USA > Massachusetts > Essex County > Swampscott > Town annual report of Swampscott 1912 > Part 4
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The department consists, besides the chief, of seven regular men who are under civil service rules ; that is, they hold their appointments during life or good behavior, and do not come up for reappointment each year as formerly. They have two days off each month, work eight hours a day and have two weeks' vacation with pay. There are times when extra men are needed, and to pay them $400 is asked. There is a difficulty in securing the services of good extra men because, the employment being irregular, a man who has steady work does not care to leave it to act temporarily as special policeman. With this appropria- tion, however, the Chief hopes to meet this difficulty.
We recommend that $10,000 be appropriated for the Police Department, and we further recommend that this meeting declare that the interests of the residents of the Town require that a strict compliance with the laws of the road be rigidly enforced by the Police Department.
Ambulance.
[Page 259.]
The Chief of Police makes a recommendation as to "the inadequate and unsatisfactory services rendered by the ambu- lance," and suggests that the Town buy an automobile for ambulance and patrol purposes. The charges for ambulance and horse hire last year amounted to $165. The initial cost of an auto ambulance would be $2,000, and the cost of running and storing and the depreciation would be at least $1,000 per year. We consider that the difference is too great and that the Town should not stand this expense.
This is one of the peculiar matters that come before the Town for action each year, which, however, upon analysis are shown
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to be administrative in character and, therefore, not such as can be settled by a discussion in Town Meeting. The problem is how to provide storage for the ambulance and, on short notice, a driver and a horse, so that patients can be taken to a hospital in Lynn without unnecessary delay.
The Police Department asks for $10,000, 90 per cent of it being for wages. The Fire Department wants $17,000, most of which is for wages and for the expense of horses. The High- way Department requires over $20,000, and the greater part also for wages and for the cost of horses. Is it not practicable for this matter of conveying patients to Lynn to be cared for, adequately and satisfactorily, out of the departments for which, in the aggregate, nearly $50,000 is appropriated by the Town? We have said that this is an administrative matter, and as such it therefore belongs to the department which it is directed shall "take the general superintendence of the business of the Town" and "supervise the doings of the subordinate agents." This department is the Board of Selectmen. The records show that at the beginning of Town government the Selectmen were charged with the duty of attending to all the administrative departments of a Town, and that as time passed and Towns grew, certain details were assigned to boards created for the purpose, such as the Assessors, the Poor Department, the Health Depart- ment, and others. Nevertheless, the general supervisory and administrative powers and duties still remained in the Select- men, and to them the Town has the right to look for that supervision which it is impossible that the citizens generally can give to the details of the Town's business.
This matter of an ambulance being clearly an administrative matter, we recommend that the subject of the present inadequate and unsatisfactory service rendered by the ambulance be referred to the Board of Selectmen to make the rearrangements and read- justments needed to perfect the service.
And we further recommend that if the Selectmen find obstacles or hindrances in the performance of this duty, that they shall report the situation fully to the Town for action.
Fire Department. [ Pages 189, 250 and Article 15.]
For the Fire Department there is asked (page 251) $17,223. Of this amount the pay roll is the largest item,-$9,398, of which $6,968 is for the permanent force, consisting of the Chief and six permanent men. The number of permanent men
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1912]
is determined by the number of pieces of apparatus, and in this item there can be no reduction. One more permanent man is asked for, owing to vacations and the necessary absences for meals, as well as the " days off." The extra permanent man is needed. The call men, of whom there are 21, are paid $75 a year each. The captains and lieutenants, of whom there are four, are paid in all $330. It is estimated that the auto chem- ical saves from four to five hundred dollars a year over the horse equipment. The engine house needs painting and repairs, and $300 is asked for these purposes. The Water Department charges $15 a year for each hydrant, $2,300 being asked for that purpose.
The expenses of the Fire Department are increasing from year to year, and it is for the Town to say what it wishes. If the standards of Brookline, of Lynn, or Salem, are to be reached and maintained, the cost will be much larger than at present. After visiting the fire houses in Town and conferring with the officials, your Committee has reached the conclusion that the standard in Swampscott is as high as the Town can afford, and that the department can render needed services at a less amount than is asked.
