USA > Massachusetts > Middlesex County > Arlington > Town of Arlington annual report 1929 > Part 20
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The worker must be a man with broad training and vision. We must differentiate between physical edu- cation and community recreation. Physical education is primarily training for bodily development whereas community recreation is a constructive and enjoyable use of the leisure or "off time" of people. It is neces- sary that a worker should be a good executive, but above all he must have strongly marked qualities of leadership. He must be able not only to study the community plan intelligently and put into effect an adequate program, but he must be able to work in close cooperation with the private agencies and interpret to
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the community in general the purpose underlying his work.
The staff of summer and after school play leaders to carry out various phases of the program should, of course, come under the year round leader. These workers should be chosen with as much care as are the teachers in the schools and should be as far as possible young men and women of the highest type who have had special training along this line.
No small part of the work of the executive, how- ever, is training his staff of workers, not only in the technical side of the work, but in the theory back of it all.
PROGRAM
Year Round Program of Activities
A year round system should combine sound organization, creative trained leadership and a pro- gram of activities which offers recreation to the indi- vidual or group of every age from the child to the oldest adult.
Beginning first with playgrounds for children, the conception of a municipal system has developed until now it presupposes a separate department in city government to encourage and develop opportunities for all groups in the community throughout the entire year.
To furnish such a program, the city must utilize every facility of a public nature that is suitable for the purpose. It must develop the most efficient use pos- sible, not only of parks, playgrounds and athletic fields, but also encourage the wider use of schools, library, and other public buildings as centers where the
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social, civic or educational activities of community groups may be carried on. In addition to outdoor activities it must encourage the presentation of festi- vals, pageantry, community music and public celebra- tions.
Arlington has a long list of opportunities which it may develop. Appended is a partial list of types of activities possible in a balanced year round program of recreation. (See Exhibits D and E).
Wider Use of School Buildings for Community Recreation
The conducting of community centers is an impor- tant part of the community wide, year round recrea- tion program.
The great majority of cities have no special recrea- tion buildings for use as community centers, and the school, supported by tax funds and belonging to all the people is the logical and desirable meeting place.
It is important that everything possible be done to adapt the school to recreation usages and to make the facilities as attractive as possible for the neighborhood people using it. Many school buildings at first sight seem hopelessly inadequate, but with the exercise of ingenuity, they can be made usable.
In many cities the Municipal Recreation Depart- ment furnishes the leadership and assumes full respon- sibility for the program guaranteeing the schools against breakage and any misconduct.
The School Board allowing the use of the build- ings and furnishing light, heat and janitor service.
In other cities the latter expenses are borne by the Recreation Department.
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Where schools contain gymnasiums, auditoriums, club rooms, stages, swimming pools and other recrea- tional facilities, they offer exceptional opportunities for indoor recreation for whole neighborhoods. Such development creates a spirit of harmony and coopera- tion between School and neighborhood of vital impor- tance to all concerned.
The National Education Association of United States by resolution soundly endorses the use of school buildings as community recreation centers.
The Playground and Recreation Association of America will furnish Arlington, upon request, with a full copy of this resolution and a complete digest of plans and methods used in adapting schools as com- munity recreation centers entitled "Community Cen- ters in School Buildings." (See Exhibit F.)
Other Community Activities
It is our feeling that there is a decided need for an intense development of community music, community drama, and the possible organization and promotion of art leagues or clinics of an informal type, not the sort which necessitate technical training but which would give recreation and constructive opportunities to thou- sands of young people who like to draw, paint or con- struct furniture.
Budget
The suggested budget for year round public rec- reation for the City of Arlington includes only the financing of the full time executive director, one com- bination office and recreation assistant, a staff of work- ers on a part time basis and the expense necessary to operate a moderate, but adequate well balanced pro- gram throughout the year. This program will offer
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recreational activity to practically 100% of the people and includes both children and adults.
Any expense involved in developing public holiday celebrations other than Christmas and 4th of July would be borne by interested private groups, except that the Recreation Executives would be available to assume full responsibility for the success of each spe- cial celebration.
The proposed budget is based upon the experiences and official reports from cities in the 25,000 to 30,000 population class from all sections of New Eng- land and the United States. (Similar to G).
