HomeMy Public PortalAboutGovernment Study Commiitee Final Report
Town of Brewster
Government Study Committee
Final Report
July, 2016
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GOVERNMENT STUDY COMMITTEE
July, 2016
Brewster Board of Selectmen, John Dickson, Chairman
Dear Chairman Dickson and the Board,
The members of the Brewster Government Study Committee are honored to present this Final
Report of the Government Study Committee to the Board of Selectmen and the citizens of
Brewster.
The Government Study Committee (GSC) has spent two years at their assigned task “of
conducting an in‐depth review of the Town’s current organizational structure including the role
of Town Administrator, the various Town departments, boards, committees, and commissions.
The study will examine the clarity of duties, span of responsibilities, methods of internal and
external communication and coordination” as called for in the GSC’s charge. In addition the GSC
considered other areas it identified as potentially affecting Brewster now or in the future. In
carrying out the charge of the Committee the GSC conducted a citizen’s survey which received
over 600 responses, held a public forum and interviewed numerous Town Boards,
Commissions, Committees, employees and officials.
The Committee originally identified 27 findings that were presented in the GSC Phase 1 report.
These initial findings received further study in Phase 2 and 3, which resulted in the 24 issues
presented in this Final Report.
The members of the Government Study Committee hope this report will be used as a document
to guide positive change in Brewster government. The reports presents discussion around the
issues the GSC has identified and recommends a course of action to be considered for each
issue. In no instances does the GSC proscribe “the answer” to the issue because the Committee
strongly feels that the answers must be developed during open discussion involving the
Administration, elected officials and citizens of Brewster.
Finally, the Committee would like to acknowledge the assistance which Donna Moberg
provided. Without her efforts it would have been a much more difficult undertaking.
Respectfully Submitted,
The Government Study Committee
Jerri Carlin Chris Kenney Colin Odell, Chairman
Elbert Ulshoeffer Dave Whitney
2198 Main Street
Brewster, Massachusetts 02631‐1898
(508)896‐3701
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Section 1 – Background and Summary
Brewster Government Study Committee Final Report July, 2016 1
SECTION 1 – Background and Process
BACKGROUND
The Brewster Government Study Committee (GSC) was created by the Board of
Selectmen in March, 2014 and charged with “conducting an in-depth review of
the Town’s current organizational structure including the role of Town
Administrator, the various Town departments, boards, committees, and
commissions. The study will examine the clarity of duties, span of
responsibilities, methods of internal and external communication and
coordination. The study will compare how these factors are dealt with in Town
policies and in practice.”
Among the areas of Brewster Town government outlined for analysis by the
Selectmen were Brewster’s organizational structure, definition of duties,
management appointments, communication and coordination, staffing, and
performance management. The Committee also looked at the various Boards,
Committees and Commissions from the standpoint of the relationship between
the body and support staff, the relationship between policy-making and
regulatory responsibilities and the member selection process. In addition to
these areas the committee was given a free hand to consider anything it
identified that may affect Brewster now or in the future. (The full charge for the
GSC is found in the Appendix)
The Selectmen interviewed a number of candidates for the GSC and in June
appointed Don Arthur, Peggy Jablonski, Chris Kenney, Todd Montgomery, Colin
Odell, Dave Whitney and Elbert Ulshoeffer to be the seven members of the
committee. Peggy Jablonski subsequently resigned from the GSC in September
and the Selectmen selected Jerri Carlin as her replacement in November.
Subsequently Don Arthur and Todd Montgomery resigned from the GSC and in
the spring of 2016 the Selectmen officially reduced the size of the GSC to five
members.
The initial meeting of the BGSC was held on July 15, 2014. At this meeting the
members of the committee selected Colin Odell to be Chairman and Todd
Montgomery to be Vice-chairman. Since the initial meeting the GSC has met
twice monthly, typically on the second and fourth Thursdays. These meetings
Section 1 – Background and Summary
Brewster Government Study Committee Final Report July, 2016 2
were recorded and broadcast on the Town’s public television channel and are
also available on the Town website.
Committee Process
During 2014 the primary work of the BGSC was the information gathering
called for in Phase 1 of the process outlined in the GSC Charge. The committee
conducted interviews with the Town Administrator and Assistant Administrator,
Town Department heads, and many of the Town’s boards, Commissions and
Committees. This interview process continued well into 2015.
In addition to the interviews the GSC distributed a survey to Brewster residents
with the fall 2014 tax bills. The survey document was also available on the
Town website and as an online web survey. The GSC received over 600 survey
responses. The GSC also held a Citizen’s forum to solicit public input. An “Open
Speak” agenda item was also part of the GSC meetings to provide additional
opportunity for citizen input.
During Phase 1 twenty-seven initial findings were identified for further study.
These findings were presented to the Selectmen in July, 2015. The further
study of the initial findings resulted in the 25 issues that are documented in
Section 2 of this report. Of the four initial findings that did not progress two
were consolidated with two similar issues and two were found to have already
been addressed by the Administration.
The members of the GSC took it upon themselves to develop the Committee
positions on 19 of the 24 issues presented in the report. The services of the
Edward J. Collins, Jr. Center for Public Management at the University of
Massachusetts, Boston were utilized to develop background information for
the remaining five issues.
Report Structure
This report is divided into three primary sections and an Appendix.
This first section provides background information on the Government Study
Committee, the process the GSC went through to develop this report and
explanation of the content of the other sections.
Section 2 – Identified Issues, deals with the issues that the GSC feels need
attention and recommends a process for approaching a solution. In no cases
has the GSC presented what the Committee feels is “the solution” to the issue.
Section 1 – Background and Summary
Brewster Government Study Committee Final Report July, 2016 3
The GSC has attempted to provide information on a potential course of action
for the Selectmen, Administration and Brewster’s citizens to develop an
appropriate solution through open discussion.
Section 3 – Individual Observations, present the personal observations of
various GSC members on issues that were not included in the primary issues.
These issues may provide insights that warrant consideration by the
Administration.
The Appendix provides the complete text of the Collins Center memos and the
charge of the GSC.
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 4
SECTION 2 – IDENTIFIED ISSUES
ISSUE 1
Explore optional forms of administration under MGL Ch.43C Sec 11, 12 and
13.
Description
In assessing the efficacy of operations of Town departments two were identified
for a more in-depth review. Brewster has operated for a number of years with a
consolidated financial management structure without having enacted the
necessary enabling Bylaw. Also, concerns expressed in the GSC Citizen's Survey,
as well as the 1995 GSC report, indicated that a more uniform, citizen friendly
permitting process be considered.
Analysis and Discussion
The GSC utilized the Edward J. Collins, Jr. Center for Public Management at the
University of Massachusetts, Boston (Collins Center) to perform this review. The
Collins Center was requested to explore optional forms of administration within
the financial and permitting departments under the provisions of MGL Ch.43C
Sec.11 and 13.
Sec. 11 allows towns to consolidate the various financial departments under one
financial director. Brewster has accomplished the necessary prerequisite to
consolidate Brewster’s financial departments into a single department of
municipal finance by votes at Town Meeting and a ballot question. A bylaw can
now be presented at a future Town Meeting to consolidate the various financial
departments.
Sec. 13 allows for the establishment of a "Consolidated Department of Municipal
Inspections." As outlined in the Collins Center Memo #5 (See Appendix for full
memo), many of the concerns expressed in the GSC Survey and the 1995 report
may be mitigated by a considered effort to further identify the functions which
should be incorporated into a bylaw that consolidates all permitting departments
under the sole authority of a "Director of Inspection Services."
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 5
Recommendation
The GSC, recommends that the Selectmen/finance committee review the Collins
Center Memo #1 (See Appendix for full memo) for guidance in the functions of
consolidated financial department and incorporate in the bylaw what the
administration deems beneficial.
The GSC recommends that the administration review the Collins Center Memo #5
and if deemed beneficial, to adopt an Inspectional Services Department in the
manner outlined within Ch43C Sec13 and incorporate into a bylaw any of the
functions allowed for under paragraph(d) of the law.
Budgetary Implications
Staff time
ISSUE 2
Review of unfunded state mandates
Description
The Town and its citizens could benefit from an internal administrative policy
that required all department heads and standing committee chairs to bring to
the attention of the Town Administrator any state mandates that financially
impact the Town.
Analysis and Discussion
Department heads and committees have expressed that often their
responsibilities and the cost of carrying them out are a result (a mandate) of
some state law. Usually there is no further discussion and the citizens, either
through a tax or a fee, pay the cost. As an example, the town clerk is required
to notify by a second mailing anyone who has not returned their census form of
probable consequences in voting status; even though the 1st mailing includes
a similar warning. The taxpayer picks up the cost, i.e. mailing cost, admin time,
etc.
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 6
Recommendation
The Town Administrator/Selectmen, by policy, require department heads and
committee chairs when informed of mandates that financially impact
operations under their control bring them to the attention of our
representatives to the General Court at his/her monthly Town Hall meetings. At
a minimum a citizens could at least be informed of the reasons for the law or
even better, the representative may be able to offer other solutions by
legislative action.
Supporting Arguments
1. It is good public policy that explanations other than "it's the law" be offered
to the public.
2. If cost saving could result from simply notifying our state representatives of
the impacts, the public benefits.
3. There is no cost to implement an administrative policy.
Opposing Arguments
NONE
Implementation Plan
Under direction of the Towns administration along with our state representative
a policy be developed that accomplishes the recommendation.
Budgetary Implications
None relative to implementation.
Could be positive impact to budget if mandates were funded or eliminated.
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 7
ISSUE 3
Improved training for Boards, Commissions and Committees
Description
Volunteerism is the backbone of our Town. Brewster has more than 50 boards
and committees, consisting of approximately 220 volunteers that are
appointed or elected.
Analysis and Discussion
It is noted that there are several vacancies on these boards. More citizens may
come forward to fill the positions if they were better informed about the duties
and responsibilities, including
1. Time commitment.
2. The most important qualification is the willingness to work within a group
setting to achieve the goals outlined in a committee’s charge. A few
committee positions may also require special qualifications or experience.
3. Is there a need for special training? Some boards have tuition available for
training classes. They are not mandatory and completely up to the
individual.
Recommendations
A training booklet be given to each new volunteer, to include:
1. Open Meeting Law and Conflict of Interest Laws.
2. A copy of the committee’s specific charge, goals and
accomplishments.
3. General information about responsibilities, attendance and
resignations.
Recommend all new members familiarize themselves with the past minutes
and recorded meetings of the committee they are joining.
Knowledge of Parliamentary procedures.
Media training.
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 8
Supporting Arguments
1. This information should make for an easy transition into any committee,
commission or board.
2. Should be included on the Town’s web site.
Opposing Arguments
None
Implementation Plan
1. Each committee would prepare and keep current a handbook for their
group.
2. The Town should recognize volunteers when they complete their
commitment.
Budgetary Implications
Minimal, paper and printing to be done at Town Hall.
ISSUE 4
The Town should consider establishing a Human Resources Director position.
Analysis and Discussion
The Human Resources (HR) support and management functions in Brewster
are not consolidated in a single position or department but are shared by the
Assistant Town Administrator, Finance Director and Department managers.
During the GSC interview process there was a universal opinion expressed that
Human Resource management has become a specialized area. Multiple
department managers must strive to be experts in HR management is results
in duplicated efforts, potentially unnecessary time expenditures and potentially
exposes the Town to negative impacts if mistakes are made.
Recommendation
Brewster should investigate establishing the position of Human Resources
Director to consolidate HR functions under a single responsible individual.
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 9
Supporting Arguments
Consolidating HR responsibility will result in more consistent implementation of
HR requirements and policies.
An HR Director that is the expert on HR matters will allow department
managers more time to focus on department issues.
An HR Director will provide for more timely direct response to employee
concerns and questions.
An HR Director that is an expert in HR matters will minimize the Town’s
exposure to incorrect HR actions.
Opposing Arguments
The current HR management function has adequately served Brewster to date.
Increased labor cost for the position of HR Director
Implementation Plan
The Town administrator would develop a plan for the establishment of the
Human Resources Director for consideration by the Selectmen, Personnel
Board, Finance Committee and Town Meeting as necessary.
Budgetary Implications
Staff Costs
ISSUE 5
Develop uniform policy for committee appointments
Description
Standing committees (those that are required by state or local bylaws) are
generally rule making authorities. As such, they can positively or negatively
impact the community. It is therefore important that selection of members of
appointed Standing Committees is done through an open, transparent public
process. Presently, the process only requires that those wishing to be
appointed submit their name to the appointing authority, then after vetting by
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 10
one or more members of the appointing authority the public is informed who
was nominated and appointed. The GSC, believes, that although there has not
been signs of favoritism, the present policy could lead to speculation of such.
Recommendation
That the Selectmen institute a policy for Standing Committee appointments
that is totally transparent. The policy should include any necessary
requirements for appointment. Once the applicant has been vetted as to
qualifications, those that are nominated should be interviewed before the
appointing board /commission or other authority; at a public meeting. It is
suggested that the public be allowed to opine on the nominees. Again, this
recommendation is intended for all appointees to the required standing
committees, by any of the Town’s appointing authorities.