We recommend the appropriation of $16,300 for the Fire Department.
Sealer of Weights and Measures. [Pages 189-279.]
We recommend the appropriation of $60 for the Department of Sealer of Weights and Measures.
Tree Warden. [Pages 189-323, and Article 18.]
We recommend for the Department of Tree Warden the appropriation of $550.
Dog Officer. [Pages 189, 324.]
We recommend the appropriation of $155 for the Dog Officer, which includes the amount due him for dogs killed. This money has been paid by the County to the Town Treasurer, and this appropriation is required for its payment to the Dog Officer.
Health Department. [Pages 190 and 260-265.]
The amounts asked for by the Board of Health are increased over last year for two reasons : First, as to sanitation. Under
SWAMPSCOTT PUBLIC LIBRARY
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TOWN DOCUMENTS.
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the laws made last year all cases of tuberculosis have to be cared for at the expense of the Town through the Board of Health, as explained in their report (page 264). Owing to this require- ment, their appropriation must be increased, and we recom- mend that the sum of $2,550 be appropriated for sanitation. Second, as to the appropriation for refuse and garbage. Last year was for but eleven months, and part of that was under a lower, though unsatisfactory, contract, and as the appropriations this year are for twelve months, the increase must be made.
We recommend that the sum of $3,000 be appropriated for the collection of refuse and garbage.
Sewer Maintenance.
[Pages 190, 299.]
We recommend the appropriation of $6,000 for Sewer Main- tenance, the amount to be taken from the receipts for Sewer Assessments as required by the Sewer Act.
Highway Department. [Report, Page 245, and Article 14.]
The Highway Department asks for $31,000 in specified sums, and in addition there are thousands more suggested for sidewalks and for brook culverts. Your Committee is placed in a difficult position by reason of circumstances which cannot be forseen or controlled, because no one knows what will be the character or extent of the demands upon the Highway Department. The appropriation for the Highway Department is spent largely for labor, for which the Street Surveyor estimates that he will be called upon to spend $2,000 more this year than last. It may be noted in passing that Swampscott pays for labor on the high- way $2.50 per day, while Lynn pays $2.40, and Boston $2.25. The Town pays for the double teams it hires, at the rate of $5.50 per day.
The affairs of the Highway Department, because of the employment of a large number of men, are a subject of much discussion, and in consequence various theories are advanced as to what is the significance of the appropriation by the Town for highway purposes. There is one theory on which we must comment, because in one form or another it enters more largely than may seem, at first sight, into the method in which the money may be spent. The Highway Surveyor makes recommendations that certain sums be granted him, the various amounts being fixed partly by general estimates and partly by the amounts of
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1912]
past appropriations, a little being added each year on account of the growth of the Town. These estimates are passed on to the Town and eventually to your Committee on Ways and Means for consideration. These amounts the Board of Select- men report in the schedule on page 190, together with other appropriations, and they state that these amounts are recom- mended by each department, and not by them, and they disclaim any responsibility. It is asserted that if the Town makes the appropriations of the sums as requested, then these amounts are no longer the requests of the Highway Department, but they are what the Town directs the Highway Department to spend. To state the theory in the form of a question : Is the department bound to spend all the appropriation because the Town has voted such sum, or is it to furnish the greatest amount of sidewalk and street repairs for the least amount of money? Is work to be performed until there is no balance unexpended, or is the money to be spent because there is work that needs to be done? We commend this matter to your consideration.
