USA > Massachusetts > Middlesex County > Reading > Town of Reading Massachusetts annual report 1949 > Part 6
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The Road to Progress
"History shows that great economic and social forces flow like a tide over communities only half conscious of what is befalling them. Wise statesmen foresee what time is thus bringing, and try to shape institutions and mold men's thoughts and purposes in accordance with the change that is silently coming on.
"The unwise are those who bring nothing constructive to the process, and who greatly imperil the future of mankind, by leaving great questions to be fought out between ignorant change on the one hand, and ignorant opposition to change, on the other." John Stuart Mill
To the Citizens of Reading:
Your committee was created by vote of the Annual Town Meeting in March, 1948 and is composed of one member from each of the four precincts of the town, appointed by the Town Meeting members from the respective precincts, and one member appointed by the Moderator. The Annual Town Meeting held in March, 1949 continued the committee with the additional authority to study the methods practiced by the various town officers and boards, and to make a report with recommen- dations prior to December 31, 1949.
In the course of its study the committee has consulted with many authorities on municipal affairs. It has met with similar study com- mittees in several towns of this State and Rhode Island for exchange of information. The various town officers and boards have been inter- viewed on the subjects of administration, personnel, purchasing of
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supplies and equipment, and interdepartmental relationships. Five public hearings were held for the purpose of ascertaining public senti- ment.
The committee gratefully acknowledges the splendid assistance rendered by the town officers and board members in furnishing informa- tion relative to the operations of their departments.
The Plan in Massachusetts
Although the so-called Town Manager Plan has been in existence for over forty years, only a few Massachusetts towns have adopted it. Saugus, our neighboring town, is now in its second year of operation under the plan. Danvers has adopted the plan and will begin operating under it next March. Stoneham and Ipswich are now in a position to adopt the plan and it is expected that these towns will vote on adoption in March, 1950.
Interest in the plan in Massachusetts is increasing at a rapid rate. Winchester, Watertown, Lexington, Concord, Swampscott, Weymouth, Wilmington, Chelmsford, and Dedham have official committees conduct- ing studies of the plan. In Wellesley a committee has been directed to draw up a proposed charter for consideration by the voters of the town.
The plan in Massachusetts towns operates generally as follows:
1. The basic form of government does not change. The suggested changes are limited to the administrative procedures.
2. The voters continue to elect the Town Meeting members, a Moderator, the School Committee, and the Board of Selectmen.
3. The powers of the Town Meeting and the Finance Committee remain unchanged.
4. The School Committee continues to formulate and administer the educational program.
5. The Selectmen appoint the Town Manager, the Town Accountant, the Finance Committee, the Registrars of Voters and the Election Of- ficials.
6. The Selectmen become a policy-making board for the town.
7. All other boards and officers, now elected, would be appointed by, and subject to removal by, the Manager.
8. The administrative control of all departments, except schools, is given to the Manager.
9. Maintenance of school buildings and purchases of school sup- plies, except text-books, become the responsibility of the Manager.
10. The Selectmen have the power to remove the Manager.
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Reading and Its Present Government
The Town of Reading has grown steadily since the turn of the century, not only in population but in the amount expended for services to its citizens. From a population of just under 5000 in 1900 there has been an increase to an estimated 14000 at the present time. Some indi- cation of its growth in services rendered can be seen in the fact that whereas our total expenditures in 1900 were only about $100,000, our total payroll alone in 1948 was $900,000. All indications point to a con- tinued steady growth in the coming years.
This expanded and complex organization is operated by various boards and officers, either elected by the voters or appointed by certain boards. The town is fortunate in having in these capacities many capable and sincere citizens who give freely of their time, often without remuneration. However, we have observed in our study many weak- nesses in organization beyond the control of present officers to correct. These weaknesses lie in the condition which permits each board and each officer to operate separately without regard to the problems of other boards and officers and without co-ordinated policy and control.
The Manager Plan in Reading
The adoption by Reading of a typical Massachusetts Manager Plan would have its effect in many fields. They may be reviewed briefly, but not necessarily in the order of their importance.