Supporting Arguments
1. Uniform written application
2. Increased transparency
3. Open public input
4. Potentially better qualified appointees
Opposing Arguments
May possibly limit applicants due to public interview process.
Implementation Plan
As directed by the Board of Selectmen, the Town Administrator develops a
policy for consideration and input of the appointing authorities (selectmen,
moderator, commissions, others, etc.), citizens and Town Counsel. If the use of
a policy is thought invalid due to legal considerations then a bylaw should be
considered.
Budgetary Implications
Cost of Town Counsel’s review
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 11
ISSUE 6
Elected vs Appointed Committees
Description
The Town would benefit from a change to appointed vs elected positions where
allowed by law.
Analysis and Discussion
Recent local elections have seen 12% (2015) and 23% (2014) voter
participation. In 2015, 9 candidates for elected committees were unopposed,
two positions had no candidates. Blank ballots outnumbered both candidates
for Old Kings Highway RHD and tied one candidate for BOH. In 2014, 6
candidates for elected committees were unopposed, one position had no
candidates.
Interviewees have expressed to the GSC that the election process intimidates
qualified candidates. Potential volunteers who are not residents of Brewster
are prohibited from running for office.
Brewster currently has 220 volunteers serving on more than 50 Boards,
Committees, and Commissions. There appears to be a shortage of interested
citizens willing to serve the Town.
Recommendation
The BOS should prepare one or more warrant articles for annual Town Meeting
to see if the Town will approve moving to all committees and offices being
appointed by the BOS except where election is specified by law. This would
change the process for the Board of Health, Town Moderator, Town Constable,
Brewster Housing Authority, Recreation Commission, Planning Board, Old Kings
Highway Regional Historic District, and Water Commissioners.
Supporting Arguments
Decreasing participation both by candidates and voters in local elections
indicate qualified people are not running for office. Recent decisions by the
Board of Health and the Planning Board have resulted in controversy and extra
legal costs to the Town. Increased acrimony in national and state/regional
elections prevents qualified candidates from stepping forward. The Board of
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 12
Selectmen is best able to recruit qualified candidates for Boards and
Committees.
Opposing Arguments
There is no guarantee that appointed boards will make better decisions than
elected ones. An elected board may have a vested interest in maintaining the
services in its charge. An elected board may be more transparent, answering
directly to the citizens it serves.
Budgetary Implications
Staff time and Town Counsel’s review
ISSUE 7
Review of Brewster Boards, Commissions and Committees
Analysis and Discussion
Based on the best available information Brewster appoints members to
approximately 60 Boards, Commissions, Committees and positions (B, C&C).
Some of these appointments are to regional organizations where Brewster has
little control over their functioning and existence. However approaching 50 of
these bodies are solely Brewster focused. The Town website currently shows
only 36 committees which rise to the level of being on the website. Based on
the names of the bodies a number of them appear to deal with similar issues
or areas of Town life and government. The membership rosters also indicate
many individuals serve on multiple bodies with one individual seeming to be on
five bodies.
Recommendation
Given that the current population of Brewster is less than 10,000 residents
and filling the various Boards, Commissions, Committees and positions
requires approaching 400 people (over 4% of the Brewster population) the
Town should undertake a review of all Brewster B, C&C not required by law to
see if the continuance of individual bodies serves any current purpose or if the
functions could be merged with another body. Authority for this type of a review
currently exists under Articles II S5.6, II S5.7 and IV S5.8 of the Bylaws and
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 13
simply needs to be exercised. In fact, Article IV S5.8 calls for this type of review
to be done annually.
Supporting Arguments
Brewster has a high number of appointed Boards, Commissions and
Committees for the size of the Town
The number of people serving on multiple bodies suggests a difficulty in filling
positions.
Multiple bodies dealing with similar subjects causes confusion
Authority for this review currently exists
Opposing Arguments
Business as usual seems to work
Implementation Plan
The Town Administrator, Selectmen and other appointing authorities undertake
a review of B, C&C under their jurisdiction, as outlined in the existing Bylaws, to
determine the current relevance of the existing bodies and if any should be
disbanded or consolidated.
Budgetary Implications
None
ISSUE 8
Potential Solutions Offered by Regional/Third Party Providers
Description
The Town should regularly investigate potential improvements in cost and
service delivery afforded by regional and third party providers.
Analysis and Discussion
The Town successfully uses a number of regional and third party solutions.
County based emergency service reporting and dispatch, regional library
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 14
solutions (CLAMS) and AmeriCorps assistance in completing municipal natural
resource projects, are just a few examples of such solutions.
Recommendation
In order to promote the use of such solutions, department heads, as part of
their annual budget submission, will be asked to highlight the contributions of
regional and third party entities.
Supporting Arguments
Brewster has had significant success in implementing regionalized/third party
solutions. They have resulted in significant cost savings, enhanced citizen
service and quicker completion of projects. A heightened focus on employing
such tools would offer real benefit to the Town. For example, additional
participation by the Town in ClearGov (www.cleargov.com) would enable the
Town to offer a suite of enhanced infographics explaining Town finances at
extremely low cost (less than $1,500 per annum).
Opposing Arguments
Regional/Third party solutions result in the loss of local control and are not
uniquely crafted to meet Brewster’s needs.
Implementation Plan
Annual Town budgetary practices should mandate that department heads
highlight the role regionalized/third party solutions play in accomplishing their
departmental objectives. New program initiatives should always compare
costs between locally developed and regional/third party solutions.
Budgetary Implications
Minimal. While some new initiatives may surface, the need to provide relevant
cost comparisons as part of the budgetary workup will minimize excessive
expense.
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 15
ISSUE 9
Review of Town Meeting
Description
Multiple comments were received in GSC Survey about Town Meetings. The most
prevalent comment was that the evening timing of the meetings made it difficult
for portions of Brewster’s citizens to attend due to difficulty driving when it is
dark. Other comments mentioned the weekday evening timing as being an issue.
These types of factors affect attendance and securing the necessary quorum to
conduct business
Analysis and Discussion
The GSC utilized the Collins Center to perform a review of Brewster’s Town
Meeting and those of similar towns.
The Collins Center Memo #3 (See Appendix for full memo) considered a number
of factors contributing to attendance, or lack thereof, at town meetings. The most
significant factor affecting attendance appears to be controversial issues or
issues of widespread interest on the warrant. The timing of the meeting does not
appear to have major impact on attendance.
Recommendation
While the timing of Town Meeting does not appear to have a major impact on
attendance, the GSC recommends that Brewster consider moving the Fall Town
Meeting to a Saturday for a limited trial period. This will allow some mitigation of
the concerns about travel in the dark and weekday meeting timing. If significant
improvements in attendance and citizen satisfaction are seen the change could
be made permanent and potentially the spring meeting could also be moved to a
Saturday.
Budgetary Implications
Staff time
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 16
ISSUE 10
Organization chart and Town Code and Bylaws should be reviewed.
Description
Better alignment of the Town’s organizational chart (management and
reporting structure) and job descriptions with the Town Code and Bylaws and
clarification of conflicts within the Town Code and Bylaws.
Analysis and Discussion
In the review of the existing organization chart, job descriptions and the Town
Code and Bylaws, it was discovered that there were inconsistencies and
conflicts that have developed over time. Best practices would dictate that
regardless of what form our government takes in the future, that our governing
codes, bylaws and operational policies be synchronized and internally in
agreement.
Recommendation
That the Town should budget for review of the organizational chart, job
descriptions and Town Code and Bylaws, to assure uniformity and consistency.
This recommendation should be accomplished under the authority of the Town
clerks' office with assistance of the Town Counsel. Once completed it should be
reviewed every five years.
Supporting Arguments
If the Town operates outside its bylaws, whether unintentionally or not, there
could be legal/financial as well as policy consequences. Most importantly our
citizens can be assured that what they have adopted as by-laws are being
applied properly.
Opposing Arguments
None.
Implementation Plan
On the recommendation of the Town Clerk budget the cost of the review as the
Town’s finances allow.
Budgetary Implications
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 17
Town Counsel review fees and staff time. These are however, offset by
potential cost of inconsistent policy and procedures not in compliance with the
Town Code and Bylaws.
ISSUE 11
Form of Government - Charter vs Status Quo
Description
One of the charges of the GSC was to consider the form of government in
Brewster. Since government study committees have typically been convened on
cycles as long as twenty years the current GSC feels it is appropriate to consider if
the current Code and Bylaws basis that governs how Brewster operates will
continue to be appropriate in the future.
Analysis and Discussion
The GSC utilized the Collins Center to consider the potential options for Brewster.
The Collins Center Memo #4 (See Appendix for full memo) considered a number
of factors surrounding the current Town Code and Bylaws. The Collins Center
memo concludes that given the size and complexity (453 pages) of the current
Town Code, potential impacts of future changes in Brewster and the benefits of
having “everything in one place”, Brewster should consider moving to a Town
Charter.
Recommendation
The Collins Center memo outlines the options available to Brewster for
considering a Town Charter. The GSC recommends that Brewster should consider
establishing a Town Charter in the near to midterm. As outlined in the Collins
Center memo the process could be initiated by a petition of 15% of Brewster
voters, the Selectmen or Town Meeting.
Budgetary Implications
Staff time and cost of a consultant to guide the Charter development process.
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 18
ISSUE 12
Brewster should develop, approve and implement a Local Comprehensive Plan
(LCP)
Basis
The lack of an LCP was a critical concern expressed to the
Government Study Committee in numerous interviews and survey
responses.
The citizens of Brewster have expressed to the Government Study
Committee both in person and through the citizen survey their wish to
retain the rural and historical character of the “Sea Captain's Town”.
An LCP would define that vision and be the main instrument to insure
those qualities are maintained.
Analysis and Discussion
The creation and approval of a Local Comprehensive Plan for Brewster
would demand a more efficient and proactive government structure. It
is through the development and implementation of a Local
Comprehensive Plan that the Town would define its vision for land use
and development, town facilities and capital improvements,
recreation, open space, transpor tation, and natural resources.
The LCP would require the services of an outside consultant in order
to take advantage of professional expertise and an objective
viewpoint.
Supporting Arguments
The Cape Cod Commission's analysis of potential development in
Brewster concluded that the Town could potentially add an additional
1,661 dwellings, an increase of 22%, and 4.7 million square feet of
nonresidential development, an increase of 108%. [Source: Cape
Wide Buildout Analysis to Support Regional Wastewater Planning Final
Report to Mass DEP, July 31, 2012] A Brewster LCP would definitively
control both residential and nonresidential development in the Town.
The lack of a Local Comprehensive Plan in Brewster creates
government by reaction. Recent examples include the proposed
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 19
creation of a dog park at Drummer Boy or elsewhere, the proposed
zoning change in East Brewster from Village Business to Commercial
High Density, and the proposed changes to Breakwater Beach parking
lot.
Recent local board and commission decisions in Brewster which have
led to controversy would be, if not eliminated, certainly ameliorated by
the adoption of a Local Comprehensive Plan.
The Selectmen have initiated a “Visioning” process for Brewster which
the GSC views as an initial step in the development of a Local
Comprehensive Plan.
Opposing Arguments
There would be a financial impact to the Town.
Some would fear a loss of local control as an LCP would require
adherence to the Cape Cod Commission’s Regional Plan and would
require approval by the Commission.
Recommendation
The Brewster Board of Selectmen should form a Local Comprehensive Plan
Committee and budget for and engage the services of a consultant or
consulting firm to assist the committee in the creation of an LCP for the Town.
Implementation Plan
Immediately upon the adoption of this recommendation, the Board of
Selectmen will appoint a Local Comprehensive Plan Committee to include the
Town Planner and other membership as determined by the Board. The Board
will charge the Committee with the creation of a Local Comprehensive Plan to
comply with the Local Comprehensive Plan Regulations as instituted by the
Cape Cod Commission. The Board of Selectmen will also budget for and
engage the services of a consultant to assist the Committee as soon as
practical given the restraints of the Town budget and necessary approvals by
Town Meeting.
Budgetary Implications
Cost of consultant services
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 20
Admin support to Committee
State and/or county grants possible (Sandwich)
ISSUE 13
Is the lease between the Brewster Ladies Library and the Town of Brewster in
the best interest of the Town?
Analysis and Discussion
Brewster Ladies Library is currently operated as an association library by an
independent Board of Directors. The building is leased from the Town for
$1/year. Approximately 80% of the library’s annual budget is funded by the
Town and approved at Town Meeting. The balance is contributed by the
Brewster Ladies Library Members Association. The library also receives
donations in the form of volunteer hours totaling approximately 7,000 hours.
Full time library employees are employed by the library board, are unionized,
and participate in the Barnstable County retirement/pension program. The
library’s annual budget is submitted to the Board of Selectmen and reviewed
by the Finance Committee.
Recommendation
The Board of Selectmen should undertake, in the next five years, a study to
determine if changes should be made to the agreement between the Town and
the Library. The focus should be the status of the Library employees and the
Town’s commitment to Library funding.