When you consider what the statute prescribes as the duties of the Surveyor of Highways, you can readily see that there is an opportunity for possible misunderstanding. The statute says (Chapter 25, Section 81) : " If a Surveyor of Highways is chosen in a Town he shall have exclusive control of the ordinary repair of highways, Town ways, streets and bridges in said Town, without being subject to the authority of the Selectmen." There are those who insist that, under the wording of this statute, the appropriations for the Highway Department are under the exclusive control of the Surveyor of Highways, because the term "ordinary repairs" covers all the work of that department. If this theory is correct, the citizens who appropriate the large sums asked for by the department have no control nor voice in its expenditure, and the Highway Department is independent. To discuss this a moment : If anything appears to any citizen to need correction, the impulse is to go at once to the Selectmen, because in the minds of the citizens the Selectmen are, in fact as well as by law, the agents and the general superintendents of the Town's business. Under the theory that the Highway De- partment is independent, the Selectmen, as such, have no more voice than a citizen who is not invested with their powers and responsibilities. Your committee does not assent to that theory. We believe that the Selectmen, as the administrative agents of the Town, are charged with the general oversight of the appropriations. We recognize the difficulty of defining at a
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TOWN DOCUMENTS.
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Town meeting what shall be the line between ordinary repairs and general construction and whose shall be the responsibility for work which is unsatisfactory.
We recommend that the Board of Selectmen in their dealings with the Highway Department shall insist upon a strict con- struction of the term "ordinary repairs."
With these general comments, the effect of which is to place the responsibility for oversight of expenditures in the Board of Selectmen as agents of the Town, we recommend the following appropriations :
For the general expenses of the Highway Department, $19,700 For repairs to sidewalks and curbs . 1,100 For catch basins and gutters (called street construc- tion account) . 1,000
For street watering and oiling
. 4,500
For curbing
ยท
300
Resurfacing Atlantic Avenue, Orient Street and New Ocean Street.
[Page 249.]
The surfaces of these streets have worn out, and concerning one at least, Atlantic avenue, the State Highway Commission has demanded that it be repaired. The resurfacing consists in replacing the present surface with crushed stone, and oil is put on the road and the road rolled. The cost is estimated by the Highway Surveyor at $3,500.
We recommend that the sum of $3,500 be appropriated for resurfacing Atlantic avenue, Orient street and New Ocean street.
Street Lighting.
[Report, Page 270, Articles 16, 30, 31, 32, 33 and 34.]
The method that the Town has followed in the past in the important department of Street Lighting has been cumbersome and indefinite in its workings and not in accordance with accepted municipal systems. It is a department requiring administrative direction which cannot be supplied by a vote of a Town Meeting, but must be sought through some department of the Town Government. As there is no warrant in the statutes or the by-laws for a Lighting Committee, the duties incident to the work fall naturally and properly to the Board of Selectmen, and we recommend that the Street Lighting Committee be dis- continued and the duties incident to the lighting of the Town be performed by the Board of Selectmen.
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TOWN CLERK'S RECORDS.
1912]
We recommend that the sum of $10,900 be appropriated for Street Lighting, and that the same be expended under the direction of the Board of Selectmen.
As to the petitions for street lights contained in Articles 30, 31, 32, 33, 34, the Committee has had conferences with the petitioners in each instance and has visited the sites indicated. While the requests seem reasonable, still it is evident that there arise questions as to the administrative details, that cannot be passed upon by this Committee on Ways and Means, for there are involved possible rearrangement of lights, as well as substi- tutes of arcs for incandescents, etc. In the amount we have recommended to be appropriated for the Lighting Department we have included the estimated amounts for the lights petitioned for, and we recommend that the placing of these lights be referred to the Board of Selectmen.
Poor Department. [ Pages 190 and 238-239. ]
While $4,000 is asked for, after conference with the Board of Overseers of the Poor we recommend that $3,800 be appropri- ated for the Poor Department.
School Department.
[Pages 190-195.]
The School Committee ask for $43,532. This is an increase of $4,000 over the amount of last year, calculated on a 12- months' basis. The increases are occasioned by salaries for a new sub-principal in the High School and a principal for the Grammar School, increased cost of rent, coal, and janitor ser- vice in the temporary quarters, and insurance on the new Hadley School.
Touching this last item, the amount of the insurance to be carried on the Hadley School has been discussed with the School Committee, $60,000 for five years having been first suggested, and the amount of the premium $1,500, being included in the first estimate. It has been agreed, however, that in view of the non-combustible type of construction, insurance to the amount of $30,000 would afford ample protection, and a reduction of $750 is thus made in the item of insurance.