Public Relations. A citizen living under a Manager plan knows who is in charge of all departments and knows where he can take his problems. He is not faced with a complex group of offices open at irregular and limited hours for business. It is a fact that Managers emphasize the importance of handling courteously and speedily the problems of any citizen.
Managers also go to great effort to produce an attractive Annual Report at moderate cost for wide distribution. The report presents in- formation in such a manner as to stimulate the citizen to read it, and as a result to take a more active interest in the problems of his town government.
Centralized Purchasing. The function of purchasing is treated in manager-operated towns on a centralized basis. This consolidation has resulted in substantial savings for all departments through the appli- cation of accepted business practices. The advantages of centralized purchasing are readily admitted by most persons, even by those who speak against the Manager plan. The Massachusetts General Court in 1916 recognized the value of this practice by passing the necessary legislation to allow towns and cities to establish Purchasing Depart- ments.
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Co-ordination. In manager-operated towns related activities of all departments are put together, because the Manager has the authority to do so. The possibilities for co-ordination, with resulting savings and improved service, become apparent to a Manager because he is directly responsible for all activities of all departments. Such possibil- ities are not apparent to the members of separate administrative boards which are not required to investigate and study the methods of other boards.
Planning. What type of community have we now? What type do we desire? What is the way to assure that this desire will come true? These are important issues in any town, and they represent the general purpose of planning. Planning is not a neglected feature in manager- operated towns. It is one that receives constant attention, not only from the Manager but also from the Selectmen. The latter, finding themselves freed from routine detail, can devote more time to this important problem. The abilities of citizens who hold high positions in industry and professions and who are willing to devote some of their time to their town are needed more in the field of planning than in the field of part-time administration. Under a Manager plan the responsibility for planning is centered in the Selectmen who with their own knowledge and with the advice of others can determine upon a sound program for the future.
To summarize, the reason a purchasing agent has not been appoint- ed; that there has been no appreciable integration of departmental efforts; and limited application of planning methods is the absence of the legal authority which a Manager Plan would supply.
Conclusions
This committee believes that greater efficiency in the various town departments can be achieved by reorganizing the town government under a Manager Plan. It also believes that in the face of large, con- templated expenditures the town should not lose the opportunity to make every dollar count in the day-to-day administration of the town's affairs.
The plan is completely democratic. It is based upon sound prin- ciples that have helped many private corporations to operate success- fully, namely a policy-making body and an administrative officer with authority and responsibility in proper balance.
Since this question vitally affects all citizens of the town, they should be given the opportunity to vote on a specific plan of manager govern- ment, drawn to suit Reading's requirements.
Recommendation
Therefore, it is our unanimous recommendation that a committee
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be appointed to prepare a charter for a Selectmen-Manager form of government for the Town of Reading with authority to petition the General Court for an enabling act on the basis of such a charter, with the provision that the act, if granted, be submitted to the voters of the town for acceptance or rejection at the first Annual Town Election after its enactment and with provision for re-submission at each of the two succeeding annual elections.
CHARLES STRATTON, Chairman EDWARD C. EMSLIE, Secretary A. LLOYD DAVID LEWIS E. PIERCE HERBERT J. WOOLDRIDGE
Appended are
1. Chart of Present Government.
2. Chart of Proposed Manager Plan.
Motion by Charles Stratton.
Article 8. Moved that a committee be and it hereby is established to prepare a plan of Selectmen-Manager Form of Town Government for the Town of Reading with authority to petition the General Court at its 1950 session or at any subsequent session up to and including that held in the year 1952 for passage of an enabling act based on such a plan; said committee to consist of one registered voter residing in each of the four precincts to be chosen by ballot by the town meeting members from the respective precincts together with one registered voter from the town to be chosen by the moderator; that said committee be chosen as promptly as practicable after authorization by the town meeting; and that said committee be authorized to hold such public hearings as it may deem necessary.
Amendment by Neil C. Robinson.
Moved to amend the motion so that the committee shall consist of the present special committee to study the manager form of govern- ment, namely, Charles Stratton, Edward C. Emslie, A. Lloyd David, Lewis E. Pierce and Herbert J. Wooldridge.