Supporting Arguments
Full time library employee salary and benefits are administered by the Town,
yet they are not true town employees, reporting to the library director and
board. The Town appropriates 80% of the library budget under the normal
budgeting process. However, the day-to-day expenditure of the budget is under
the control of the Library Director and the library’s Board of Trustees.
Opposing Arguments
The current operating arrangement has served the Town well for at least twenty
years. Change to a more traditional public library format would mean an
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 21
immediate increase to the Town budget of more than $138,800 (2014
Brewster Ladies Library Annual Report) with the additional possibility, if
volunteerism decreases, of adding up to 3 Town employees with benefits and
salary. The library and its budget would continue to be administered by the
Board of Directors in order to remain a certified library.
Budgetary Implications
Administrative support for a study of the Library lease.
ISSUE 14
Information Technology Roadmap
Description
The Town would benefit from a documented multi-year information technology
plan. Such a plan would help focus the Town’s information technologies in
supporting the efficient and effective delivery of municipal services.
Analysis and Discussion
The current IT Department, an “army of 1,” is resource constrained. The
administrator is extremely professional but her planning role is compromised
by her need to keep all of the Town’s systems “up and running.” It is extremely
difficult to develop long term priorities and timelines while providing day to day
system maintenance, user support, vendor management, system
administration and security oversight (to name just a few of her numerous
responsibilities).
Recommendation
The IT administrator should be charged with developing a 2-3 year IT plan.
Elements of this roadmap will include an assessment current technology
infrastructure, near term opportunities with emphasis on e-government, social
media and open source integration, and a survey and evaluation of the
applicability of third party solutions from the State & County.
Supporting Arguments
Technology offers favorable price/performance (lowering prices/improving
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 22
capabilities) in improving delivery of Town services.
Technology can streamline citizens’ interaction with government and improve
the level of citizen satisfaction
Opposing Arguments
Time devoted to planning will divert attention from other duties
No funds are available
Implementation Plan
The Town should consider adding additional personnel, under the direction of
the current administrator, to supplement day-to-day IT support. Further, the
Town should explore the use of Department of Revenue, Technical Assistance
Bureau along with Barnstable Country resources in supporting the creation of
the IT Roadmap.
Budgetary Implications
Cost of staff
Cost savings through lessening the need for ad hoc / reactive solutions.
ISSUE 15
Encourage and Capture Citizen Feedback
Citizens currently provide feedback to the Town via large specially
commissioned surveys or through routine interactions with the Town. The Town
could gain valuable insights into how it serves its citizens by systematically
collecting and regularly analyzing customer satisfaction, e.g., “citizen
satisfaction,” data.
Analysis and Discussion
Data collection encompassing Town/citizen interactions is currently conducted
in three ways: 1) large scale information gathering efforts are done on an ad
hoc basis, for example, Government Study Committee, Council on Aging, and
Brewster Coastal Areas Study Group surveys, 2) day to day citizen interactions
elicit informal feedback at the individual departmental level and (3) more
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 23
formal feedback through public hearings and public speak opportunities during
meetings. The first is generally aimed at gathering information that meets the
specific needs of the sponsoring entity and the latter are usually limited to just
the individual Town employee, department or a specific.
However, many cities and towns across North America have implemented well
thought out programs to collect and track citizen satisfaction in regular and
statistically valid ways. These communities range in size from very large
(Kansas City, MO., and Calgary) to relatively small (Del Mar, CA. population
4500).
Recommendation
The Town should evaluate methods to collect citizen satisfaction data.
Techniques might include, but not be limited to, biennial statistically valid
surveys, an input instrument prominently featured on the Town’s website,
regular discussion of citizen satisfaction results by the Board of Selectmen.
Longer-term efforts would focus on developing a plan that would systematically
assess and improve citizen satisfaction.
Supporting Arguments
Regularly collecting and analyzing citizen satisfaction will allow the Town to:
Quantify levels of citizen satisfaction in more than an anecdotal way
Track fluctuations and trends in levels of citizen service
Set quantitative targets and measure progress to enhance citizen
satisfaction
Initial steps might be small but bringing attention to the issue would be
beneficial in developing a more sophisticated program.
Opposing Arguments
Customer/citizen relationship management is complicated and too difficult for
the Town to implement and manage.
Implementation Plan
The Town should survey current municipal best practices and then document,
execute and assess an initial program.
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 24
Budgetary Implications
Variable based on how extensive and comprehensive the starting effort
becomes.
ISSUE 16
Written Communications Plan
Description
The Town would benefit by the creation and adoption of a written
communications plan meant to encompass all ways the Town would
communicate with citizens on all municipal matters.
Analysis and Discussion
Currently the Town makes information available to it’s citizens via the Town
website, the local cable channel, video streaming of board and committee
meetings, newspaper articles, email, social media, etc. The citizen survey
conducted by the GSC indicated many residents feel they do not have access
to information. We feel citizens would benefit from a communications plan
which clearly states to residents where information may be found and frequent
updates are posted. Current examples would include Route 6A project work
and timeline, road repair and paving schedules, Town Meeting warrant articles,
proposed new projects, and storm information.
Recommendation
The Board of Selectmen and/or Town Administrator should undertake the
creation of a written communications plan detailing where a Town resident may
find relevant information concerning the affairs of the Town. The plan should
include the responsibilities of Town employees to post and update information
in a timely manner.
Supporting Arguments
Well informed citizens may be motivated to involve themselves in the affairs of
the Town. Information and notices released at the beginning of a Town project
or process may prevent controversy and litigation later.
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 25
Opposing Arguments
Information is now readily available using the methods mentioned above. Any
increase in communication methods may be an additional burden on Town
employees.
Implementation Plan
The Board of Selectmen and/or Town Administrator should, as soon as
practical, charge volunteers, along with Town employees, to solicit public input
and create a written communications plan.
Budgetary Implications
Staff time
ISSUE 17
Participatory Budgeting
Since 1989, many cities and towns (more than 1,500 worldwide) have
implemented participatory budgeting. Usually a small percentage of the
annual budget (typically 1 -1.5%) is allocated.
Description
The Town could foster higher levels of citizen interest and participation by
limited a limited trial program of participatory budgeting. This effort would
stimulate citizen sponsorship of grassroots projects and grow citizen
involvement in Town government.
Analysis and Discussion
Current Town budget practices are focused at the departmental level.
Annually, the BOS, supported by the Town Administrator and the Finance
Director, provide departments with budget targets. Each department is
charged with developing a “bottoms up” budget for the upcoming fiscal year.
Budget submissions are then reviewed and department heads make detailed
presentations to the BOS and Finance Committee. Departmental requests may
be modified to conform to the Town’s “top down” budget constraints, e.g., levy
capacity, indebtedness, statutory mandates, etc.
Citizen participation in the process is typically confined to attendance at public
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 26
hearings and, of course, exercising their ultimate authority as voters at Town
Meeting.
Recommendation
In addition to a small annual budget allocation to fund Participatory Budgeting,
the customary approach usually includes an open process via public meeting in
which residents brainstorm spending ideas, citizen budget coordinators
develop proposals based on these ideas, residents vote on proposals (in our
case at Town Meeting) and the Town implements the top projects.
Supporting Arguments
Participatory Budgeting is amply documented (see
http://www.participatorybudgeting.org/) enabling straightforward
implementation. It enjoys wide spread support (see Open Government
National Action Plan 10.27.15, at White House.gov website as an example).
Opposing Arguments
The Town is already budget constrained. Such a program might divert needed
funds to less important projects. Citizens can impact budget directly via citizen
petition to add warrant articles for Town Meeting.
Implementation Plan
The Town should charge a current management employee to act as the
Participatory Budget coordinator. This individual would become a local subject
matter expert and would develop a communication program to recruit residents
who would execute the program and bring the first funding requests to TM.
Budgetary Implications
Minimal. Citizen projects may result in the re-prioritizing of departmental
budgets. However, it’s unlikely that projects would be so unique that they
would transcend current municipal parameters and necessitate wholesales
changes in the Town’s budget.
ISSUE 18
Increased Understanding of Private Road Regulations and Betterments
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 27
Description
All new roads created through a subdivision process are private which means
all repairs, street signs and catch basins are not the responsibility of the Town.
In Brewster, as long as a road meets Town requirements it will be plowed.
Analysis and Discussion
There needs to be a better awareness of the meaning of a private road. Many
new home owners learn they are on a private road when someone in the
neighborhood sends a letter or comes around to collect for a minor road repair
or a street sign.
There should be a better understanding of the homeowner’s and the Town’s
responsibilities.
A betterment process exists by which homeowners on a private road can seek
assistance from the Town to finance repairs. Details for preparing and applying
for a betterment project are available from the Board of Selectmen’s office.
Recommendation
The Town should make available a booklet explaining all the details and
responsibilities involved with owning a property on a private way or road. This
information should also be on the Town web site.
Include in the booklet:
The homeowner is responsible for the road which abuts their property.
Meaning potholes, cracks, catch basins and including street signs.
Keeping brush clear 3 feet back from the road for snow plows.
The Town will plow all roads as long as they meet Town Policy.
For a reasonable fee the DPW can arrange for catch basins to be cleaned.
Supporting Arguments
A better informed public. No surprises when it comes to road repairs, drainage
issues and street signs,
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 28
Opposing Arguments
None
Implementation Plan
Simple handouts and all this information included on the Town web site.
Budgetary Implications
Minimal
ISSUE 19
The Town would benefit by establishing a written process for initiating all Town
projects. Description: Brewster has recently seen controversy seemingly
caused by projects which are not presented until implementation is imminent.
Citizens feel that when plans are presented, it is too late to give input or affect
the design.
Analysis and Discussion
The Town relies on Town employees and department heads to identify needs,
plan, and implement improvements. While there may be discussion and
presentations in public meetings of boards and committees, too often citizens
feel surprised by projects which are ready for construction. Town residents
often do not feel engaged at the outset.
Recommendation
The Town should develop a written process for developing public projects. The
process should begin with identifying the need, and request input from all
citizens, not just those considered stakeholders or abutters.
Supporting Arguments
Citizen involvement in public affairs is very important for maintaining the
culture of Brewster.
Brewster residents have expertise which may not be known to the Town
administration. The Town may be able to take advantage of this expertise by
publicizing project needs and ideas before design begins.
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 29
Creating resident ownership of projects early in the process avoids conflict
during implementation.
Opposing Arguments
The Town hires qualified professionals to staff it’s departments. They are best
able to define the needs of the Town.
Citizen outreach and involvement would add significant time to the planning of
Town projects. Smaller projects do not need extensive planning. Some projects
must be done quickly to take advantage of outside funding.
Implementation
The Town Administrator and Town Planner should develop and implement a
written process for all Town projects. The process should be presented to the
Board of Selectmen within two years of the adoption of this recommendation.
Budgetary Implications
Impact would depend on the size of the project. The increase in time and
money spent soliciting input from residents would be offset by the ease of
project implementation.
Resources:
https://www.auburn.edu/outreach/cgs/documents/RuralToolKit_tools_for_sm
all_towns.pdf
https://issuu.com/ciathensplanner/docs/essence_of_athens_plan_final
http://www.massdot.state.ma.us/planning/Main/PlanningProcess/ProjectDevel
opmentProcess.aspx
ISSUE 20
Enhanced Town / Schools collaboration
Analysis and Discussion:
The Town, local schools and Brewster students could all benefit from increased
collaboration by establishing student internships or other cooperative efforts
where appropriate opportunities exist. Potential opportunities could include
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 30
web design, IT, small building and construction projects and landscape
improvements. The students would receive valuable experience in performing
the work and the Town would potentially save money.
Recommendation
The Town administration and department managers should explore any
opportunity where the required work could potentially be performed by
Brewster students.
Supporting Arguments
Brewster students would gain valuable experience
Potential financial savings for Brewster
Opposing Arguments
None
Implementation:
The Town should work with the administration of Nauset High School and Cape
Cod Regional Technical High School to explore the areas where increased
cooperation would be mutually beneficial and establish guidelines and policies
for implementation
Budgetary Implications:
Potential financial savings
ISSUE 21
To strengthen Brewster's financial capabilities the Town should conduct a
study of the Captain's Golf Course operational options.
Description
The "Captains" 1st 18 holes has been in existence since 1985, In 1999, the
course was expanded to create a 2nd 18 hole course, extending the Town’s
debt by 20 years. This debt will expire in the year 2020. Over the past 31 years,
the course has returned to the Towns' general revenue fund $5,559,419.00, a
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 31
yearly average profit of $179,336.10. The highest single year return was
$472,919.00 in 1999. The lowest single year was minus ($230,362.00) in
2011. Looking solely at page 28 of a report released by the Golf Commission in
2015, titled "net return to the Town’s General fund", it would appear that the
course has returned a reasonable profit to the Town's general fund. However,
since the Government Study Committee’s charge is to look 20 years out and
reports indicate declining membership is, rising cost of operations and
increased competition, it is recommended that the following be considered.