There are included in the above estimated amount items of extraordinary repairs-reshingling of the Machon School, which is much needed, painting the outside woodwork of the High School, and varnishing the interior woodwork. The Commit-
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TOWN DOCUMENTS.
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tee on Ways and Means visited the schools and report that these repairs are needed and should be done, except the varnishing at the High School, which can properly be deferred for the pres- ent. To this the School Committee has assented, and a further decrease of about $400 in the estimate is made.
We recommend that the sum of $42,350 be appropriated for the School Department.
Library. [Page 190.]
We recommend the sum of $1,400 be appropriated for Library maintenance.
r
Parks and Gardens.
[Pages 191 and 240-244. Articles 13 and 40.]
The Park Commissioners recommend an appropriation for swings and sand pits on the Paradise Road playgrounds. Owing to the crowded condition of the grounds when ball is being played by the larger boys and young men, it does not seem best to make the appropriation this year, and we recommend that this matter be referred to the Park Commissioners for a report at the next annual meeting.
We recommend the following appropriations, as asked for by the Park Commissioners.
Blaney Beach and Administration $800 00
Monument Avenue .
700 00
Paradise Road Playground
300 00
As to the care of the Monument Lot, we recommend that $50 be appropriated for the care of the Monument Lot, to be expended under the care of the Selectmen.
Curb on Monument Avenue.
[ Page 243.]
This recommendation is that a concrete curb be placed around the reservation on Monument avenue on each side from Burrill street at Monument square to Elmwood road, the cost being estimated at $900. The curb would be ornamental rather than useful, and as the expense is large, it does not seem prudent, in view of the pressing demands for necessities, to construct it. Such damage as is done by pedestrians or teams is so slight and inexpensive to repair that we recommend the matter be referred to the Park Commissioners, with the suggestion that corner stones at the places subject to trespass will meet the needs.
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1912]
Memorial Day. [Page 191.]
We recommend that the sum of $200 be appropriated for the observance of Memorial Day.
Contingent Fund.
[Page 191.]
This is a fund of uncertain and indefinite uses, as will be seen by reference to the Accountant's report (page 339). While $2,500 is asked for by the Selectmen, it seems best, after con- ference with them, that a less sum be appropriated, and we therefore recommend the sum of $1,000 be appropriated for the Contingent Fund.
Cemeteries.
[ Pages 191 and 272 and Article 1.]
The piping for which the Superintendent asks in his report can be cared for out of the regular appropriation.
We recommend that the sum of $1,600 be appropriated for the care and maintenance of the Cemetery.
Sewer Bonds.
[Page 192 ]
In the schedule of appropriations as given in the Selectmen's Report, the amount required for sewer bonds (page 192) is given as $5,600, and this amount was appropriated at the meet- ing, February 20th. On checking up the amounts of sewer indebtedness, however, we find this amount should have been stated as $8,700.
We, therefore, recommend that the sum of $3, 100, in addition to the amount appropriated February 20th, be appropriated for the payment of sewer bond indebtedness.
Article 9.
We recommend that on all taxes for the year 1912, paid on or before October Ist, a discount of 2 per cent be allowed, and that on all taxes remaining unpaid December Ist, 1912, interest be charged and collected at the rate of 6 per cent per annum.
Appropriations for Water Extension.
[ Page 2$3.]
The Board asks on page 283 for $15,000 for three costly pieces of water main construction, and the usual similar calls for
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TOWN DOCUMENTS.
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extension in addition ; the money to be raised by a bond issue under a special act now in the Legislature authorizing the issue of $50,000 of bonds. In the first place, no vote of the people of the Town authorizing bonds under this act can be valid, until the act itself has become a law. This is a sufficient reason for postponing any action on these recommendations of the Board. But we wish to relate what we have found, because, as we have said, as citizens we have become interested, and therefore feel sure that a recital will also interest you. The Board recommends three pieces of water construction :
(a) From King street along Greenwood avenue to Hum- phrey street.
(b) From the corner of Rockland and Greenwood avenue through Charles E. Phillips' land to Humphrey street.
( c) On Orient street from the Ocean House to Humphrey square.