Suggested Budget Department of Recreation
Arlington, Massachusetts, 1930
1. 7 Summer Playgrounds-10 weeks
Salaries (15 workers) $2,200.00
Equipment, supplies, upkeep 1,100.00
2. 3 After School Playgrounds-3 months
Salaries-3 workers 300.00
3. Community Center Activities Leadership and supplies 300.00
500.00
4. Winter Sports
5. Holiday Celebrations Christmas, 4th of July, etc. 150.00
6. Salary Director of Recreation 2,500.00
7. Salary Office & Recreation Ass't. 1,200.00
$8,250.00
Present Park Appropriation
6,750.00
$15,000.00
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Consideration should be given to the total expenditure of the School Committee for summer playground work in 1929 which was 1,695.35
The amount of Town funds saved by a reduction in juvenile delinquency may be estimated at 304.65
$2,000.00
Administration
The subject of Administration is more or less cov- ered in the two preceding sections but we want to make plain the idea that the entire program of public recrea- tion should be administered by a public recreation commission. The direct supervision being under a director of recreation on a year round basis with a suitable staff of workers. The year round director to supervise a program such as we have outlined in the preceding sections. During the intensive summer months this staff would have to be augmented to care for the larger program. We believe that the school buildings and various local facilities should be secured for use at the time consideration is given to a year round system.
RECOMMENDATIONS
1. Recreation Commission
It is recommended that a Recreation Commission of five members be created for Arlington to consist of one member of the Park Commission, one member of the School Committee, one member of the Town Plan- ning Board, one member of the Board of Public Works and one member of the Board of Selectmen.
The advantages of having a supervising board such as the above are self-evident, viz., the combined personnel, facilities and areas under the control of one official body.
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2. Recreation Director
It is recommended that a full time year round Recreation Director be employed to supervise the Community program and coordinate the existing facili- ties in Arlington along the lines noted in our conclu- sions.
3. Play Areas
It is recommended that the construction of play areas in Meadow Brook Park, Menotomy Park, Arling- ton Heights Park and the Senior High School Field be made in accordance with the maps herewith attached.
4. Field Houses
It is recommended that suitable shelter houses be provided in the following parks : Meadow Brook, Arlington Heights and Menotomy. All play areas should have shelter houses with toilet facilities and be located and operated with the view of insuring the safety of every child and adult.
5. Annual Appropriation
It is recommended that an annual appropriation of $15,000 be made for the support of a recreation system as shown in the suggested budget in our conclu- sions.
6. Additional Areas
Senior High School Field .- It is recommended that the present entrance to the Senior High School Field be improved and that property be acquired to afford an approach to Mill Street. Sufficient land should also be secured here before the price becomes prohibitive, to permit of expansion for additional activities.
Proposed Playfield-It is recommended that the property in the eastern section of the city, known as
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REPORT OF PARK COMMISSIONERS
the Norcross Street area and shown on Map No. 1, be acquired to establish a well balanced physical distribu- tion of areas. It is essential to prepare for future growth now.
7. Recreation Council
It is recommended that a Recreation Council be organized consisting of members from the various clubs, lodges, churches, institutions and other groups and individuals, this council to consider the develop- ment of Municipal Recreation and to assist and coop- erate with the Recreation Commission in every possible way. This council has, of course, no official status.
The purpose of the Recreation Council is exempli- fied by the following statement :
"To serve to the best of our ability, unselfishly and courageously, in the interest of health, happiness and citizenship, by fostering the public recreation interests.
As citizens of this Town, we agree to meet regular- ly for the purpose of discussing and aiding in the pro- jection and carrying on of the work of the Department of Public Recreation.
We pledge ourselves to the responsibility of fur- thering those wholesome leisure-time activities that develop a richer life for our citizens and create com- munity unity.
With these thoughts in mind, we propose to en- courage the participation of all citizens in music, drama and physical activities, the discussion of public affairs and the intellectual use of spare time." (See Exhibit C.)
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MASSACHUSETTS HOME RULE BILL (GENERAL ACT) (Chapter 217)
An Act Relative to the Powers of Cities and Towns in Respect to Public Recreation, Playgrounds and Physical Education
Whereas, the benefits to be derived from this Act would be lost for the current year if it were not to take effect forthwith, therefore, it is hereby declared to be an emergency law, necessary for the preservation of the pub- lic convenience.
