart- ments. However diligent a part-time elected official may be,
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it seems unrealistic to expect the efficient service that could be had through a single trained official who would devote his full time to the administration of the Town's affairs. We are convinced that the Town will continue to grow and that such growth will demand careful central planning and a continuing program of development. Past experience proves that under our present form of administration the Town cannot expect to keep abreast of the demands of fu- ture growth.
III. EXECUTIVE SECRETARY TO SELECTMEN FORM OF ADMINISTRATION
We gave consideration to the so-called Executive Secreta- ry to the selectmen proposal. An Executive Secretary to the Selectmen, or an Administrative Assistant, as the position is sometimes termed, would be an employee of the Town under the full direction of the Selectmen. He would have no more authority than was delegated to him by the Selectmen, and it would be limited to those few departments now ad- ministered under their direction. Unless he was invited by other departments to assist them, and accepted the invi- tation, with the approval of the Selectmen, he could have no part in the administration of any board or department of the Town. This condition would not, in our opinion, im- prove administration of Town Affairs, although it might re- lieve the Selectmen of some duties which they find onerous.
We considered also the possibility of uniting some of the present boards, and combining their responsibilities. It is, however, our conclusion that any attempt to improve the Town administration must, of necessity, involve amend- ment to the statutes which govern our Town affairs. At best, any amendment short of the adoption of a complete new charter would be avoiding the issue and would not in any sense assure the improvement necessary for the efficient administration of Town business.
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IV. SELECTMEN-TOWN MANAGER PLAN
These studies and the consideration of various possibil- ities of improvement inevitably led to one conclusion ; that the best form of Town administration today is under a Selectmen-Town Manager Charter. Following enactment of such a charter by the State legislature and acceptance by the Town voters, the Town at its next annual election would vote for five selectmen. Thereafter, the Selectmen are elect- ed for three year terms. The selectmen would choose and appoint a Town Manager, who would be required to have had specialized education in municipal administration, and also to have had practical experience in administration of some Town or governmental unit. The appointment would be for a term of three or five years. The Manager would have com- plete charge of the administration of the business affairs of the Town, appointing most of the Town officials and com- mittees. The voters would still elect the selectmen, the school committee, and the moderator, and the moderator would ap- point the finance committee as at present. The Town Manag- er would be accountable to the Selectmen for the proper ad- ministration of the Town's affairs and should his services prove unsatisfactory, the Selectmen, by a majority vote, could remove him from office, subject to the right of the Manager to a public hearing.
It will be said in opposition to the Town Manager plan that the people are surrendering their rights. That state- ment is not justified. The people will not surrender any rights in administering the affairs of the Town. Town Meet- ings would still be held and their powers would be exactly the same as at present. No funds could be spent, except those appropriated by the voters at Town Meeting. The peo- ple elect the Selectmen, just as they now elect all their offi- cials who are subject to election by ballot, and the people could defeat for re-election any Selectmen whose service they did not regard as satisfactory. The Selectmen appoint the Town Manager and have the right to remove him.
In our studies in Andover and in other communities, cer- tain questions appear to be asked most frequently.
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How much is a Town Manager paid?
We are told that Andover could obtain the services of a good Town Manager for about nine to ten thousand dollars a year.
How many towns in Massachusetts have thrown out the Town Manager plan?
Sixteen towns in Massachusetts have adopted the Town Manager plan since Norwood first adopted it in 1915. Only one town has abandoned the Town Manager plan. Orange instituted the plan in 1930 but dropped it after two years of experiment in the period of the depression. In addition, twelve cities in Massachusetts have adopted the plan, and nine still retain it. Hundreds of towns and cities throughout the nation operate under the plan.
Isn't the Town Manager Plan undemocratic?
The Town Manager Plan is a change in the form of ad- ministration and not in the form of government. The Town Meeting is unchanged and continues to be the source of Town authority. The voters elect the selectmen, who appoint the Town Manager and can remove him. As a matter of fact, the Town Manager form of government is more res- ponsive to the wishes of the voters. As a full-time employee the manager is more accessible, he can make immediate de- cisions, and it is up to him to see them carried out. There is less "buck-passing".
Aren't the jobs of town employees less secure under a Town Manager?
In Towns where there is a Town Manager, town em- ployees are more satisfied with the conditions of employ- ment. Their ability to hold their jobs depends on the per- formance of their work and is less subject to termination as a result of the election of new board members. Pay scales throughout the town tend to be placed on a more equitable
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basis. When entering on his work, the Town Manager must depend on experienced employees and will continue them in their positions so long as they fill them adequately.
The experience of Brunswick, Maine, is especially inter- esting. There the town employees purchased advertising space in the local newspaper before the manager referendum urging the people not to approve the manager plan. The plan was nevertheless adopted and after a year's experience with the manager the employees purchased a full page of ad- vertising space and retracted their former opposition.
Are not Town managers prone to stay only a short time in one spot, and haven't they a tendency to keep moving on to higher paid positions?
It is not unusual for a Town Manager to remain in a town for ten or more years. When a manager does such a good job that he is sought by a larger community, it means that his administration is a success. If he accepts a better offer, he leaves to his successor a smooth-working organiza- tion.