Analysis and Discussion
With few exceptions, the citizens survey undertaken by the GSC, reflected
favorably on the Town having a golf course. Many people said they moved here
because of golf being available. Comments like, "It’s an asset to the town, " "it
brings business into town,” "it funds other town projects,", etc. Negative
comments were basically limited to “it’s not a government function," "non-
golfing taxpayers are subsidizing those who golf," and "the cost of its
operations could be better used for essential services." To the extent that any
of these comments can be measured, all are valid and should be given
consideration. As indicated above, as a 20 year recommendation, the potential
for greater cost of operations, waning popularity along with declining
memberships, suggest that verification of future financial impacts and
operational methods be investigated.
Recommendation
A review of the Captain's Golf Course should be undertaken within the next five
(5) years. The review should be performed by a professional financial
consultant in consultation with the Board of Selectmen and the Finance
Committee. The objective and purpose would be to analyze possible future
operational methods including at a minimum:
1. Continue as a Town operated enterprise.
2. Privatized lease operation.
3. Sell and operate as a private/public club.
The goal would be to measure and show quantifiably what operational method
best optimizes the finances of the Town.
Supporting Arguments
1. Prudent financial planning
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 32
2. Town financial subsidy needed from 2011 - 2014
3. Increasing capital costs.
4. A rising tax rate.
5. Operation of 53 of the 63 publicly owned courses in Massachusetts is
privatized.
6. Declining memberships
Opposing Arguments
1. Political will
2. Possible increase in revenue due to the construction bond being retired in
2020
Implementation Plan
Within 5 years, the Town Administrator in consultation with the Board of
Selectmen and the Finance Committee initiate a proposal and process to hire a
consultant to carry out this recommendation. To the extent that the operational
analyses commissioned by the Town, dated January 13, 2012, could be used
to measure certain financial impacts it is recommended to be included in the
process.
Budgetary Implications
Cost of hiring consultant. Estimated: $25,000 plus.
ISSUE 22
Alternative Revenue Sources
Description
“Increasing taxes” and “keeping Brewster affordable” were common responses to
the GSC Survey. The use of non-property tax sources of revenue has a potential
for helping raise funds to support Town services while minimizing property taxes.
Analysis and Discussion
The GSC utilized the Collins Center to consider alternative revenue sources for
Brewster.
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 33
The Collins Center Memo #5 (See Appendix for full memo) suggests 16 potential
areas that could be sources of additional revenue for Brewster.
Recommendation
The Town Administrator, Selectmen and Finance Committee should review the
options presented in the Collins Center memo and pursue any of these or other
options deemed appropriate.
Budgetary Implications
Staff time and legal services
ISSUE 23
Investigate Expanded Use of Enterprise Accounts
Description
Enterprise Accounts are a State defined mechanism to separate funds for non-
traditional government functions from the municipal budget. Brewster uses a
reserve account mechanism to facilitate a similar separation for the water
department, ambulance funds and golf course cart fees.
Analysis and Discussion
The GSC utilized the Collins Center to consider the use of Enterprise Accounts for
Brewster.
The Collins Center Memo #7 (See Appendix for full memo) defines the Enterprise
account process and suggests several options for Brewster.
Recommendation
The Town Administrator, Selectmen and Finance Committee should review the
options presented in the Collins Center memo and pursue any of these or other
options deemed appropriate.
Budgetary Implications
Staff time and legal services
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 34
ISSUE 24
Review of Fee Structures
Description
The Town would benefit from a comprehensive review of all fees charged by
the Town.
Analysis and Discussion
Current practice has each department setting fees for services rendered. The
basis for those fees are not well understood. Fees may be justified as payment
for professional services, as cost plus, or as revenue enhancement. Currently
there is no comprehensive approach to setting Town fees.
Recommendation
The Board of Selectmen, by bylaw, should be given the authority to approve
and undertake periodic assessments of all fees charged by the Town and
review the appropriateness of individual fees.
Supporting Arguments
Anecdotal evidence suggests some fees charged by the Town have no logical
justification. Massachusetts General Law Chapter 40, Section 22F allows any
municipal board or officer to set reasonable fees for licenses, permits, or
certificates. The BOS should review fees to determine their reasonableness.
Opposing Arguments
Municipal boards and officers are the most qualified to determine if a fee for
services they provide is reasonable. The BOS would in fact rely on those same
boards and officers to determine if a fee is appropriate.
Implementation Plan
The Board of Selectmen, as part of the annual departmental budget review,
should query all municipal boards and officials who charge fees as to the
justification for the fees collected.
Section 2 – Identified Issues
Brewster Government Study Committee Final Report July, 2016 35
Budgetary Implications
Fees collected by boards and officials are deposited in the general fund of the
Town. A review of fee structure should not have a significant impact.
Brewster Government Study Committee Final Report July, 2016 36
SECTION 3
INDIVIDUAL COMMITTEE MEMBER OBSERVATIONS
In addition to the issues and recommendations presented above individual
members of the Committee offer the following observations for consideration.
In review of the Buildings/Grounds Dept. it appears that the dept. is under
budgeted as well as under staffed. The department seems to be at the beck
and call of other departments for maintenance as well as construction issues
that arise from unexpected circumstances. When this happens the daily
routine operations are delayed due to lack of staff. Very little of the
departments work load is contracted out, i.e. lawn care, carpentry, painting etc.
To better accomplish its mission, the department’s budget should be reviewed
to allow for increased staffing or contractual services. – Elbert Ulshoeffer
Future capital expenditures should not be considered for any new building
projects until the debt for the construction of the Eddy school is retired
and consideration of its' future use has been explored. As was considered
in the past, the Eddy school is large enough to be used as a
community/recreation center as well as Council on Aging building. It
seems prudent to delay any consideration of expenditures for any new
buildings to accommodate these uses, until after finalizing plans for
future uses of the Eddy school. – Elbert Ulshoeffer, Colin Odell, Jerri Carlin
The Selectmen allow for the publics' input at their meetings under an agenda
item titled "Citizen Forum". The Selectmen should encourage all boards and
committees to do the same and/or consider a bylaw to require a citizen forum
as an agenda item. – Elbert Ulshoeffer
Conduct “Needs Assessment”: An early, and critical, step to perform in any
planning process is an evaluation of current conditions in the community. One
method often used is called a needs assessment, which is intended to identify
community needs, to assess how well those needs are being met, and to
determine what new or additional facilities or services might be required in the
future.
https://www.auburn.edu/outreach/cgs/documents/
RuralToolKit_tools_for_small_towns.pdf – David Whitney
Brewster Government Study Committee Final Report July, 2016 37
Asset inventory: A community asset inventory should, to the extent that
circumstances allow, attempt to identify and list as many positive community
characteristics as possible. The assets included in the inventory can be
grouped under physical, cultural, quality of life, economic, and political
headings. A sixth category of community asset is one that overlaps somewhat
with the previous categories and might be termed social capital. This category
focuses on the knowledge, skills, and resources present in individual citizens,
as well as in the non-governmental groups, clubs, and societies in which
citizens associate. These groups can be religious, recreational, civic, or social.
It also focuses on the level of connectedness between residents in the
community. Connectedness is an important indicator of community trust,
cooperation, and resilience. Assets of this type are perhaps more difficult to
quantify than those in the other categories, and may require significant effort
to organize and utilize effectively. Nonetheless, these individuals and
organizations often constitute a significant body of resources that should be
tapped. The inclusion and mobilization of citizens at this level can also reap
immeasurable secondary benefits by broadening the base of citizen
involvement and increasing support for the planning effort. In some cases,
particularly in very small communities, such individuals and organizations may
have to substitute for governmental agencies that do not exist locally, or
perform planning activities normally carried out by consultants in larger
communities.
https://www.auburn.edu/outreach/cgs/documents/RuralToolKit_tools_for_sm
all_towns.pdf - David Whitney
Consider outsourcing Town website and hosting. Frees up Kathy for IT roadmap
and upgrades. More sophisticated website could include surveys/citizen
feedback, online marketplace, forums, and newsletters. – David Whitney
Brewster Government Study Committee Final Report July, 2016 38
Appendix
Collins Center Memos 1 – 7
Brewster Government Study Committee Charge
Collins Center Memo 1
Brewster Government Study Committee Final Report July, 2016 39
TO: Colin Odell, Jillian Douglas
FROM: Tanya Stepasiuk, Edward J. Collins, Jr. Center for Public Management
DATE: March 29, 2016
RE: Potential Combined Municipal Finance and Community Development Departments
Introduction
The Brewster Government Study Committee (“BGSC”) asked the Collins Center to examine the
possibilities regarding restructuring the departments and functions into combined Finance and/or
Community Development Departments or similar structures. This memo outlines the allowable forms of
organization, looks at the structure of neighboring and similarly situated municipalities, and makes
recommendations for how the Town might reorganize some of these functions and services.
Allowable Structures
Finance
M.G.L. Chapter 43c Section 11 allows for a consolidated department of municipal finance. This
department may include the offices of accountant, auditor or comptroller, treasurer, collector and
assessor. The department would be headed by a Director of Municipal Finance who could also function
in one of the other specific offices. Brewster could adopt this organizational structure by bylaw or
special act (acted upon by Town Meeting and passed by the state legislature and governor).
Community Development or Inspectional Services
Similarly, M.G.L. Chapter 43c Section 12 allows for a consolidated department of community
development. A town may include “the redevelopment authority, the planning board, the industrial
development commission, industrial development financing authority or any other municipal office or
agency exercising or authorized to exercise any community or economic development activities.” While
not explicitly named in this statute, many towns choose to put the planning, building, health, zoning,
historic, and conservation commissions or departments under this umbrella.
While Section 12 specifically enables a “Community Development” department, there is also the
possibility of a consolidated department of Municipal Inspections as outlined in M.G.L. Section 43c
Section 13.
Again, Brewster could adopt either of these organizational structures by bylaw or special act.
Collins Center Memo 1
Brewster Government Study Committee Final Report July, 2016 40
Brewster’s Current Structure
Brewster currently has a structure with different departments, positions, and committees being
separated and sometimes reporting to individual boards. The following departments and boards are
those that could potentially be consolidated into Municipal Finance or Community Development
Departments.
Finance Functions
o Accounting Department ‐ Finance Director
o Assessor – Deputy Assessor
Board of Assessors
o Treasurer/Collector
o Purchasing – within each department
Community Development Functions
o Planning – Town Planner
Planning Board
o Building – Building Commissioner
o Health – Health Director
Board of Health
o Zoning Board of Appeals
o Historical Commission
o Conservation Commission
Each director‐level staff position is full time and has the potential of heading a consolidated department
(as described below). A new structure would retain virtually the same staffing with one individual
promoted to head the consolidated department while still retaining his or her current function.
Other Organizational Structures
Structures Found in Other Municipalities
M.G.L. outlines allowable structures for finance and community development departments while still
allowing flexibility in structures. With this flexibility comes several models that neighboring and
comparable municipalities have instituted. We researched whether municipalities have consolidated
departments and also which departments or functions they have included within an umbrella
department.
As part of the research on this topic, we sent a short survey to approximately 20 municipalities and
received 11 responses. We also researched departmental structures through municipal websites and
phone calls to municipalities.
Figure A below lists a variety of municipalities, both neighbors and towns with similar populations along
with whether or not they have consolidated Municipal Finance and/or Community Development
Departments.
Collins Center Memo 1
Brewster Government Study Committee Final Report July, 2016 41
Figure A: Consolidated Department Statuses
Municipality
Population Form of
Government
Consolidated
Finance?
Consolidated
Community
Development?
AMHERST 37,819 RTM Yes Yes
BLACKSTONE 9.026 OTM No No
BOURNE 19,754 OTM No No
BREWSTER 9,820 OTM No No
CHATHAM 6,125 OTM No Yes
DENNIS 14,207 OTM Yes No
EASTHAM 4,956 OTM No Yes
GREENFIELD 17,456 Council Yes Yes
HANSON 10,209 OTM No No
HARWICH 12,243 OTM Yes Yes
HOPKINTON 14,925 OTM Yes Yes
HULL 10,293 OTM No Yes
LUNENBURG 10,086 OTM Yes Yes
LYNNFIELD 11,596 OTM No No
MASHPEE 14,006 OTM No No
MAYNARD 10,106 OTM No Yes
MIDDLETON 8,987 OTM No No
NANTUCKET 10,172 OTM Yes Yes
ORLEANS 5,890 OTM No No
SOUTHBOROUGH 9,767 OTM No No
SOUTHWICK 9,502 OTM No No
STURBRIDGE 9,268 OTM Yes No
SUTTON 8,963 OTM No No
TEWKSBURY 28,961 OTM Yes Yes
WARE 9,872 OTM No No
WILLIAMSTOWN 7,754 OTM Yes Yes
WINCHENDON 10,300 OTM No Yes
Municipal Finance Department Functions/Divisions
All combined municipal finance departments included the treasurer/collector functions. In addition,
virtually all departments also included the accountant and assessor under this umbrella. Only three
municipalities included the auditor/comptroller in this department, likely because these functions are
Collins Center Memo 1
Brewster Government Study Committee Final Report July, 2016 42
not usually performed in‐house in the municipality in many towns or functions are contained within
other titles. We therefore do not consider this significant for smaller municipalities.
