USA > Massachusetts > Norfolk County > Braintree > Town annual report of Braintree, Massachusetts for the year 1932 > Part 16
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Flowers were in bloom until late in October. Many lot owners left flowers during the summer months which helped to beautify the Cemetery.
The Supt. and Caretakers are always willing to do all possible to carry out the wishes of the Selectmen and lot owners.
Respectfully yours, JOHN W. MAHAR, Supt. Plain St. Cemetery.
350
December 31, 1932.
ANNUAL REPORT OF THE TREE WARDEN Town of Braintree, Mass.
To the Citizens of the Town of Braintree, Mass .:
I herewith respectfully submit the report of the Tree Department for the year 1932.
Appropriation
Trimming Trees $1,000.00
Trees ... 325.00
Reforestation 250.00
$1,575.00
Expenditures
Trimming trees and brush on following streets : Cedar, Central Street, Central Avenue, Cleve-
land, Commercial, Elmlawn, Elmwood. Front, Hobart, Hollis, Liberty, Maple,
Middle, Monatiquot, Pearl, Plain, River, Taylor, Tremont, Vine and Washington. $1,000.00
Dead trees removed :
Central Street and Taylor Street,
1 maple
$50.00
Hollis Avenue, 1 maple. 30.00
Middle Street, 2 elms 75.00
River Street, 1 ash and elm 50.00
Union Street, 2 willows. 65.00
Washington Street, 1 elm 55.00
325.00
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Reforestation :
Trees-32 American elm, 10-12 .. $80.00
2 Norway Maples, 10-12. 8.00
2 red Maples, 8-10. . .... 5.40
32 Sugar maples, 8-10 ... 86.40
179.80
Labor and materials (including loam and dressing) setting out trees . 70.20
250.00
Total Expenditures vs. Appropriation. 1,575.00
Numerous personal and telephone calls in addition to the above have been made pertaining to the department. During these as well as in all operations of the depart- ment the conserving and enhancing of the natural beauty of our shade trees has been conscientiously carried out.
During the year a great amount of trimming has been done by public utilities to safeguard the friction of tree limbs against wires. This has had a dual beneficial effect in that dangerous and unsightly burned limbs are avoided, as well as the danger and discomfort of inter- rupted light and power service limited. At the same time all dead wood and interfering limbs were removed, all under supervision of your Tree Warden and without expense to the Tree Department.
I wish again to commend the Civics Committee of the Philergians for their untiring efforts and cooperation with this department especially in the matter of selection and location of new trees.
In keeping with the times I am reducing my budget
352
for the coming year with the exception of the request for new trees. That is one item that we should religiously conserve, for the small investment now will be repaid thousands of times in the future arboreal beauty of Braintree.
Yours in citizenship,
C. R. BESTICK,
Tree Warden ..
REPORT OF INSPECTOR OF WIRES
Board of Selectmen :
I herewith submit the annual report of the Inspector of Wires from April 30 to Dec. 31, 1932.
Total inspections 28
Total fees received
$14.00
Inspections no fee required. 14
Amount turned over to Town Treasurer $14.00
Respectfully submitted,
KENNETH O. WARD,
Inspector of Wires.
REPORT of the Citizens' Committee to Investigate the Highway Department
MOI
1640 HUS
AC
Printed by Order of the Town
354
REPORT OF THE CITIZENS' COMMITTEE TO INVESTIGATE THE HIGHWAY DEPARTMENT Presented March 21, 1932
At the Special Town Meeting held on July 20, 1931 it was voted under Article 4 that; "a Committee of seven, none of whom shall be members of the Highway Depart- ment be appointed by the Moderator to study all activities of the Highway Department including the planning, con- struction and cost of, and the awarding of contracts for highways, drains and sidewalks; that the Department be instructed to cooperate with the above Committee; that the findings of the Committee be kept confidential and that the Committee report to the Town not later than the next Annual Town Meeting."
In accordance with this vote your committee was ap- pointed by the Moderator on October 6, 1931 and shortly thereafter began its work. From the beginning the Com- mittee recognized the necessity of conducting its proceed- ings in an impartial and unbiased manner and has main- tained this policy throughout.
In order to be as constructive as possible the Board of Selectmen and Supt. of Streets were immediately invited to meet with the Committee. The invitation was de- clined by the Board of Selectmen, and no response was re- ceived from the Supt. of Streets. In declining to meet with the Committee, the chairman of the Board of Select- men insisted that any matters which the Committee wished to discuss must be taken up at a regular meeting of the Board. He expressed his opposition to the investi- gation by declaring that your Committee had no authority or legal standing.