Mr. Robinson's amendment was voted in the affirmative.
Mr. Kenneth Latham then offered the following amendment:
Moved to amend the motion by striking out of the original motion the following "to petition the General Court at its 1950 session or at any subsequent session up to and including that held in the year 1952 for passage of an enabling act based on such a plan;" and inserting therefor the following "to present same to the next Reading Annual Town Meeting."
Mr. Latham's amendment was voted in the affirmative.
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The original motion, as amended that a committee be and it hereby is established to prepare a plan of Selectmen-Manager Form of Town Government for the Town of Reading with authority to present same to the next Reading Annual Town Meeting. That committee shall consist of the present special committee to study the Manager Form of Govern- ment, namely, Charles Stratton, Edward C. Emslie, A. Lloyd David, Lewis E. Pierce and Herbert J. Wooldridge, and that said committee be authorized to hold such public hearings as it may deem necessary, was then voted in the affirmative.
On motion made by Charles Wilkinson, it was voted to take up Article 2.
Article 2. On motion made by Charles Wilkinson, it was voted that the sum of One Thousand Fifteen Hundred ($1500.00) Dollars be appropriated by transferring said sum from the Maturing Debt Account to the Veterans' Benefits Aid Account, and the Town Accountant be and hereby is authorized to transfer said sum to said account.
Article 3. On motion of Charles Wilkinson, it was voted to lay Article 3 on the table.
Article 4. On motion of G. Lawrence Roberts, it was voted that the Board of Selectmen be and they hereby are authorized and empowered for and in behalf of the Town to sell upon such terms and conditions as they may determine the Chestnut Hill School property situated on the Westerly side of Hopkins Street and consisting of approximately 16,110 square feet of land together with the buildings thereon and shown as lot 5 on Town of Reading Assessors Plan 108, and said Board are further authorized and empowered to execute for and in the name of the Town deed of conveyance and such other instruments which may be necessary for conveying said premises to the purchaser thereof.
Article 5. On motion of G. Lawrence Roberts, it was voted that the Board of Selectmen be and they hereby are authorized and empowered for and in behalf of the Town to sell upon such terms and conditions as they may determine the Grouard House property formerly used by the School Department and situated on the Easterly side of School Street and consisting of approximately 14,000 square feet of land together with the buildings thereon and shown as lot 44 on Town of Reading As- sessors Plan 8, and said Board are further authorized and empowered to execute for and in the name of the town deed of conveyance and such other instruments which may be necessary for conveying said premises to the purchaser thereof.
Article 6. On motion of Kenneth Latham, it was voted that Article 6 be postponed indefinitely.
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Article 7. On motion of Joseph D. Knight, it was voted that the sum of twenty-five hundred ($2500) dollars be appropriated by trans- ferring said sum from the unexpended balance in the Welfare Aid to Dependent Children Account as follows: Fifteen hundred ($1500) dollars to the Welfare General Aid Account and one thousand ($1000) dollars to the Old Age Assistance Account, and the Town Accountant be and he hereby is authorized and empowered to transfer said sum to said accounts.
Article 9. On motion of Emerson A. Willard, it was voted that under Regulation 7, paragraph (a) of the Wage and Hour Classification Plan, the exception made by the Personnel Board of a junior clerk entering the employ of the Public Works Department at a rate greater than the minimum salary established by the schedule adopted under the said Plan, be and the same hereby is approved.
Article 10. On motion of Alexander P. Glover, it was voted that the sum of four hundred ($400) dollars be appropriated by transferring said sum from the unexpended balance in the School Department General Maintenance Account to the Account for the Transportation of School Children for the Year 1949, and the Town Accountant be and hereby is authorized to transfer said sum to said account.
Article 11. On motion of Alexander P. Glover, it was voted that the School Committee be and they hereby are authorized and empowered to dispose of by sale, gift, destruction or otherwise upon such terms and conditions as they may determine all the obsolete and worn textbooks, statuary and other school supplies which are no longer needed for school purposes.