Below are the results of the survey, representing the departments that are combined in the responding
municipalities that have combined departments.
Figure B: Consolidated Finance Department Divisions
The “other” category included purchasing and budget and capital planning functions.
Community Development Department Functions/Divisions
It appears that Community Development departments are less uniform than Municipal Finance
departments. Planning and zoning are almost always represented with conservation and building also
often included under this umbrella. Historic Commissions and Health Departments are present in some
departments as well. Only one municipality we heard from included GIS in this department.
Figure C: Community Development Department Divisions
Collins Center Memo 1
Brewster Government Study Committee Final Report July, 2016 43
The “other” category included design review.
Benefits and Drawbacks of Consolidation
We also asked municipalities with experience combining departments about the benefits and drawbacks
of the process and outcome. Generally, benefits often involved increased efficiencies, easier access for
residents, greater consistency of messaging, better lines of communication, and interdepartmental
understanding. Drawbacks included the difficulty of change, collective bargaining issues, revamping of
missions and performance, and difficulties of support staff being cross trained.
Conclusions
Generally, there are potential benefits and drawbacks to combining functions under a centralized
department for both Municipal Finance and Community Development:
Benefits Drawbacks
Increased Communication across Departments Staff Resistance
Increased Coordination New workflows
Increased Planning Possible grievances
Increased Consistency of Messaging Costs Associated with Combination
Possible Increased Savings
Increased Accessibility for Residents
Cross Training of Staff
Municipal Finance Department
Collins Center Memo 1
Brewster Government Study Committee Final Report July, 2016 44
A consolidated Municipal Finance Department would likely enable better communication, coordination,
planning, and savings for the town of Brewster. Having similar functions housed in one department
would also allow residents and visitors to access one department for financial related questions and
issues. Additionally, if support staff was cross‐trained or at least in close contact with all of the divisions,
this would allow for easier access to information and the ability for individuals to step into related roles
with minimal disruption.
Potential drawbacks would likely involve staff resistance to changes. As with any administrative change,
people would need to be trained and workflows would change. Administrative staff would carry the
highest burden of a change in their responsibilities. This could also lead to union grievances and the
necessity to reevaluate contracts. Additionally, having people report to a peer director could cause
interpersonal issues.
As the structures of most consolidated Municipal Finance Departments are similar, if Brewster were to
consider a consolidated department, we would recommend a comparable model. In this model, all
finance related departments would be pulled together under one umbrella of a larger Municipal Finance
Department. This department would include the current Accounting Department, Collector/Treasurer,
Assessor (including the Board of Assessors), and possibly purchasing functions as divisions of the
consolidated department. A Director of Municipal Finance would need to be appointed, however this
person could serve dual roles as the Director as well as one of the other functions. The structure of the
department would be arranged that the current departments would transition into divisions having
virtually the same staffing and responsibilities, but would report to the Director of Municipal Finance.
If combining these departments, we recommend that Brewster consider centralizing purchasing within
this department as currently most purchasing functions are performed within each individual
department. Centralized purchasing could allow for better planning, savings, and coordination of items
and services currently being purchased in a more scattered manner.
Sample enabling language:
“There shall be established a Department of Municipal Finance under the direction of the Town
Manager. The Town Manager shall appoint a Director of Municipal Finance who shall be a person
especially suited by education, training, and previous experience to perform the duties of the office. The
Director shall be responsible for the supervision and coordination of all municipal finance operations of
the town that are placed under control of the director by the town administrator. The department shall
assume all of the powers and duties now vested in or exercised by any of the following departments and
offices: Town Accountant, Collector/Treasurer, and Assessors. The Director may hold one of these
positions.”
Possible Community Development Department
The main benefits of a Community Development department (also sometimes called a Planning and
Community Development Department or similar name) to Brewster can be viewed as benefits in three
areas: benefits to residents and visitors, internal efficiencies, and longer‐term coordinated planning and
development. The benefits to resident would include the ability to get most if not all questions
regarding development answered in one department. Currently, a person opening a new business would
Collins Center Memo 1
Brewster Government Study Committee Final Report July, 2016 45
likely have to interact with planning, building, zoning, and health, if not also the conservation and
historical commissions. This can create confusion and delays for both the business owner and the town.
Pulling these functions under one roof could help alleviate these issues. Additionally, efficiency issues
within departments, such as multiple case files, scheduling, transferring paperwork from department to
department, and attempting to answer questions outside of the scope of expertise could be alleviated
with a consolidated office. It would also be much easier to utilize or institute new software or processes.
Finally, with a consolidated department Brewster could centralize longer term planning and coordinate
initiatives and grant applications within one department.
We recommend that Brewster consider combining multiple functions and departments into a
consolidated Community Development Department. There are three departments and several boards
that could come under this umbrella: the Planning, Building, and Health Departments, which are
currently staffed by director‐level employees and support staff, along with the Planning Board and
Board of Health. Additionally, the Zoning Board of Appeals, Historical Commission, and Conservation
Commission would also appropriately be put within this department. Over half of the municipalities that
we surveyed that had a consolidated department combined all of these functions. As it is most efficient
to consolidate only once, rather than piecemeal, we recommend that Brewster consolidate as many
departments as feasible under this one umbrella in order to gain the most benefits.
The structure of the department would be arranged that the current departments would transition into
divisions having virtually the same staffing and responsibilities, but would report to the Director of
Community Development. Additionally, we recommend that the boards under this umbrella transition
to become more advisory in most of their capacities except those outlined by state law. In that way, the
Director could have more authority to direct the entire department.
Sample Enabling Language:
“There shall be established a Community Development Department under the direction of the Town
Administrator. The Town Administrator shall appoint a Director of Community Development who shall
be a person especially suited by education, training, and previous experience to perform the duties of
the office. The Community Development Department shall coordinate the functions of the boards,
offices and departments involved in land use regulation and management, including but not limited to:
Building Department, Planning Department, Health Department, Zoning Board of Appeals and
Conservation Commission. The Director may also serve concurrently as the director or manager within
one of the divisions included in the department.”
Of course, the decision of which departments to put under this umbrella sometimes depends upon
personalities and history. We urge Brewster to think about the optimal structure based on function
instead of current personal desires.
Collins Center Memo 2
Brewster Government Study Committee Final Report July, 2016 46
TO: Colin Odell, Jillian Douglas
FROM: Tanya Stepasiuk, Edward J. Collins, Jr. Center for Public Management
DATE: May 11, 2016
RE: Consolidated Municipal Inspections
As an update to my memo dated March 29, 2016, this memo outlines in more detail the possibility of
creating a consolidated municipal inspections department within Brewster.
Brewster may consider bringing all of its building and health inspections within one department,
typically called an Inspectional Services Department. Members of this department usually include the
building inspector, wire inspector, plumbing inspector, gas fitting inspector, and health agent. The
department could also include any inspections currently being carried out by the conservation
commission and/or historical commission. Additionally, this department would likely also coordinate
with the fire department regarding fire‐related inspections or possibly take on these inspectional
functions as well.
This departmental form must be overseen by a director of municipal inspections that would be
responsible to and appointed by the town administrator as by‐law requires, with a term of office of not
less than three (nor more than five) years. As Brewster currently has a Building Commissioner, this might
be a natural transition for the person in this position to become the director and oversee a slightly larger
department.
Advantages of consolidating these functions into one department include increased communication
among staff, increased coordination regarding one structure and the required inspections, increased
planning for the future of the department, consistency of messaging, increased accessibility for
residents, and possible ease of scheduling.
Having all of these functions consolidated in one department enables the director of inspectional
services to oversee many of the tasks required for new building and the remodeling of existing
structures. For example, if a new business is opening in the town, the Building Commissioner would be
able to oversee many of the requirements for licensing, permitting, and inspecting the structure as well
as some of the operations (due to the health inspector and conservation commission inspections now
falling under the departmental umbrella).
Various software is available to help coordinate the variety of functions of an inspectional services
department including record keeping, mapping, scheduling, billing and payment. Additionally technology
such as this may help enable on‐line permitting and other automated functions.
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Brewster Government Study Committee Final Report July, 2016 47
Additionally, having more functions under this department could permit easier communications across
departments as departments such as the Zoning Board of Appeals which would only need to coordinate
with one department rather than multiple departments (building, health, conservation commission, and
historical commission) regarding the status of inspections.
Care should be taken if combining departments with the role of the Board of Health. This board provides
an important advisory, enforcement, and permit granting function for the municipality. This will not
change with a merger of inspection functions. Similarly, the conservation commission and historical
commission would still retain their important roles within the town.
Below is the applicable state law which also highlights the language necessary if residents of Brewster
desired to petition for this departmental consolidation. However, Brewster could also adopt this
structure by by‐law.
Sample enabling language:
“There shall be established an Inspectional Services Department under the direction of the Town
Manager. The Town Manager shall appoint a Director of Municipal Inspections who shall be a person
especially suited by education, training, and previous experience to perform the duties of the office. The
Director shall be responsible for the supervision and coordination of all municipal inspections of the
town that are placed under control of the director by the town administrator. The department shall
assume all of the inspectional powers and duties now vested in or exercised by any of the following
departments and offices: Building, Health, Conservation Commission, and the Historical Commission.”
M.G.L. Ch. 43C Section 13
Ch. 43C Section 13. (a) The following shall be the summary to be inserted in the petition described in
section five:
(Section 5. The petition shall be in substantially the following form: To the (city council) (board of
selectmen) of (name of city/town) We the undersigned, registered voters of the (city/town of )
respectfully petition your honorable body to cause to be submitted to vote of the voters the following
question:? ''Shall the (city/town of ) adopt the optional form of municipal administration summarized
as follows, according to the provisions of chapter forty‐three C of the General Laws providing for
optional plans of municipal administration?'' The text of the summary from the applicable section shall
follow.)
''Section thirteen of chapter forty‐three C of the General Laws authorizes the legislative body to
provide, by ordinance or by‐law, for a consolidated department of municipal inspections which may
include the inspections currently being made by the building inspector, wire inspector, plumbing
inspector, gas fitting inspector, health agent and others as the ordinance or by‐law may specify.''
(b) Notwithstanding any provision of law to the contrary, in any city or town which accepts the
provisions of this section by vote of the people, the legislative body, subject to all applicable provisions
of the city or town charter, shall have the authority to adopt an ordinance or by‐law providing for a
consolidated department of municipal inspections.
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Brewster Government Study Committee Final Report July, 2016 48
(c) Any ordinance or by‐law adopted pursuant to this section shall provide for (i) a director of municipal
inspections who shall be appointed by and shall be responsible to the chief executive officer or the chief
administrative officer of the city or town as the ordinance or by‐law shall specify, (ii) the term of office
of the director of municipal inspections which shall be not less than three nor more than five years,
subject to removal as may be otherwise provided in the charter of the city or town.
(d) Any ordinance or by‐law adopted pursuant to this section may include, but need not be limited to,
the following: (i) coordination of all inspection functions carried out by any municipal officer or agent,
(ii) maintenance of all records relating to inspections in a central place through a common index, (iii) a
single application process which would indicate all inspections which might be necessary, including, but
need not be limited to, any inspections under the zoning and other local ordinance or by‐law, building
code, wire code, plumbing and gas code, state sanitary code, board of health rules and regulations, fire
code, conservation commission, historic districts commission and any other local inspections as may be
otherwise authorized. Any ordinance or by‐law adopted pursuant to this section may provide that any
agency performing an inspection function shall be continued but that for administrative purposes all
personnel performing inspection functions for the existing agency shall, when performing such
inspection services, be subject to the administrative control and direction of the director of municipal
inspections, but not otherwise.
(e) Any ordinance or by‐law adopted pursuant to this section shall provide for the appointment of all
other personnel necessary to staff the department as constituted in the ordinance or by‐law. Unless
some other provision is made in the city or town charter for the appointment of officers and employees
the director of municipal inspections shall appoint all personnel under his direction and control subject
to the approval of the appointing authority as provided for his office.
Collins Center Memo 3
Brewster Government Study Committee Final Report July, 2016 49
TO: Colin Odell, Jillian Douglas
FROM: Tanya Stepasiuk, Edward J. Collins, Jr. Center for Public Management
DATE: March 29, 2016
RE: Brewster Charter
Introduction
Brewster’s current legal basis is contained within a 453 page document entitled “Code of the Town of
Brewster.”1 While this is not unusual for some Massachusetts towns, it is an indication that the basic
structure of the town might more easily be consolidated into a charter. A charter is an opportunity to
take a look at the structure of the town and the various bylaws and informal practices that have
collected since Brewster’s incorporation in 1803.
Reasons to Consider a Charter
Generally
A charter can be beneficial to a town for a variety of reasons including:
1. Retirement of key personnel;
2. An inability to attract candidates to serve in either elected or appointive office;
3. A perception that municipal departments are not communicating or coordinating functions as
they should;
4. An increase in population and the resultant increase in service demands;
5. Poor town meeting attendance; and
6. A need for greater oversight of financial matters and service delivery. 2
Additionally, there is a benefit to having “everything in one place.” New residents, business developers,
employees, and officials can easily access the fundamental structure and rules of the town. Instead of
having to search through 453 pages to learn about the issue that is important to them or relying upon
institutional knowledge of town employees or residents, an individual can access a much shorter and
more succinct document.