After the second of these extensions (b) is laid, that through Phillips' land, the first mentioned (a), that from Greenwood avenue, will not be needed, for it will form a connection which is advanced as the reason for laying the first through Greenwood avenue. We do not recommend any such duplication of construction.
As to Orient street, we have elsewhere recommended an appro- priation of $3,500 (Highway Department), part of which is for the resurfacing of this street, a construction that should last for three or four years. If a water pipe were laid, the resurfacing would last but one year, as the work could not be done until the fall, owing to the length of time it takes to get the pipe from the foundry. Coordination and cooperation among the depart- ments, not only here but elsewhere, will surely save the Town much money.
Even if the statements we have already made were not sufficient in themselves for a postponement of action on these recommenda - tions of the Board, a condition has been developed which would forbid any action at all, looking to building any of these exten- sions. It will be seen that no estimate is given of the probable cost of any of them. How is it possible for this Committee to make any recommendations under such circumstances? We asked for figures, and found that none had been prepared. Indeed, they could not have been, for there was no record of the distances, and how could an estimate be ready for action by the Town Meeting, if not even the length of pipe required were known? While the duties of the Committee on Ways and Means
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TOWN CLERK'S RECORDS.
1912]
are broad, still it is beyond question that the making of reliable estimates as to the cost of underground construction is not one of them.
We recommend that the report of the Water Board as to extensions of water mains be recommitted to the Water and Sewerage Board.
Sewer Appropriations.
[Articles 24-5-6-7-8-9, and Page 29S.]
The Board states (page 296) that requests have been filed for sewers in certain streets, and that they recommend that these be built. Sewers cost money, your money, and some reason beyond a mere filing of request should be shown for its construction, because, we repeat : " A sewer is a privilege for you to grant, and not a right to be demanded of you." An analysis of these various requests will be illuminating, we trust.
ROCK AVENUE. This is one of the older streets in Town. The western end has a sewer, and it seems proper that one should be built as petitioned for. We recommend the appropriation of $700 for building a sewer on Rock avenue as petitioned for.
ONTARIO STREET. This sewer, if built, will not connect with the Swampscott system, but with that of Lynn in Eastern avenue. No agreement has yet been made with Lynn defining the conditions, and until such is made, no positive action by the Town should be taken, because of possible complications grow- ing out of the conditions in an agreement, not yet drawn up and signed.
We discuss elsewhere the extent to which the Town should go in aiding speculative enterprises and the development of cheap land. That matter has a bearing in connection with this petition.
We recommend that this suggestion of the Sewer Board be recommitted to the Board.
MELVIN AVENUE. This sewer likewise would have to con- nect with the Lynn system, and for the same reason as in the case just cited, we recommend that the petition be recommitted to the Sewer Board.
MAPLEDALE PLACE. There are many circumstances which we have learned about the conditions in Mapledale place that should be well considered by the Town. Mapledale place leads off Redington street to a much lower grade. Most of the houses stand in what was formerly the bed of a brook, the result being that there is no underground drainage such as would be the case if the land were higher. The sanitary arrangements
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TOWN DOCUMENTS.
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are old style out-houses and some cesspools. As the soil is wet, it follows that if these receptacles are cleaned out the water from the adjacent soil will flow in and fill them again. If they are not cleaned, then whatever can be carried away through such flow of the old brook bed as can pass the obstruction, goes into the drain on Sheridan Road and thence onward. What cannot thus pass off finds its way to the surface, which has caused com- plaints to the Board of Health. The houses are in part second- hand structures, moved in from other parts of the Town, and in addition there is a barn. The Board of Health states that if no sewer is built, it will become necessary to order the houses vacated as unfit for habitation. If a sewer is built the money will have to be borrowed, and what might be called a blanket mortgage placed on all the property in Town, your property, to pay for making the land habitable, with the added result that you will, by lending your credit, increase the worth of the land to its owners, while you will not receive an adequate return. The fact that this sewer, if built, will have to go across private land and that no agreement has been entered into with the own- ers of that land, is sufficient reason for our recommendation that this petition be referred to the Board because, as it calls for con- struction across private land, it is not proper for the Town to make any appropriation at this time.
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