The work of the Committee was seriously delayed by the difficulties encountered when it became necessary to
355
examine the highway records in the office of the Board of Selectmen. Over a period of two months repeated re- quests for the privilege of examining these records at the Town Offices were made by letter and by vis- its to the Selectmen's office but without success. Rather than abandon the investigation, your Committee at their own expense were obliged to petition the Supreme Judicial Court of Massachusetts for a writ of mandamus to com- pel the Board of Selectmen to produce these records. At a hearing before Justice Saunderson on January 12, 1932, it was agreed that the Committee should have access to all records. The first inspection of the records was made on January 15, 1932, a Deputy Chief of Police and a Ser- geant having been assigned to watch the members of the Committee during the examination.
Results of Investigation. The results of the investiga- tion as summarized herein are based upon such records as were found at the Town offices and upon interviews with citizens, and officials, and others who assisted and advised with the Committee.
The records of the Highway Department were found to be entirely inadequate and practically worthless, fail- ing in their intended purpose of furnishing a complete and comprehensive accounting of the administration of the Department. In view of the alarming conditions found it can be stated without exaggeration that every oppor- tunity exists for waste, mismanagement and graft.
The records of bids and awards of contracts for mater- ials, as shown by the following examples, attest to the gross mismanagement of the Highway Department on the part of the Board of Selectmen :
1. When bids are asked for materials the information given to prospective bidders is vague and inadequate. Generally the quantities of materials to be furnished are
356
not stated and specifications are not avaliable for distri- bution to all those desiring to bid. There appears to be a deliberate attempt to discourage reputable contractors from submitting bids. In 1930, for example, the records show that only one bid was obtained for the construction of sidewalks. The restricting of bidding in this manner obviously results in high and unreasonable costs.
2. Bidders have been permitted to change their prices after the formal opening of bids, permitting the award of bids to favored contractors. This practice defeats the intention of competitive bidding, and discourages legiti- mate firms from bidding.
3. Contracts are not always awarded to the lowest responsible bidder. In at least two instances the success- ful bidders price was 20% more than that of the lowest bidder. In each case the low bidder had an excellent re- putation and agreed in his proposal to furnish the neces- sary bond to insure the faithful performance of the con- tract. No reasons for giving preference to the high bid- ders were stated in the Selectmen's record's. When a contract is awarded to other than the lowest responsible bidder the additional expense is borne by the Town. Any public official granting such an award, except for good cause, violates the confidence placed in him by the Town.
4. Neither a budget nor a cost system exists. Funds appropriated by the Town for specific purposes such as snow removel, tarvia, etc., have been used, not as directed, but rather lumped into one sum and spent at the discre- tion of the Chairman of the Board of Selectmen. The State Auditors in 1930 critized the Town Accountant as follows :
"In checking the appropriation accounts, it was found that the town accountant had not set up the appropriations as the town warrant called
357
for, it being noted that, although seven distinct highway appropriations were voted by the town, the accountant had set upon the ledger, as avail- able for highway expenditure, one amount com- prising the total of the seven individual sums voted by the town for specific highway expendi- tures. This combined appropriation account showed an unexpended balance of $2,786. 65 on September 30, 1930, although in reality, this amount represented the difference between a total unexpended balance of $6,027.67 in six of the accounts and an over-draft of $3,241.02 in the seventh, the highway maintenance account.
It is therefore recommended that the account- ant, in the future, set up a separate ledger ac- count for each item as voted by the town."
The corresponding items for the year 1931 were placed in the town warrant and voted under a single item, thus overcoming the condition complained of by the State Au- ditors and giving the Selectmen unlimited powers in the spending of approximately $47,000. This practice of us- ing funds appropriated for specific projects to carry out other projects has been much more general than is shown by the report of the State Auditors. In many instances the unauthorized transferring of funds is accomplished without being detected by the State Auditors by chang- ing the cost of materials used on one project against an- other project.
It is clear that no private business could expect to suc- ceed with the loose and questionable methods employed by the Town's Highway Department. The importance of this matter is indicated by the fact that the expenditures of this department for the last six years have amounted to over $1,300,000 as follows:
-
358
1925
$175,078.71
1926
193,531.20
1927
330,121.81
1928
152,716.53
1929
226,761.27
1930
252,521.29
Total
$1,330,730.81
Highway expendtures account for a substantial portion of the total amount of money raised by taxation. Sub- stantial savings can be accomplished in this Department by the efficient administration of its affairs.