Writing a new charter also is a chance for residents to examine the current bylaws and informal policies
and procedures and codify them or change ones that are not functioning.
1 Found at http://brewster‐ma.gov/documents‐a‐archives/forms‐a‐documents/town‐code/2566‐brewster‐town‐
code‐a‐bylaws/file
2 Several Options Exist for Changing Local Government Structure, Marilyn Contreas, Municipal Advocate, Vol. 22,
No. 2
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Brewster Government Study Committee Final Report July, 2016 50
Finally, the charter presents an opportunity for the town to “protect” certain concepts that are in bylaw
form by putting them in a document that is more difficult to change than a bylaw.
Specific to Brewster
While most issues outlined above are not entirely specific to Brewster, it does appear that there are
several reasons Brewster could benefit from a charter:
1. Retirement of key personnel. Recently Brewster went through a major personnel transition,
hiring a new town administrator for the first time in 30 years. A charter would enable the
responsibilities and powers of this position to be enumerated and delineated. Additionally, any
informal understandings with regard to the office could be formalized. Any bylaws that were
passed regarding this position can be codified in a more permanent document, making it more
difficult for the town meeting to change them based upon conflicts of the day.
Additionally, a charter can also be used as a recruitment tool for future town administrators;
clearly outlining this person’s function and relationship with the Town and the various
departments, boards, and committees. As it is a relatively stable document, any future town
administrator could feel reasonably confident that his or her duties, powers, and responsibilities
are clearly defined.
2. An inability to attract candidates to serve in either elected or appointive office. A charter can
be an opportunity to change the way in which the town staffs boards. Brewster has a history of
noncompetitive races for a number of elected boards. Crafting a charter would enable Brewster
to contemplate whether appointed offices would best serve the town.
3. A perception that municipal departments are not communicating or coordinating functions as
they should. As this is a subjective assessment, Brewster would have the opportunity to
investigate whether this is indeed a reality.
4. An increase in population and the resultant increase in service demands. While it does not
appear that Brewster has or anticipates a major increase in population, over time Brewster has
seen an increase in its older population. This demographic change results in a change in
demands for services.
5. Poor town meeting attendance. One of Brewster’s identified areas of study for the BGSC is the
Town Meeting. Like many towns, Brewster has experienced diminishing attendance at Town
Meetings. While some possible charter changes may be dramatic (representative town meeting,
etc.), a new charter can also solidify Town Meeting dates and times and the quorum amount.
6. A need for greater oversight of financial matters and service delivery. While many fiscal
procedures may be codified in bylaws, it is likely that Brewster now has many procedures that
are customary or ad hoc. A charter can memorialize procedures.
Conclusions
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Brewster Government Study Committee Final Report July, 2016 51
The following chart outlines some of the benefits and drawbacks of working toward charter change.
Benefits Drawbacks
Chance to Take a Holistic View of Town
Governance
Difficult Process
Long‐Term Focus Can exacerbate existing conflicts
Assessment of Public Expectations Can’t Remedy Personality Conflicts
Chance to Remove Inefficiencies Not Always Adopted by Voters
Opportunity to Clarify Roles and Responsibilities Can Create Transition Issues
Codification of Informal Practices
A charter could be beneficial for clarifying roles, potentially changing structures for increased efficiency,
effectiveness, or equity, consolidating bylaws and unwritten customs, and presenting a relatively
streamlined document to govern the town functions and be utilized by newcomers.
As with any change, there are potential drawbacks. Brewster should consider the potential that the
process could be arduous without the final charter being passed by voters. Additionally, some
municipalities believe that charter change will help with all of the interpersonal conflicts that exist in the
community, but the charter can only change the structure of the institution, not the people that are
involved. If Brewster is functioning well without a charter, there might not be sufficient interest and
momentum to complete the process.
Charter Change Routes
There are two possible routes for a new charter, outlined below, depending upon the bodies that are
most interested in the charter. Most likely Brewster would use the second option, initiated either by the
Board of Selectmen or Town Meeting.
1. Electing a home rule charter commission. If residents of the town take it upon themselves to
write a charter, they may form a charter commission upon petition of 15 percent of the voters.
Chapter 43B of the Massachusetts General Laws lays out the process and timeline for such a
commission to write a new charter and present it to the voters.
2. Petitioning the state legislature for special legislation (“the home rule petition”). Should the
Board of Selectmen like to initiate the charter process, they may appoint a charter study
committee. Town Meeting may also initiate this process. There is no specific requirement for a
timeline in this case, but the appointing authority should lay out a framework. Town meeting
would have the authority to approve a “home rule petition.” If approved, the charter would
then be treated as a piece of legislation with the state legislature voting on it and the Governor
signing it. Often the legislation will be subject to ratification by the town’s voters.
Either a charter commission or a charter study committee could craft a charter for the town of Brewster
with the result likely needing to be voted upon by the residents. Timelines for writing a charter generally
are in the one to two year time range.
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Brewster Government Study Committee Final Report July, 2016 52
TO: Colin Odell, Jillian Douglas
FROM: Tanya Stepasiuk, Edward J. Collins, Jr. Center for Public Management
DATE: March 29, 2015
RE: Town Meeting Strategies
The Brewster Governmental Study Committee asked whether there were possible strategies available to
Brewster to increase Town Meeting attendance, particularly for older or elderly residents. In particular,
you asked about changing the date or time of the meeting.
Unfortunately, there is no research regarding the effects of dates and times of Town Meetings.3
However, we were able to do some research into what some other municipalities across the Cape and
around the state do in order to see whether there is a model that would work better for Brewster.
Brewster’s Town Meeting
Brewster currently holds its town meeting on the first Monday in May at 7:00 pm. Appendix A contains
the attendance of the Town Meeting since 2003 along with any controversial issues which were on the
warrant.
Timing. As indicated by several individuals on survey results conducted by the Brewster Government
Study Committee, it is possible that there have been issues with attendance due to the timing of the
meeting. There are only a few options for moving the Town Meeting; changing the month, changing the
time, or changing the day of the week.
Sunset will be at approximately 7:45 on Town Meeting day in 2016, meaning that people will be
traveling to Town Meeting while it is light, but likely traveling home in the dark. This has been noted as a
reason that older residents might attend less frequently.
Amenities. Brewster currently offers transportation and childcare, as well as refreshments.
Publicity. Brewster currently posts the warrant in public locations, puts signs over major roads, puts a
notice in the local newspaper, and uses the website and facebook to publicize the Town Meeting. While
3Details regarding Massachusetts Town Meeting Dates may be accessed through the Massachusetts Municipal
Manager’s website:
http://www.mma.org/resources‐mainmenu‐182/doc_download/933‐spring‐2016‐annual‐town‐meeting‐dates‐
listed‐by‐date
http://www.mma.org/resources‐mainmenu‐182/doc_download/797‐facts‐about‐annual‐town‐meetings‐in‐
massachusetts
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Brewster Government Study Committee Final Report July, 2016 53
there might be several other ways to publicize Town Meeting (public access television, radio, etc.),
Brewster is currently exhausting most recommended methods.
Engagement. This is the area perhaps best explored by the Town. Almost all of the town clerks we
surveyed talked about the fact that many more people came out for town meeting when there was
something interesting or controversial on the warrant. While it is likely not wise to manufacture
controversial topics, some thought as to which items might be interesting to the community is
warranted.
Additionally, several clerks pointed to the social aspect of town meeting. While there is no specific
evidence that this would increase attendance, it is perhaps obvious that many residents see Town
Meeting as an opportunity to see and talk with their friends and neighbors. Ample opportunity for
socializing and an atmosphere that is conducive to talking with others (without disrupting town
business) would likely be beneficial to attendance.
As Brewster’s demographic skews older, it is unlikely that additional technology would be a welcome
addition to town meeting for many residents. However, some towns are experimenting with technology
that enables electronic voting and communication. At this point, we do not recommend these additions
to Brewster’s meeting.
Neighboring Towns
We contacted the Town Clerks or their staff in many towns on the Cape as asked them several questions
including when they hold their Town Meeting, what the quorum is, whether there has been any change
in the date or time in recent history, and any strategies they have used to help attendance.
Municipality Population Town Meeting Date/Time Quorum
Provincetown 2,994 1st Monday in April, 6:00 pm 100
Eastham 4,956 1st Monday in May, 7:00 pm 5% of voters
Orleans 5,890 1st Monday after the 2nd Tuesday in
May, 6:30 pm
200
Truro 2,003 Last Tuesday in April 100
Wellfleet 2,750 1st Monday in May 6% of voters
Harwich 12,243 1st Monday in May 150
Dennis 14,207 1st Tuesday in May 150
Bourne 19,754 1st Monday in May 150
Sandwich 20,675 1st Monday in May No quorum
Yarmouth 23,793 3nd Saturday in May, 10:00 am No quorum
Most Town Meetings on the Cape are held on a weeknight beginning between 6:00 pm and 7:00 pm
often on the same day as Brewster. Often weeknight meetings can go as late as 11:00 pm and are often
continued multiple evenings.
The only Town Clerk who could remember a change in the date or time of Town Meeting in the past ten
years was Yarmouth. Yarmouth now has Town Meeting on a Saturday. It was changed in 2015.
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Brewster Government Study Committee Final Report July, 2016 54
Most Clerks did not think the date and time had significant impact on the attendance of older voters.
However, one Clerk did think that there was some issue with seasonal residents being able to attend an
early spring Town Meeting. In this town, the COA had been an advocate for beginning the meeting at
6:00 pm and ending it before 10:00 pm.
Many towns offer services such as child care, transportation, or snacks available during the meeting.
One Clerk advised that anything that could make the event more communal was beneficial for turn‐out,
since many residents see the evening as social as well as civic.
Quorums are typically in the 100 to 200 person range, with most towns relying on a number rather than
a percentage of voters. Sandwich changed from a quorum of 200 people to no quorum in 2007, due to
low attendance. Last year’s meeting attracted 280 voters. It is possible that towns with no quorum
actually attract more attendees to Town Meeting due to the possibility that only a few voters could
make important decisions unilaterally for the town.
All Town Clerks that we spoke with expressed the sentiment that when there were interesting or
controversial issues on the warrant, the Town Meeting was much better attended with numbers
doubling or even quadrupling compared to usual attendance. No Town Clerk said that there were
difficulties in getting a quorum on the first night of Town Meeting, but there might be difficulties on
subsequent nights. If there were fewer people than the required quorum on occasion, people would
make phone calls to increase attendance.
Time of Day
Brewster could consider changing the time of Town Meeting, potentially moving it forward a half hour
or hour to begin slightly earlier in the evening. However, it is unlikely that this would make a substantial
difference in attendance. In order to hold the meeting during daylight, the town would need to move
the meeting to a Saturday morning (as a weekday or Sunday would almost certainly decrease
attendance).
Month of the Year
Towns in Massachusetts hold Town Meeting beginning in March and ending in June. Brewster could
consider moving the month closer to the summer, so that there is more daylight. However, this may
cause issues with tourism. It seems that Brewster’s current timing is consistent with most of the towns
on the Cape and the rest of the state.
Day of the Week (Saturday Meetings)
According to the Massachusetts Municipal Association, approximately 13% (39 towns) hold their Town
Meeting on Saturday. We were able to speak with several clerks in towns with Saturday meetings to get
their perspective (Lunenberg, Rutland, Pelham, Plymouth (Representative Town Meeting), and
Yarmouth). Generally, the meetings start between 8:00 am and 10:00 am. However, the town of Rutland
does hold their Saturday meeting in the evening.
Yarmouth has had one Saturday Town Meeting so far and is scheduled to continue holding Saturday
Town Meetings. The meeting starts at 10:00 am. Last year attendance was 676 people, an increase from
previous years. However, there were some items with high interest on the warrant. The Town Clerk did
not believe there was a substantial change in the types of people who came to the meeting. He did
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Brewster Government Study Committee Final Report July, 2016 55
express that the Saturday meeting “went very well for us,” and he would be happy to discuss any
potential change in Brewster.
Most clerks stressed that the advantage of the Saturday meeting was that there was almost no
possibility that the meeting went beyond one day. In smaller towns, the meeting usually lasts only until
early afternoon. For busier Town Meetings, most business is still able to be wrapped up in one day.
The clerks I spoke with also mentioned very little opposition to the meeting day and time. Rutland did
mention that there was some movement to have their meeting held in the morning rather than the
evening, but it has never been brought to Town Meeting.
Conclusions
Brewster could consider moving Town Meeting to a Saturday morning, similar to Yarmouth’s recent
move. However, we are unsure whether this would substantially increase attendance, as there are
often other events happening on Saturdays such as youth sporting events and community events. The
benefit of a Saturday meeting might be realized in the assurance that Town Meeting would almost
certainly be complete in one session. Barring this change, we do not believe there are other viable
options to increase participation in the town besides continuing to offer amenities to attendees.