Be it enacted, etc., as follows :
Section 1. Chapter twenty-eight of the Revised Laws, as amended by section one of chapter five hundred and eight of the Acts of nineteen hundred and ten, by section one of chapter twenty-five of the General Acts of nine- teen hundred and fifteen and by chapter one hundred and twenty-four of the General Acts of nineteen hundred and eighteen, is hereby further amended by striking out sec- tion nineteen and substituting the following :
Section 19. Any city or town may acquire land and buildings within its limits by gift, purchase or right of eminent domain, or may lease the same, or may use suit- able land or buildings already owned by it, for the pur- poses of a public playground or recreational centre, and may conduct and promote recreation, play, sport and physical education, for which admission may be charged, on such land and in such buildings, and may construct buildings on land owned or leased by it and may provide equipment for the said purposes. Buildings so acquired, leased or constructed, may also be used for town meetings and, with the consent of, and subject to the conditions and
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terms prescribed by, the officer or board in control of the building, may be used by the municipality, or by any de- partment thereof, or by any person, society or other or- ganization for such other public, recreational, social or educational purposes as the said officer or board may deem proper. For the purposes aforesaid, any city or town may appropriate money and may employ teachers, supervisors and other officials and may fix their compensa- tion. Except in the City of Boston and except as to the making of appropriations, the powers conferred by this section shall be exercised by the Board of Park Commis- sioners, or by the school committee or by a playground or recreation commission appointed by the mayor or elected by the voters of the town at an annual town meeting or at a special meeting called for the purpose, or may be dis- tributed between the board of park commissioners, the school committee and such playground or recreation com- mission, or any two of them, or they may be exercised by a commission made up from any one or more members of all or any one of the said boards or commissions, ac- cording as the city council or the town may decide. Until the city council or the town makes a determination as aforesaid, the said powers shall remain in the body now exercising them. Within sixty days after the taking of land under the provisions of this section, the taking authority shall file and cause to be recorded in the regis- try of deeds for the county or district in which the land lies a description thereof sufficiently specific for identifi- cation and a statement of the purpose for which it was taken. Any municipal authority which is or shall be authorized to exercise the powers conferred by this sec- tion, or any of them, is hereby authorized to conduct its activities on (1) property under its control, (2) on other property under control of other public officers or boards, with the consent of such officers or boards, or (3) on private property, with the consent of the owners.
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Section 2. This act shall take effect upon its pas- sage. (Approved June 6, 1919.)
Chap. 217, page 2.
SUMMARY
In completing this study we desire to make clear that the Playground and Recreation Association of America will be glad to furnish specific material and data for the carrying out of all the suggestions made in this analysis. We shall be very pleased to spend a sufficient amount of time with the members of an organization to work out the entire plan, should you think favorably of it either now or in the future. We shall be very glad to quote specific instances where similar plans have been developed and put in operation in other sections of the country, if such material and information is deemed necessary.
It has been a great pleasure to work with the mem- bers of your Park Commission who have given us every assistance and we particularly wish to thank Mr. James M. Keane, Town Engineer, and Miss E. Caroline Pierce, Town Clerk, who with their staffs have been most coop- erative in the preparation of this report.
EXHIBIT A
ADMINISTRATION OF CITY RECREATION
The responsibility of the municipality to provide an adequate recreation program for its people is a generally accepted fact. Various methods are used, however, in administering the recreation work in different cities. The responsibility rests generally with the park board, the school board or an independent playground and recrea- tion commission. Sometimes two of these groups join in conducting the recreation program and occasionally two or more boards function independently in the same city. Examples can be cited of successful recreation work car-
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ried on under each of these administrative methods and a difference of opinion exists as to which municipal de- partment should be entrusted with it. State laws, which should, of course, always be studied, sometimes permit or favor one particular type of administration, but generally leave the choice to the city to be determined by local con- ditions.
The School Board
The school board, or board of education is favored by some for the following reasons :
(1) Much of the value of play is educational, hence it should be under the control of those who administer the city's education.
(2) The school board controls buildings and grounds needed for the recreation program. To an increasing ex- tent school buildings contain recreation facilities and school sites provide playgrounds.
(3) It already has charge of the physical education of the school children, which is becoming increasingly a play motivated program.
(4) The educational authorities have a large corps of teachers with the knowledge of education and experi- ence in handling children that are necessary to children's playground workers. The character, education and ideals of the teachers under the school board are generally on a high plane.
On the other hand, several reasons are offered why the school board is not the best body for administering a city wide recreation program. Among them are the following :
(1) The average school board is accustomed to think and plan in terms of children, and has given very little
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attention to the problems of adults whose activities com- prise one half of the recreation program in some cities. Furthermore it has largely concerned itself with what takes place during school hours, and the free-time periods -after school, week-ends, and vacations-have not been considered as a part of its responsibility.
(2) The large school budget frequently includes recreation as one of the least essential and "extra" items, and when reduced, as is often the case, the appropriation for recreation is likely to be the first to be cut.
(3) The school board thinks largely in terms of the school plant, and is not accustomed to promote and con- duct activities in churches, lodges, parks and various in- stitutions, yet the recreation work involves conducting or cooperating in activities with every group in the city.
(4) Although play for children is largely educa- tional, recreation for adults is not necessarily so and many types of play and recreation suffer from the application of pedagogical methods of leadership or control to which the school board and its employees are accustomed.