Since the Manager has no control of the expenditures of the School Department, are not the opportunities for eco- nomy unimportant?
Even with the School Department eliminated, the manag- er still has control over the spending of two-thirds of the Town Budget. That would have amounted in 1955 to more than $1,000,000, a large opportunity for economies.
We find the following specific reasons why a Town Manag- er Plan is desirable in Andover :-
1. It places the administration of the Town's affairs in the hands of a full-time executive who is trained and ex- perienced in the management of municipal business.
2. It makes possible operating economies through cen- tral purchasing of supplies and the pooling of personnel and equipment.
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3. It eliminates competition between boards for Town appropriation and bases requests for appropriations on the overall needs of the Town.
4. It makes possible better coordination of Town activi- ties and an over-all program for future development.
5. It frees the selectmen from the details of administrat- tion and allows them to devote their time and efforts to po- licy decisions.
6. It provides the voters with more convenient access to the Town Government and assures them of more imme- diate action on their problems.
7. It improves the morale of employees of the Town by assuring them of impartial treatment and equal considera- tion.
8. It speeds up the preparation of the Town Budget, simplifies its presentation, and makes possible more tho- rough study by the Selectmen and the Finance Committee before Town meeting.
9. It does away with costly delays which are unavoidable when day-to-day decisions are dependent on committee action.
In accordance with the instruction of the Town Meeting, we have prepared legislation which would permit the Town to vote on the issue at the fall election. A chart is attached hereto which outlines the form of administration under the proposed statute.
Your committee unanimously recommends that the Town vote to petition the General Court to enact legislation to permit the Town to adopt a Selectmen-Town Manager Plan, substantially in accordance with the proposed statute filed with the Town Clerk.
HOWELL M. STILLMAN, Chairman THOMAS V. SULLIVAN, Secretary WALLACE E. BRIMER DANIEL E. HOGAN, JR. C. CARLETON KIMBALL
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-
Present Plan of Administration
VOTERS
*
Moderator
* Town Clerk
* 3 Selectmen
* School Committee
* Assessors
Collector of Taxes
Appoint
Appoints --
Finance Committee Special Committees
* Board of Health
Town Accountant
* Planning Board
Town Counsel
* Library Trustees
Board of Retirement
Punchard Trustees
(one member)
* Cornell Trustees
Building Inspector
* Andover Housing Authority Wire Inspector
* Constables
Sealer of Weights and Measures
Matron Town Infirmary
Inspector of Animals
Cemetery Trustees
Board of Registrars
Election Officers
Board of Appeals
Fire Chief
Police Chief
Recreation Committee
Welfare Agent
Veteran's Agent
* Elected by and directly responsible to the voters.
Superintendent of Schools Teachers Custodians
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Appoints
* Treasurer
* Board of Public Works
Selectmen - Town Manager Plan VOTERS
* Punchard Trustees * School Committee
* Moderator
Five Selectmen
** Cornell Trustees * Andover Housing Authority
Appoints
Appoints
Appoint I
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Finance Committee Special Committees
Board of Appeals Constables Election Officers Registrars of Voters
Town Manager
Superintendent of Schools
Teachers
Appoints
-
All Other Officers, Boards and Committees
* Elected by and directly responsible to the voters.
-
Andover Town Infirmary
To the Selectmen of the Town of Andover:
I am submitting my report for the year 1955. On January first of 1955 we had six regular boarders, four women and two men, all of whom were able to care for themselves at the time. During the year we had three temporary boarders, one of whom was 104 and stayed for a ten weeks vacation! In September one of our ladies who had been with us seven years had a fall and since the state does not allow us to have bed patients, she is still in a South Lawrence Nursing home.
In February, the State Building Safety Inspector came on a visit and left orders for new safety requirements and the installation of a fire alarm system. In May the contracts were let out and in June the carpenters, electricians etc. began the necessary work. In July, all work but the fire alarm system was completed and the inspector came again and said that he could not issue us a safety inspection cer- tificate until that was completed. Parts for the system of the type that was requested would not be available until late in November.
In August we of course suffered with the heat as well as other people in this part of the country and experienced flooded cellar floors during the rains from the hurricanes, but other than temporary loss of power, we were not in- convenienced at all.
October found the state inspector here again wondering why the fire alarm system hadn't been completed. A badly needed garage door was installed and painted this month. Combination storm windows for the Infirmary have not as yet been approved, although several bids have been offered.
Two rooms on the ladies' floor were freshened with new paint and one with a new linoleum and the kitchen was also made fresh with new paint. Other rooms will need to be done this coming year.
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Two days before Christmas a new boarder was added to our list and in January we officially had seven people here although one is still in the aforementioned nursing home. We need a new wheel chair for emergencies. Our old cum- bersome one has been loaned to the fire department, and a new lightweight folding one would be more useful here es- pecially for old people who do not have the strength to ma- nage the heavier ones.
My thanks to the ambulance drivers of the fire department who have been called several times in the past year and who have been so courteous and kind with the patients.