Collins Center Memo 4
Brewster Government Study Committee Final Report July, 2016 56
Appendix A ‐ Brewster Town Meeting Attendance History
Date Attendance Notes
5/5/2003 1093
11/17/2003 660
5/3/2004 447
11/15/2004 381
5/2/2005 438
11/14/2005 334
5/1/2006 431
11/13/2006 245
5/7/2007 313
11/5/2007 403
5/5/2008 371
11/17/2008 419
5/4/2009 650
10/19/2009 648
5/3/2010 395
11/15/2010 300
5/2/2011 1247 Wind Turbines
11/7/2011 340
5/7/2012 318
10/29/2012 300
5/6/2013 677
11/18/2013 278
5/5/2014 454
11/17/2014 581
5/4/2015 332
9/2/2015 789
Breakwater
Parking
11/16/2015 404 Fire Station Bldg.
Collins Center Memo 5
Brewster Government Study Committee Final Report July, 2016 57
TO: Colin Odell, Jillian Douglas
FROM: Tanya Stepasiuk, Edward J. Collins, Jr. Center for Public Management
DATE: May 11, 2016
RE: Alternative Revenue Sources
The Government Study Committee asked us to suggest possible “alternative revenue mechanisms” that
other municipalities have used to bring extra income or resources into the city or town. Below is a list of
possible resources for Brewster. We have not discerned whether all of these are indeed feasible for the
town or whether they are currently being utilized in some capacity. They are presented as possible ideas
for the committee to consider. Suggestions are separated into categories based upon the type of
revenue resource.
TAXES
Local option meals and hotel tax. Any municipality in Massachusetts has the option of taxing meals and
hotel rooms if it chooses to. M.G.L. c. 64L and 64G § 3A offer guidance. Additionally, detailed
information is available here: http://www.mass.gov/dor/businesses/help‐and‐resources/legal‐
library/tirs/tirs‐by‐years/2009‐releases/tir‐09‐13‐local‐option‐sales‐tax‐on‐meals.html
PILOT
Payments in lieu of taxes (PILOTs). PILOTs are payments made voluntarily by nonprofits who are not
subject to property tax but still utilize valuable municipal resources such as police and fire protection as
well as roads and other resources. PILOTS act as a substitute for taxes. They could be made by
universities, churches, hospitals, retirement homes, and other nonprofit organizations. Other
municipalities in Massachusetts have agreements set up with the major nonprofits within their
boundaries. This report from Andover, Massachusetts does a good job of outlining the strategies of
Massachusetts municipalities: http://andoverma.gov/publish/PilotReport.pdf
FEES
Registration of Rental Properties. As it is likely that Brewster has a number of properties that are
utilized as rentals, the town may want to consider a rental registration requirement. Currently Boston
charges $25 per unit per year initially and $15 per unit in subsequent years. Details on Boston’s program
can be found here: http://www.cityofboston.gov/isd/housing/rental_faqs.asp
Camping Permits. If Brewster has any public camping areas or spots that could be used for this purpose,
camping permit fees are appropriate.
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Brewster Government Study Committee Final Report July, 2016 58
Parking. Brewster currently has beach sticker passes for parking at lots by the beaches, however the
town could also consider whether there are any areas of public parking that would be appropriate for
parking meters.
Rentals. Municipalities occasionally rent municipal property that is appropriate for meetings, events, or
other occasions.
Fee on Plastic Grocery Bags. Some municipalities have begun charging a fee for plastic grocery bags
hoping to cut down on their use while also collecting revenue for the city or town. New York is the latest
to move closer to putting this into practice: http://www.nytimes.com/2016/05/06/nyregion/new‐york‐
city‐council‐backs‐5‐cent‐fee‐on‐plastic‐bags.html?_r=0
Urban Forestry Charge. Some cities and towns have begun charging a fee that goes directly to
supporting the planting, pruning, pest management, and other costs associated with maintaining the
municipalities’ trees. While we do not know of any Massachusetts municipality that has set up such a
fee, it is becoming more popular in other parts of the country. Details regarding Madison, Wisconsin’s
fee can be viewed here: http://host.madison.com/ct/news/local/govt‐and‐politics/urban‐forestry‐
charge‐will‐soon‐appear‐on‐madison‐services‐bills/article_01d3dfd5‐1ce2‐5b63‐97d8‐
11c4e6403200.html
Current Fee Evaluation. Brewster could likely benefit from a comprehensive evaluation of all of its fess
to make sure they are in line with the cost to administer the service and appropriate in relation to other
municipalities and fees across the town. These fees likely encompass services such as inspections,
permits, white goods collection, dog permits, and beach stickers, among many others.
SALES
Brewster may consider whether it has items or services that it would like to sell either on an ongoing or
one‐time basis. Examples of this could include surplus buildings, vehicles, equipment, land or items that
are created by a department such as compost or mulch from the DPW. Additionally, there are many
potential revenue streams that would involve the town or a department selling items that might be
sought after by residents such as compost or rainwater bins, collectable items, or other items unique to
the town.
FINES
Brewster could look to collect additional fines for activities that utilize municipal resources such as false
alarms and parking violations that effect the fire and police departments.
Additionally some municipalities have benefited from an aggressive approach to fees and fines that are
owed to the municipality. This might include an accounting of all the outstanding fees and fines, a plan
to send out notices to those that are overdue, and possibly utilization of a collections agency.
Also, some municipalities have benefited from policies that stop the provision of services (for example
police details) until companies or individuals have no outstanding money due to the municipality.
SPONSORSHIPS
As many private organizations have begun to do, municipalities may name new structures or rename
existing building, parks, or other public facilities with the name of a donor, whether an individual,
Collins Center Memo 5
Brewster Government Study Committee Final Report July, 2016 59
corporation or product. Additionally, advertising generally might be utilized in such areas as baseball
fields and other public property. An article highlighting the practice of municipal naming rights can be
found here: http://www.wsj.com/articles/SB10001424052748703350104575652763782808830
STATE MONEY AND RESOURCES
There are several state programs that Brewster might consider applying to or participating in to bring
money into the town.
Green Communities Designation and Grant Program. This program helps municipalities navigate and
meet the five criteria required to become a Green Community, in turn qualifying them for grants that
finance additional energy efficiency and renewable energy projects at the local level. More information
can be found at: http://www.mass.gov/eea/energy‐utilities‐clean‐tech/green‐communities/
Community Compacts. The Community Compact is an agreement entered into between the state
administration and individual cities and towns of the Commonwealth. In a Community Compact, a
community will agree to implement at least one best practice that they select from across a variety of
areas. Resources are available for projects within the municipality. More information can be found here:
http://www.mass.gov/governor/administration/groups/communitycompactcabinet/apply/
OTHER
Tax Title Auctions. If there are properties within the town that owe property taxes, the town may opt to
assign and transfer the tax title held by the town at a public auction. Worcester’s notices are posted
here: http://www.worcesterma.gov/finance/treasurer/public‐auctions
Examine ownership for any “unknown” owner property listed in Assessor’s database. Brewster has
over $700,000 in properties listed with “unknown” owners according to the assessor’s database at
http://www.assessedvalues2.com/SearchPage.aspx?jurcode=41. (Type “unknown” into the owner field.)
There might be opportunities for additional revenue with knowledge of the owner of the property.
Encouragement of “Friends of” Groups (Library, Senior Center). It appears that Brewster currently has
several “friends of” groups. However, if there are additional opportunities for town institutions or
fundraising within these active groups, specific groups can benefit from the additional attention and
fundraising.
TO: Colin Odell, Jillian Douglas
FROM: Tanya Stepasiuk, Edward J. Collins, Jr. Center for Public Management
Collins Center Memo 6
Brewster Government Study Committee Final Report July, 2016 60
DATE: June 21, 2016
RE: Enterprise Funds
You asked us to look into the types of enterprise funds set up by municipalities across Massachusetts
and possibly elsewhere. In Massachusetts specifically enterprise funds may be set up within a
municipality as enabled by Ch. 44, Section 53F1/2 (found below). These are separate accounts set up for
a “utility, cable television public access, health care, recreational or transportation facility.” In other
words functions provided by the town that fit into these categories may be split off from the general
operation of the municipality and formed into their own enterprise fund. With this fund the operations
of the particular endeavor are self‐contained including fees, upgrades, salaries, etc. To support the
service, a municipality may choose to recover costs through user charges for the service, through a
partial subsidy from the tax levy (e.g., a Proposition 2½ debt exclusion) or from other available funds.
Massachusetts regulations emphasize that municipalities may not establish enterprise funds for normal
government operations or services such as public safety, inspectional services or cemeteries. This does
limit the type of enterprise fund that a municipality may set up, but there are still a variety of
opportunities. They fall into four main categories; public utilities, health‐care, recreation, and
transportation.
Public Utilities. These are perhaps the most common and typically largest enterprise funds in cities and
towns. They may include water, sewer, electric, and/or trash and recycling disposal. A majority of
municipalities in Massachusetts have water and/or sewer enterprise funds. A sizeable number of cities
and towns also have electric and/or landfill funds.
Health Care. Health care enterprise funds may include ambulance services, visiting nurses, and nursing
homes. A variety of municipalities have EMS or ambulance enterprise funds (Westford, Lanesborough,
Hubbardstown, Fall River). Visiting nurses (Acton), hospitals (Nantucket) and nursing homes (Taunton)
are rarer.
Recreation. Recreation funds may be viewed as umbrellas with municipalities including anything that is
recreation based within the enterprise fund or may include discrete funds for amenities such as pools,
skating rinks, or golf courses. This is a common category for municipalities with extensive area or
resources dedicated to recreation. Many municipalities have a common “recreation” enterprise fund
(Arlington, Winthrop) which can include a variety of activities including classes, field rentals, and other
activities. Cities such as Beverly have enterprise funds for tennis and golf. Golf is also a separate
enterprise fund in Melrose, Natick, Brookline, and South Hadley (among other municipalities).
Additionally, some municipalities maintain a skating rink (Falmouth, Canton, Winthrop) with an
enterprise fund.
Transportation. Depending upon a municipality’s resources enterprise funds might include airport,
parking, dock or wharf facilities. For example, the city of Lowell has a dedicated parking garage fund. A
variety of coastal municipalities have funds dedicated to harbor activities (Gloucester, Wellfleet),
waterways management (Dartmouth), or a ferry service (Winthrop). Additionally, municipalities may
have enterprise funds for airports (Beverly, Nantucket) or other transportation.
Massachusetts Department of Revenue keeps records regarding enterprise fund expenditures and
revenues. Attached is a spreadsheet from the DOR containing this data for the 2014 fiscal year. The DOR
Collins Center Memo 6
Brewster Government Study Committee Final Report July, 2016 61
breaks down enterprise categories into water, sewer, electric, landfills, hospital, health care, airport,
harbor, golf courses, public recreation, and other. The “other” category includes items such as
stormwater (Ayer), renewable energy (Brockton), EMS services (Hubbardston, Fall River). Uncommon
enterprise funds also include Chatham’s wood waste reclamation facility and Acton’s Council on Aging
Van.
Brewster potentially has several potential avenues for setting up enterprise funds, however most would
likely be major projects. As the state has limited the areas which any municipality can set up an
enterprise fund, any potential amenity would need to fit into the “utility, cable television public access,
health care, recreational or transportation facility” categories. There are potential areas to explore
within the recreational or health care areas which would be less onerous than providing electricity,
water, or sewer services by the town.
Collins Center Memo 6
Brewster Government Study Committee Final Report July, 2016 62
Found at: https://malegislature.gov/Laws/GeneralLaws/PartI/TitleVII/Chapter44/Section53F1~2
Ch. 44, Section 53F1/2. Notwithstanding the provisions of section fifty‐three or any other provision of
law to the contrary, a city or town which accepts the provisions of this section may establish a separate
account classified as an ''Enterprise Fund'', for a utility, cable television public access, health care,
recreational or transportation facility, and its operation, as the city or town may designate, hereinafter
referred to as the enterprise. Such account shall be maintained by the treasurer, and all receipts,
revenues and funds from any source derived from all activities of the enterprise shall be deposited in
such separate account. The treasurer may invest the funds in such separate account in the manner
authorized by sections fifty‐five and fifty‐five A of chapter forty‐four. Any interest earned thereon shall
be credited to and become part of such separate account. The books and records of the enterprise shall
be maintained in accordance with generally accepted accounting principles and in accordance with the
requirements of section thirty‐eight.
No later than one hundred and twenty days prior to the beginning of each fiscal year, an estimate of the
income for the ensuing fiscal year and a proposed line item budget of the enterprise shall be submitted
to the mayor, board of selectmen or other executive authority of the city or town by the appropriate
local entity responsible for operations of the enterprise. Said board, mayor or other executive authority
shall submit its recommendation to the town meeting, town council or city council, as the case may be,
which shall act upon the budget in the same manner as all other budgets.