The Park Board
The advocates of the control of recreation by the park department point out that many of the facilities essential for the community recreation program, such as playfields, bathing beaches, golf courses and swimming pools are owned by park authorities. The construction and mainte- nance of these properties has been and is an important function of the park department. It is also accustomed to dealing with and serving large numbers of people. The fact that park budgets are comparatively large and pro- vide funds for securing and operating many outdoor recre- ation facilities is offered as another reason for park man- agement of recreation.
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REPORT OF PARK COMMISSIONERS
A few of the reasons given for not placing recrea- tion under the control of the park board are given here. It should be stated, however, that a change in policy of many park boards during recent years in their attitude toward recreation tends to minimize the force of some of these statements.
(1) The work of the park board involves such a wide variety of functions, as the construction of roads, bridges and recreation facilities, maintenance of street trees and various types of properties, acquisition of areas, operation of zoological gardens, museums, refectories and similar facilities, that only minor attention is likely to be given to the question of recreation leadership.
(2) Park boards, like school boards, think in terms of properties under their control and are not accustomed to promoting activities among private agencies and schools away from park areas.
(3) In very few cities have school buildings been turned over to park boards in which to conduct recreation activities. On the other hand, few park boards have very ample indoor facilities-consequently either no indoor program is carried on costly duplication of buildings re- sults or it is conducted by two or more groups. Experi- ence tends to indicate that school boards are less likely to turn over their properties to a park board for recrea- tion use than to an independent recreation commission upon which they probably have representation.
The Recreation Board
Many of recreation workers believe that because of the wide range of activities which it is necessary for an administrative body to carry on, it is advisable to have a separate recreation board or commission. There is a dis- tinct tendency, therefore, toward the separate recreation board plan-the creation of a board composed of individ-
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uals having an appreciation of school and park ideals, who will have jurisdiction over recreation activities of the wid- est scope. It will use facilities provided by the park, the school, the street, the dock or any other municipal board or department, and also special facilities secured for its own use or loaned by private groups. These facilities will be utilized in conformity with a city-wide plan designed with special references to the recreational function and use of these facilities.
Some of the advantages of a recreation board over other city departments as managing authority of recre- ation have been stated as follows :
(1) A recreation board provides a coordinating body on which representation may be secured of all groups whose property must be used in the operation of an eco- nomical recreation system. The appointment on the board of representatives of school and park boards provides the machinery for such cooperation. Through a recreation board in this manner all the resources of all the depart- ments of the city may be harmoniously utilized.
(2) Boards appointed for other purposes are usually already loaded with work and find it difficult to give recre- ation interests adequate attention.
(3) The members of a recreation board are selected with the thought of recreation in mind; other boards are selected primarily for other purposes.
(4) A city recreation program is not confined to any special facilities, ages, localities or groups but involves the helping of all people in the city to use their leisure time with the greatest pleasure and profit. No existing city department was created for the purpose, or has the means of rendering this particular service, hence the need for a special commission.
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(5) It is easier to secure an adequate appropriation for recreation if the question of the appropriation is not confused by being combined with that of a large appro- priation for, say, boulevards or industrial education.
(6) A separate recreation commission, appointed for the sole purpose of studying recreation needs and meeting these needs, can more readily be held responsible.
(7) The recreation interests are likely to be kept more permanently before the community if a separate board with an efficient superintendent of recreation is at work.
(8) The problems of recreation in a city are so large and varied as to require the individual attention of the strongest possible municipal board, needing all the time and energy the members of an unpaid board can give. The superintendent of recreation in a city needs the hearty support of such a group of public-spirited citizens, able to give careful attention to all the intricate and vital prob- lems involved in a comprehensive municipal recreation system.
The objection most commonly raised to the creation of a playground and recreation commission is that doing so sets up another city department, thereby adding to the already complicated municipal government. It is also claimed that duplication results due to setting up new administrative machinery. The inadvisability of creating a department with little if any property, to conduct a pro- gram on properties controlled by other departments is also argued.
General Principles
Regardless of the form of administration determined upon, the following are a few principles which it is be- lieved should be followed :
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All city owned property suitable for recreation should be made available for the use of the department conduct- ing recreation under conditions worked out between the recreation authority and the department controlling the property.
A commission, committee or some form of organized group should be appointed to give continuous and col- lective thought to the leisure time problems of the entire city and to work out effective means of meeting them. It is advisable for both the school board and the park board to have representation on this group, because the use of school and park property is so essential to a suc- cessful recreation program. By making the terms of office of the members overlap, so that not more than one or two expire each year, continuity of planning results.
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