At the present time I believe we are equipped to the sa- tisfaction of the State Building Inspectors, Fire Inspectors, Health Inspectors etc.
At Christmas, the usual visits were made by members of the November Club, King's Daughter's, Abbot Academy Christian Association, Brownies, Christ Church Carol Sing- ers and several individuals who remember the folks so ge- nerously at this time. The annual Christmas party was held and gifts distributed to the people here by the son of the matron and superintendent. Hundreds of cards were also received.
The sidewalk to the front door and the front cement step is badly in need of repair. The driveway to the rear en- trance of the house and to the garage also needs resurfacing.
Very truly yours,
JEAN E. WEEKS, Matron
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Fire Department
Board of Selectmen Andover, Massachusetts
GENTLEMEN :
I hereby submit the annual report of the Fire Department for the year ending December 31, 1955.
During the year 1955, the Fire Department answered the following alarms: eighty-six (86) bell alarms (1 false) ; 249 still alarms for a total of 335 alarms of fire. Mutual Aid responses consisted of 6 to Lawrence, 1 to Lowell, 1 to Haver- hill, and 8 to Tewksbury.
The total assessed valuation of buildings where fire oc- curred amounted to $360,825.00 and the fire loss in said buildings amounted to $14,789.00.
Ambulance calls for the year totalled 753, of which num- ber 644 were handled by the 1946 Cadillac Ambulance, 33 by the 1937 Henney Ambulance, 36 by the Chief's car, 28 by Lt. Cole's personal car, 3 by Joseph Gaudette's personal car, 2 by Deputy Cole's personal car, 1 by Wilson Crawford's personal car, and 5 handled by the Jeep Utility truck. The North Andover ambulance, through mutual assistance, was used on two (2) calls in Andover. Also through mutual assistance, our ambulances responded to Lawrence Fire Department requests 4 times and to North Andover 12 times on request of the North Andover Fire Department. The Andover Police Department, at our request, have always cooperated in handling emergency requests for transporta- tion and ambulance assistance and, therefore, should be mentioned here for their invaluable aid.
Fire Prevention Inspections for 1955 amounted to 161; inspection of Liquified Petroleum Gas Systems totalled 57; inspection of power oil burners and associated oil storage
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tank installations amounted to 260; and inspection of range oil burners and associated oil storage tanks amounted to 43. The inspection of school buildings, mercantile establish- ments, upon request, individual hazards have been asso- ciated with fine cooperation and, in most cases, we have received fine response to our recommendations and orders.
During 1955, the emergency boats responded to six (6) calls for the removal of dogs from icy waters, 3 in the Shaw- sheen River, 2 in Fosters Pond, and 1 in Rabbitts Pond. On these calls, seven dogs were handled, - five were saved and returned to their owners and two were removed from the water and disposed of by proper authorities.
Personnel of the Department consists of Permanent and Call Force members. The Permanent personnel consists of 22 members as follows : Chief, 3 Deputies, a Lieutenant and 17 Fire-Fighters. These 17 Fire-Fighters are assigned to 3 platoons working a 56 hour week and a Deputy is in charge of each platoon.
Platoon #1 consists of a Deputy and five men at the Cen- tral Station and one man at the Ballardvale Station.
Platoon #2 consists of a Deputy and four men at the Cen- tral Station and one man at the Ballardvale Station.
Platoon #3 consists of a Deputy and five men at the Cen- tral Station and one man at the Ballardvale Station.
Your permanent personnel for fire protection coverage, therefore, is an officer and, at most, six men including a response by the Ballardvale Station. Housing, as we do, five vehicles (3 pumpers, a ladder truck and a forest fire truck) not to mention two ambulances and a utility truck, it can be readily seen that drivers are about the total coverage at any time by permanent members on duty. Each ambulance response calls for two men, thus depleting this number con- siderably, and if two ambulances are out and something should happen, it is evident what few men are available to work. A fire, drowning or other emergency at a time such as this will tax our force way past its limit.
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In this line, I would recommend the creation of six more permanent positions to be absorbed as follows : one man on each platoon in the Central Station and one more in the Ballardvale Station to make this station more applicable to fire fighting, rescue and drowning cases, since, on any res- ponse at the present time, one man alone cannot alone handle assignment to any degree of efficiency, resulting in a res- ponse simultaneously from the central station to augment this man.
Several emergencies during the past year have made in- creasingly evident the urgent need for more manpower in our department. The Call Force in Andover consists of two companies - one in Ballardvale consisting of a Captain and five men who respond on box alarms and efficiently so dur- ing the night time hours and on Saturday and Sundays, but during the day time hours, Monday through Friday, no res- ponse can be had as all work either in factories or out of town. The Central Station company consists of a Captain and eighteen men who likewise respond on box alarms and, as in the case of Ballardvale, the night time response is efficient but the majority of the men work either in factories or out of town. There are, however, six or seven men who either conduct their own business or are in a position to answer day time box alarms and if it were not for this, a serious situation would have arisen before now. I, therefore, recommend that these men be adequately compensated for carrying this load.
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