Article 12. On motion of James Calvin, it was voted that the sum of Seven Hundred and Thirty-nine and 38/100 ($739.38) Dollars be ap- propriated by transferring said sum from the unexpended balance in the Lowell Street 1949 Chapter 90 Construction Account to the Charles Street 1949 Chapter 90 Construction Account and the Town Accountant be and he hereby is authorized and instructed to transfer said sum to said account.
Article 13. On motion of James Calvin, it was voted that the sum of Two Thousand ($2,000) Dollars be appropriated by transferring said sum from the Road Machinery Fund to the Road Machinery Operating Account and the Town Accountant be and he hereby is authorized and instructed to transfer said sum to said Account.
Article 14. On motion of James Calvin, it was voted that the sum of Two thousand ($2000) Dollars be appropriated by transferring said sum from the amount allotted for salaries under the 1949 appropriation for
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the laying of water mains to the sum allotted for materials and expenses thereunder, and the Town Accountant be and he hereby is authorized and instructed to transfer said sum to carry out the purpose of this vote.
Article 15. On the motion of James Calvin, it was voted that the sum of Two Thousand ($2000) Dollars be appropriated as follows: Twelve Hundred ($1200) Dollars from the unexpended balance in the Barrows Road Construction Account and Eight Hundred ($800) Dollars from the unexpended balance in the Dustin Road Construction Account and to transfer said sums to the Snow and Ice Account, Twelve Hundred ($1200) Dollars being allotted for Salaries and Eight Hundred ($800) Dollars for expenses and the Town Accountant be and he hereby is authorized and instructed to transfer said sums to said account.
Article 1. On motion made by Kenneth Latham, it was voted to take Article 1 from table. The following was read by William Mckinnon:
December 5, 1949
Town Meeting Members Town of Reading Reading, Massachusetts
Gentlemen:
The committee appointed in accordance with your vote of March 28, 1949, to recommend a formula for determining the amount to be con- tributed by the Municipal Light Department each year to the Town of Reading in lieu of taxes is pleased to submit a report.
A number of meetings have been held, at which all members of the committee were present. The problem was discussed at considerable length in order that each member might become familiar with all the points brought out by the Municipal Light Board and the Finance Committee in their previous discussions of this problem. Facts and figures were requested of the Light Department and were provided.
In attempting to arrive at an equitable solution, the committee has been acutely aware of the following vital points:
1. The Municipal Light Department should contribute some amount to the Town each year in lieu of taxes.
2. The Town should be able to know with some degree of certainty the amount which will be contributed from year to year.
3. Provision should be made for a reasonable amount of necessary expansion and replacement of equipment.
4. The amount of contribution should not be beyond the ability of the Light Department to pay out of profits.
The committee has carefully considered these and a number of
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other factors in arriving at what is believed to be a reasonable and workable formula.
It is the recommendation of this committee that: "The amount to be contributed in each year by the Municipal Light Department to the Town of Reading in lieu of taxes shall be 212% of the 'Cost of the Plant and General Equipment' as of December thirty-first of the preceding year plus 10% of the Net Income as shown by the 'Summary of Income and Expenses' of the Municipal Light Department for the said preceding year."
Had this formula been used in determining the contribution for 1949, the amount would have been
212% of Cost of Plant and General Equipment as of Dec. 31, 1948 ($1,513,672.31) $ 37,841.80
10% of Net Income for 1948 ($70,038.24) 7,003.82
Total Contribution $ 44,845.62
Increased rates in effect for the last half of 1949 should make the amount contributed for 1950 somewhat higher, since part of the con- tribution is based on net income. The full effect of the recently in- creased rates will not be realized until the following year when the Light Department will benefit from a full year of higher rates. Based on an estimate made as of the end of October this year, the 1950 contri- bution would be approximately:
212 % of Cost of Plant and General Equipment as of Dec. 31,
1949 ($1,525,000) $ 38,125.00
10% of Net Income for 1949 ($100,000) 10,000,00
Estimated Total Contribution for 1950 $ 48,125.00
It is the unanimous opinion of the members of your committee that the use of this recommended formula will accomplish the desired result, namely, to turn over to the Town Treasury a reasonable sum each year which the Light Department can meet out of current profits and at the same time provide funds for necessary and desirable expansion and replacement of equipment.