There has not been time for your Committee to inves- tigate all the items specified in the motion as voted by the Town last summer. The difficulty in securing records and the absence of any cooperation on the part of the officials of the Highway Department did much to delay and ob- struct the work planned by the Committee.
There are many matters deserving of further study, particularly with regard to the organization, planning and general policies of the Department. It is the opinion of the Committee that consideration should be given to the construction of all permanent pavements and side- walks by contract rather than by maintaining a large force of men and expensive construction equipment as at present.
The advisibility of constructing all new streets and side- walks under the Betterment Act as a matter of economy merits consideration. The success of the provisions of this Act depends largely upon its impartial application.
Serious thought should be given to the comprehensive planning of storm drains possibly in cooperation with the sewer department. The present haphazard methods
359
used in the planning and construction of drains result in high costs and needless waste.
Attention sohuld be given to repair and maintenance methods, and the selection and testing of materials pur- chased for the same; to the economical selection and pur- chasing of construction equipment; and to standards to be used in laying out streets and sidewalks especially in residential districts.
Conclusions and Recommendations. Your Committee believes that all of the items mentioned herein must be given thorough consideration by the Town in any program looking toward an efficient and economical administra- tion of the Highway Department.
While it must be recognized that the efficiency of the Department depends largely upon the officials charged with its administration, it is the opinion of this Commit- mittee that the present deplorable situation can be great- ly improved by adopting specific measures; namely, to in- sure the full application of the principal of competitive bidding ; to compel the establishment of proper budget and cost systems; and to set up a sound and effective policy with regard to the organization and conduct of the De- partment.
It is therefore recommended ;
1. That all contracts be based upon definite specifica- tions such as will encourage free and open competition among reputable contractors and that awards be made to the lowest responsible bidder except when the Select- men find cause to disqualify the lowest bidder and state same in their records.
2. That a detailed budget and cost system be estab- lished for this Department.
360
3. That a qualified engineering firm be engaged to es- tablish such a budget and cost system and to report upon such other matters pertaining to the organization and conduct of the Highway Department as may seem advis- able in the opinion of this Committee.
4. That the sum of $500. be appropriated for this pur- pose under Article 52, and that a further report be made to the Town not later than the next Annual Town Meeting.
In the opinion of the Committee the economies which can be effected by the adoption of these recommendations will in a single year save many thousands of dollars.
Respectfully submitted,
SAMUEL M. ELLSWORTH, Chairman HENRY W. GRADY, Secretary MERTON L. EMERSON WALLACE M. KEMP LORING C. MUNRO
The Honorable Board of Selectmen,
Jan. 20, 1933. Town Hall, Braintree, Mass.
Gentlemen :
The Citizen's Committee to Investigate the Highway Department herewith transmit to the Town the report of Charles B. Breed, Consulting Engineer. This report was made possible by the appropriation of $500 made at the Annual Town Meeting in 1932 for the purpose of com- pleting the program which was started by the Committee during the previous year.
The Committee was fortunate in being able to secure the services of an engineer who was eminently fitted to undertake an investigation of this kind. His reputation in the engineering profession is nation-wide. He has
361
served as consulting engineer on numerous highway and railroad projects in addition to being in charge of courses in these subjects at the Massachusetts Institute of Tech- nology.
The broad scope of Mr. Breed's work on this investi- gation is not truly reflected in the report. During the past construction season he has acted in an advisory capacity in connection with the work being undertaken by the Highway Department. He has assisted the Board of Selectmen and the Superintendent of the Highway Department, Mr. Austerberry, in special problems which have arisen during the past months with reference to maintenance and operation, new construction and general policies of the Department.
The report which has been submitted by Mr. Breed while containing many suggestions which should be of immediate value to the Town is perhaps of greatest value in its references and suggestions as to the future pro- gram and policies of the Highway Department. It seems appropriate to mention as briefly as possible some of the outstanding conclusions and recommendations contained in the report. Under the heading "Scope of Investiga- tion" it is seen that the investigation has been considered under seven main topics, (a) to (g) inclusive.
(a) Cost Accounting System. An adequate system has been set up and has been in use since about the first of May 1932. It will be invaluable as a means of measur- ing the efficiency of the Department, controlling its ex- penditures and eliminating waste. Its use should be continued in the future.
(b) Past Policies and Practices. This subject is treat- ed very briefly. To quote from the report, "Bad and in- appropriate management of the past has been viewed as "water over the dam." A significant comment is made
362
regarding the award of contracts and competitive bid- ding.
(c) Existing Organization and Methods. "The pres- ent organization of the Department seems to be ade- quate." With regard to methods of construction sugges- tions were offered during the past summer as to desirable changes and for the most part have been acted upon favorably by the Department.
Construction costs during the past year have compared favorably with costs of similar work done elsewhere.
It is recommended that the Superintendent "train some man in his organization to take his place in emergency."
The relative advantages of constructing new pavements by contract and by the Highway Department, respectively, are discussed and it is concluded that under certain con- ditions the former method may be preferable.
It is brought out that on the basis of last year's appro- priations "snow removal and Tarvia surfacing constituted half the entire maintenance cost." It is indicated that a more detailed study might effect some reduction in the cost of these two items of construction.
(d) Improving the Functioning of the Department. New equipment is recommended, including an air com- pressor, a drill sharpening machine and a new 5-ton truck to replace the old White truck which has been run over 150,000 miles. An adequate building is recommended for the storage of equipment which is now stored out of doors, and to furnish office facilities for the Superin- tendent. While it is shown that all of these recommenda- tions are in the interests of economy it is recognized that under the present financial conditions, expenditures for such facilities may not be warranted.
363
It is further recommended that "materials delivered under contract be checked up more thoroughly to insure that the Town is getting the quality for which it is paying"; that the quantities of materials could be more completely checked if Town scales were available; that some means be set up to secure better cooperation between the Highway Department and the Sewer and Water Departments possibly by combining them and the Engi- neering Department into one Department of Public Works; and that "the position of the Superintendent should be removed from the possibility of political influence to the extent, at least, of making the position secure against discharge without charges being preferred and a hearing."
Favorable comment is made regarding the economy effected by the recent lease of the Hannaford gravel pit by the Selectmen.
(e) Construction Program for the Next Few Years. A table is presented summarizing results of traffic counts made during the past summer with the assistance of the Highway and Engineering Departments which should be of immense value in any considerations relating to new construction.
In view of the sewer construction activities it is con- cluded that "for the immediate future the street problem is one of maintenance of existing pavements coupled with a very restricted program of resurfacing of main streets." The only new construction "that should be considered for immediate improvement is Shaw Street from Norfolk Square to Mill Lane."
When extensive resurfacing is required it is suggested that consideration be given to the purchase of a mixer for hot and cold bituminous road materials.
364
(f) Unemployment as It Affects the Highway Depart- ment. It is concluded that "The work performed by the unemployed men in the Department has been of consider- able value to the Town (by no means has it been wholly a charity) ; the supervision has been effective and consid- erate; the Town has received a real value from these men." It is recommended that some of the unemployed be used in 1933 provided money is available after the regular men of the Department have been provided with depend- able employment.
It is shown that the cement sidewalk construction work was well adapted for emergency unemployment work, but that the Town should not lose sight of the advantages of financing such work under the terms of betterment assessments.
"Work upon sewers, water pipes, drains and on an extension of the Town Barn (mentioned above) are other opportunities for the unemployed."
(g) The Drainage Problem. It is recommended that "a general drainage system for Braintree should be designed and all drainage construction hereafter should conform to this design. This is an economic problem of first importance." Furthermore "no major drainage construction should be undertaken until a comprehensive drainage plan has been developed."
The opportunity for unemployed in connection with both the planning and construction of drains is empha- sized.
In submitting the report of its engineer to the Town, the members of the Coommittee feel that the suggestions and recommendations contained therein are essentially sound and constructive and that their adoption would be advan- tageous to the Town from the standpoint of ultimate
365
economy. The Committee realizes, however, that the financial conditions are such that favorable action on many of the recommendations must be postponed.
It is to be hoped that the report will be a guide now and in the immediate future in the consideration of all matters pertaining to the Highway Deparment.
Respectfully submitted, SAMUEL M. ELLSWORTH, Chairman, HENRY W. GRADY, Secretary, MERTON L. EMERSON, WALLACE M. KEMP, LORING C. MUNRO.
N.B .- For Consulting Engineer's Report see page 192.