Respectfully submitted,
CHARLES P. ANDERSON WALTER M. FOWLER JOSEPH H. REED HOWARD L. ROGERS
WILLIAM D. MacKINNON, Chairman
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On motion made by Kenneth Latham, it was voted to accept the above report.
On motion of Kenneth Latham, it was voted that Article 1 be laid on the table.
Article 3. On motion of Kenneth Latham, it was voted to take Article 3 from the table.
Article 3. On motion of Kenneth Latham, it was voted that there be and hereby is established the following standard method to be fol- lowed each year for determining the amount the Electric Light Depart- ment shall turn over to the Town in lieu of taxes:
An amount equal to 21/2% of the cost of the Plant and General Equipment as of December 31st of the preceding year plus 10% of the net income as shown by the Summary of Income and Expenses of the Municipal Light Department for the said preceding year.
On motion of Kenneth Latham, it was voted that Article 1 be taken from the table.
On motion of Kenneth Latham, it was voted to indefinitely postpone Article 1.
On motion of Kenneth Latham, it was voted to adjourn, Sine Die. Adjourned 10:50 P.M.
Attest:
GUY ELLISON, Town Clerk
NOTICE TO PARENTS, HOUSEWIVES, PHYSICIANS AND MID-WIVES
Your attention is called to the sections below taken from the revised laws. Blank forms for return of birth can be obtained from the Town Clerk.
General Laws, Chap. 46, Sec. 3 (Tercentenary Edition)
(As Amended By Chapter 326, Section One, Acts of 1939)
Every physician, or hospital medical officer registered under section nine of chapter one hundred and twelve, in this chapter called officer, shall keep a record of the birth of every child in cases of which he was in charge, showing date and place of birth, the name, if any, of the child, its sex and color, the name, age, birthplace, occupation and resi- dence (including the street number, if any, and the ward number if in a city) of each parent, the maiden name of the mother and the name of the physician or officer, if any, personally attending the birth. If the child is illegitimate, the name of and other facts relating to the father shall not be set forth except upon written request of both the father and mother; provided that if an illegitimate child shall have become legitimate by the intermarriage of his parents and the acknowledgment
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of his father, as provided in section seven of chapter one hundred and ninety, prior to the mailing or delivery of any report herein required, such report shall read in all respects, as if such child had been born to such parents in lawful wedlock. Said physician or officer shall, within 15 days after such birth, mail or deliver to the clerk or registrar of the town where such birth occurred, a report stating the facts herein above required to be shown on said record and also the said written request, if any; provided that if said report is not so made within forty-eight hours after such birth, said physician, or officer shall, within said forty- eight hours, mail or deliver to said clerk or registrar a notice stating the date and place of the birth, the street number, if any, the ward number, if in a city, and the family name. Upon presentation to him of a cer- tificate of the town clerk stating that any such birth has been duly reported, the town treasurer shall pay to such physician or officer a fee of twenty-five cents for each birth so reported. Any physician or any such officer violating any provision of this section shall forfeit not more than twenty-five dollars. The said town clerk or registrar shall file daily with the local board of health a list of all births reported to him, showing, as to each, the date of birth, sex, color, family name, residence; ward and physician or officer in charge.
Within sixty days after the date of the birth of any child born in the commonwealth with visible congenital deformities, or any condition apparently acquired at birth which may lead to crippling, the physician in attendance upon said births shall prepare upon a form provided by the state department of public health and file with the clerk of the town where such births occurred a report setting forth such visible congenital deformity, or any condition apparently acquired at birth which may lead to crippling.
Said clerk shall transmit forthwith to said department such supple- mentary report of such birth. The contents of such report shall be solely for the use of said department in connection with its functions relative to crippled children, and such report shall not be open to public inspection or constitute a public record.
General Laws, Chap. 36, Sec. 6
Parents within forty days after the birth of a child, and every householder, within forty days after a birth in his home, shall cause notice thereof to be given to the clerk of the town where such child is born.
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