366
Report of the Accounting Officer of the Town of Braintree
January 1, 1932 to December 31, 1932
GENERAL REVENUE RECEIPTS -
Taxes
Previous years :
$263,883.53
Poll, personal, real
1928
$200.00
Poll, personal, real 1929
232.40
Poll, personal, real 1930 1,818.45
Poll, personal, real 1931 261,632.68
Current year :
Poll, Personal, Real
445,861.26
Tax Titles :
Redemption and In-
tervening Taxes 4,153.89
From the State:
Income (Schools-$27,930.00) . 71,537.00
Corporation 29,088.91
Veterans' Exemption 174.61
Gasolene
20,821.12
Trust Company 386.42
367
National Bank Tax
406.39
St. Railway
103.05
Ways in Brookline
39.21
$836,455.39
Licenses :
Liquor
$3.00
Junk
100.00
Pedlars
75.00
Sunday
295.00
Pool, billiards, etc.
54.00
Revolver
77.00
Victuallers
110.00
Autos, dealers
120.00
Auctioneers
8.00
$842.00
Permits :
Miscellaneous
56.00
Board of Health
26.00
Signs
37.00
119.00
$961.00
Fines :
Court
$443.50
Grants and Gifts :
From County :
Dog Licenses
$2,023.12
From Individuals :
Thayer Fund
$890.00
Hollis Fund
500.00
Minchin Fund
4.00
$1,394.00
$3,417.12
368
Special Assessments :
Moth 1931
263.75
Moth 1932
362.75
626.50
Street Betterments :
Apportioned 1930. . $75.50
Apportioned 1931 .. 858.88
Apportioned 1932 . .
1,702.49
Unapportioned
1,241.25
$3,878.12
Old Age Assistance,
1931
$279.00
Old Age Assistance,
1932
4,355.00
$4,634.00
Privileges :
Motor Vehicle Ex-
cise 1929 $77.90
Motor Vehicle Ex- cise 1930 225.46
Motor Vehicle Ex-
cise 1931 2,168.19
Motor Vehicle Ex-
cise 1932
27,307.87
$29,779.42
$38,918.04
General Government
Collector :
Tax Information ..
$25.00
Interest on deposits
197.16
369
Advertising
deferred taxes,
1931
279.90
Fees
1,976.00
$2,478.06
Land Low Value
31.00
Town Hall, rent
65.00
Selectmen :
Advertising hear-
ings
91.00
Engineering-Maps .. 7.65
Insurance :
Return Premiums. . $409.66
Schools - Fire
Damage
52.00
Town Hall - Fire
Damage 12.00
Highways-Acci- dent
36.60
All Other
2.24
$512.50
$3,185.21
Protection of Persons and Property
Inspection :
Sealer Weights and
Measures
$192.72
Building Inspection 345.00
Wire Inspection . 17.00
$554.72
Police Department :
Telephone rebates
2.80
$557.52
370
Health Department
Tuberculosis
(Subsidy)
$1,236.42
Highways
Use Roller
(Sewerage)
$280.90
Use Roller (Quincy)
3.50
$284.40
Charities and Soldiers' Benefits
Infirmary :
Board
262.00
Reimbursements :
Temporary Aid
From Cities
and
Towns
$3,714.29
From State
1,400.12
$5,114.41
Reimbursements :
Mothers' Aid From State 1,638.54
Soldiers' Benefits :
State Aid and Sold-
iers' Burials .... $498.00
Soldiers' Relief-Ci-
ties and Towns .. 98.25
Old Age Assistance :
596.25
From State
19,096.31
$26,707.51
371
Education
Tuition-Individuals .
$364.82
Tuition (State Wards)
497.42
Tuition (Vocational) .
1,887.85
Miscellaneous
109.05
$2,859.14
.
Library
Fines
$484.59
Miscellaneous
39.74
$524.33
Unclassified
All Other :
Municipal Lighting
Plant - 1932 ..
$88.24
Water Department
Debt
$8,000.00
Interest
2,080.00
$10,080.00
Public Service Enterprises
Water Department . . .
$90,639.96
Electric Light Depart-
ment
289,535.76
$380,175.72
Cemetery :
Graves & Lots
$127.00
Interest
Deposits :
General
$866.00
Taxes
12,070.09
372
Water
1,283.97
Electric Light
170.40
Betterments :
Apportioned 1930 . . $2.64
Apportioned 1931 . .
362.37
. Apportioned 1932 . .
413.55
Unapportioned
34.80
813.36
Motor Vehicle Excise .
186.57
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