The city or town shall include in its tax levy for the fiscal year the amount appropriated for the total
expenses of the enterprise and an estimate of the income to be derived by the operations of the
enterprise. If the estimated income is less than the total appropriation, the difference shall be added to
the tax levy and raised by taxation. If the estimated income is more than the total appropriation, the
excess shall be appropriated to a separate reserve fund and used for capital expenditures of the
enterprise, subject to appropriation, or to reduce user charges if authorized by the appropriate entity
responsible for operations of the enterprise. If during a fiscal year the enterprise incurs a loss, such loss
shall be included in the succeeding fiscal year's budget.
If during a fiscal year the enterprise produces a surplus, such surplus shall be kept in such separate
reserve fund and used for the purposes provided therefor in this section.
For the purposes of this section, acceptance in a city shall be by vote of the city council and approval of
the mayor, in a town, by vote of a special or annual town meeting and in any other municipality by vote
of the legislative body.
A city or town which has accepted the provisions of this section with respect to a designated enterprise
may, in like manner, revoke its acceptance.
Collins Center Memo 7
Brewster Government Study Committee Final Report July, 2016 63
TO: Colin Odell, Jillian Douglas
FROM: Tanya Stepasiuk, Edward J. Collins, Jr. Center for Public Management
DATE: June 24, 2016
RE: Enterprise Funds
You asked us to look into the types of enterprise funds set up by municipalities across Massachusetts
and possibly elsewhere. In Massachusetts specifically enterprise funds may be set up within a
municipality as enabled by Ch. 44, Section 53F1/2 (found below). These are separate accounts set up for
a “utility, cable television public access, health care, recreational or transportation facility.” In other
words functions provided by the town that fit into these categories may be split off from the general
operation of the municipality and formed into their own enterprise fund. With this fund the operations
of the particular endeavor are self‐contained including fees, upgrades, salaries, etc. To support the
service, a municipality may choose to recover costs through user charges for the service, through a
partial subsidy from the tax levy (e.g., a Proposition 2½ debt exclusion) or from other available funds.
Massachusetts regulations emphasize that municipalities may not establish enterprise funds for normal
government operations or services such as public safety, inspectional services or cemeteries. This does
limit the type of enterprise fund that a municipality may set up, but there are still a variety of
opportunities. They fall into four main categories; public utilities, health‐care, recreation, and
transportation.
Public Utilities. These are perhaps the most common and typically largest enterprise funds in cities and
towns. They may include water, sewer, electric, and/or trash and recycling disposal. A majority of
municipalities in Massachusetts have water and/or sewer enterprise funds. A sizeable number of cities
and towns also have electric and/or landfill funds.
Health Care. Health care enterprise funds may include ambulance services, visiting nurses, and nursing
homes. A variety of municipalities have EMS or ambulance enterprise funds (Westford, Lanesborough,
Hubbardstown, Fall River). Visiting nurses (Acton), hospitals (Nantucket) and nursing homes (Taunton)
are rarer.
Recreation. Recreation funds may be viewed as umbrellas with municipalities including anything that is
recreation based within the enterprise fund or may include discrete funds for amenities such as pools,
skating rinks, or golf courses. This is a common category for municipalities with extensive area or
resources dedicated to recreation. Many municipalities have a common “recreation” enterprise fund
(Arlington, Winthrop) which can include a variety of activities including classes, field rentals, and other
activities. Cities such as Beverly have enterprise funds for tennis and golf. Golf is also a separate
enterprise fund in Melrose, Natick, Brookline, and South Hadley (among other municipalities).
Collins Center Memo 7
Brewster Government Study Committee Final Report July, 2016 64
Additionally, some municipalities maintain a skating rink (Falmouth, Canton, Winthrop) with an
enterprise fund.
Transportation. Depending upon a municipality’s resources enterprise funds might include airport,
parking, dock or wharf facilities. For example, the city of Lowell has a dedicated parking garage fund. A
variety of coastal municipalities have funds dedicated to harbor activities (Gloucester, Wellfleet),
waterways management (Dartmouth), or a ferry service (Winthrop). Additionally, municipalities may
have enterprise funds for airports (Beverly, Nantucket) or other transportation.
Under enterprise accounting, the revenues in expenditures of services are separated into separate funds
with its own financial statements, rather than commingled with the revenues and expenses of all other
government activities. There are a few circumstances when an activity must be separated as an
enterprise fund; if user charge receipts are pledged for related debt, if the municipality adopts a statute
requiring costs to be recovered through fees, or if management intends to recover total direct costs
including capital costs through rates and charges.
Enterprise funds can be useful to management as well as the public to examine the performance of a
service, determine the true cost of providing a service, analyze decisions that are specific to the service,
and identify instances where the general funds of the town are subsidizing a service.
Massachusetts Department of Revenue keeps records regarding enterprise fund expenditures and
revenues. Attached is a spreadsheet from the DOR containing this data for the 2014 fiscal year. The DOR
breaks down enterprise categories into water, sewer, electric, landfills, hospital, health care, airport,
harbor, golf courses, public recreation, and other. The “other” category includes items such as
stormwater (Ayer), renewable energy (Brockton), EMS services (Hubbardston, Fall River). Uncommon
enterprise funds also include Chatham’s wood waste reclamation facility and Acton’s Council on Aging
Van.
Reasons to Consider an Enterprise Fund
A town might decide to utilize an enterprise for services it is already providing for a few different
reasons. First, it might enable the municipality to determine the total cost of providing the service
including direct and indirect costs. Next, the town might want to demonstrate to constituents how the
service is funded; for example whether the service is completely covered by fees or charges or whether
it is subsidized by the tax base. The enterprise fund also enables investment income and surpluses to
remain with the fund rather than reverting to the general fund. This may be useful for thinking about
long‐range planning for the service individually and the necessary capital expenditures to sustain it.
Additionally, with a separate fund, constituents can see that the town is not utilizing the service as a
subsidy for other town services and charging excessive rates (as could potentially be the case with
electricity, water, or other necessities). Finally, an enterprise fund can provide information to the
management of the town.
Major Enterprise Funds (Utilities)
For municipalities that have traditionally provided or want to provide water, sewer, and electricity to
residents, enterprise funds allow the town to separate this distinct service (that has specific rates and
Collins Center Memo 7
Brewster Government Study Committee Final Report July, 2016 65
services) from the rest of the operating budget; allowing the “business” to respond to increased
expenses with rate increases isolated from the town’s budget.
Smaller Enterprise Funds
For amenities that are utilized by visitors as well as residents of the town, an enterprise fund might be
appropriate. By segregating income and expenses from the rest of the operating budget, taxpayers may
feel that they are not helping to provide this amenity (such as a golf course, hospital, skating rink, or
ferry service) to the general public. Instead it is a self‐funded operation. Additionally funds such as
nursing homes or van service could be looked at as being provided to a minority of residents and
therefore might be appropriate to be completely separate from the general fund.
Golf Courses
Municipalities such as Melrose, South Hadley, Acushnet, Barnstable, Gardner, Hingham, and several
others run golf courses as enterprise funds. Some of these ran at a loss of revenues over expenditures in
FY2014 while others had a profit (as illustrated by the attached spreadsheet). We have attached some
financial information regarding South Hadley’s golf course included within the attached budget
document (page 27).
Brewster
In all likelihood, the services most appropriate in Brewster for an enterprise fund would be those that
could fall under “recreation” or separate funds for recreational activities. This could include the gold
course, field rentals, recreational activities, or other related amenities. This might be particularly
appropriate if a large percentage of users of these amenities are not residents of the town and
taxpayers would like to see the accounting of the service separated from the general budget.
Additionally, if the golf course would benefit with separate long‐term planning with its own funding, this
would be appropriate.
While Brewster might also consider some smaller enterprise funds such as van transportation, it seems
unlikely that this would represent a significant improvement to transparency or services to warrant a
separate account.
Collins Center Memo 7
Brewster Government Study Committee Final Report July, 2016 66
Found at: https://malegislature.gov/Laws/GeneralLaws/PartI/TitleVII/Chapter44/Section53F1~2
Ch. 44, Section 53F1/2. Notwithstanding the provisions of section fifty‐three or any other provision of
law to the contrary, a city or town which accepts the provisions of this section may establish a separate
account classified as an ''Enterprise Fund'', for a utility, cable television public access, health care,
recreational or transportation facility, and its operation, as the city or town may designate, hereinafter
referred to as the enterprise. Such account shall be maintained by the treasurer, and all receipts,
revenues and funds from any source derived from all activities of the enterprise shall be deposited in
such separate account. The treasurer may invest the funds in such separate account in the manner
authorized by sections fifty‐five and fifty‐five A of chapter forty‐four. Any interest earned thereon shall
be credited to and become part of such separate account. The books and records of the enterprise shall
be maintained in accordance with generally accepted accounting principles and in accordance with the
requirements of section thirty‐eight.
No later than one hundred and twenty days prior to the beginning of each fiscal year, an estimate of the
income for the ensuing fiscal year and a proposed line item budget of the enterprise shall be submitted
to the mayor, board of selectmen or other executive authority of the city or town by the appropriate
local entity responsible for operations of the enterprise. Said board, mayor or other executive authority
shall submit its recommendation to the town meeting, town council or city council, as the case may be,
which shall act upon the budget in the same manner as all other budgets.
The city or town shall include in its tax levy for the fiscal year the amount appropriated for the total
expenses of the enterprise and an estimate of the income to be derived by the operations of the
enterprise. If the estimated income is less than the total appropriation, the difference shall be added to
the tax levy and raised by taxation. If the estimated income is more than the total appropriation, the
excess shall be appropriated to a separate reserve fund and used for capital expenditures of the
enterprise, subject to appropriation, or to reduce user charges if authorized by the appropriate entity
responsible for operations of the enterprise. If during a fiscal year the enterprise incurs a loss, such loss
shall be included in the succeeding fiscal year's budget.
If during a fiscal year the enterprise produces a surplus, such surplus shall be kept in such separate
reserve fund and used for the purposes provided therefor in this section.
For the purposes of this section, acceptance in a city shall be by vote of the city council and approval of
the mayor, in a town, by vote of a special or annual town meeting and in any other municipality by vote
of the legislative body.
A city or town which has accepted the provisions of this section with respect to a designated enterprise
may, in like manner, revoke its acceptance.
Brewster Government Study Committee Charge
Brewster Government Study Committee Final Report July, 2016 67
Charge for Brewster Government Study Committee
The Board of Selectmen (the “BOS”) wishes to ensure that Brewster’s government is transparent,
responsive, efficient, and effective in its governance and in the delivery of town services by our
various departments. The BOS seeks to improve our town government in order to provide the best
service to its citizens, and therefore, will appoint a seven-member Brewster Government Study
Committee (the “BGSC”) to study our town departments, boards, committees, and commissions
according to the following charge.
The BGSC is hereby charged with conducting an in-depth review of the town’s current organizational
structure including the role of Town Administrator, the various town departments, boards,
committees, and commissions. The study will examine the clarity of duties, span of responsibilities,
methods of internal and external communication and coordination. The study will compare how these
factors are dealt with in Town policies and in practice. The BGSC will deliver the results of its study
to the BOS based upon the following definition of scope and timeline.
1. SCOPE
The BGSC will conduct an in-depth review of the following:
a. Organizational structure. Is the structure is too tiered or too flat from a management and
leadership perspective?
b. Definition of duties. How clearly are the duties of the Town Administrator and various
departments defined? Are there gaps or overlaps with respect to duties and responsibilities? Is the
span of responsibilities for individual departments too broad or too narrow?
c. Management appointments. What person or entity is responsible for appointing departmental
managers and does the process build the proper accountability?
d. Communication and coordination. Are there adequate and effective channels of
communication between the BOS and the Town Administrator; the Town Administrator and the
departments; amongst the departments, and within each department?
e. Staffing. Does the organizational structure provide for optimal staffing levels? Is there
adequate succession planning?
f. Performance management. How well are supervisory functions defined and executed? How is
the performance of departments and department heads evaluated and communicated to the BOS
and to the public? How effectively is the performance of department heads and staff managed by
the appointing authority?
The BGSC will examine our town’s boards, committees, and commissions (the “BCC”):
a. What is the relationship between the BCC and the staff that supports the unit, and is the
support sufficient and effective?
b. Examine and understand the policy-making responsibilities of the BCC versus the regulatory
responsibilities.
c. Is the BCC appointed or elected, and does this make sense when considering the BCC’s duties
and responsibilities? Does the BCC’s status naturally provide for appropriate accountability and
transparency?
d. With respect to appointed BCC: does the appointment process sufficiently and successfully
recruit members, and is the process transparent and balanced?
Brewster Government Study Committee Charge
Brewster Government Study Committee Final Report July, 2016 68
2. PROCESS
Phase 1: Assess current conditions and issues. The study will include a review of relevant Town
bylaws and policies, interviews with the Town Administrator, department heads, BCC, Board of
Selectmen and other key staff.
In addition, the BGSC will gather the public‘s perspective through various mechanisms of its
choosing such as surveys, focus groups and/or open forums.
At the end phase one, the BGSC will identify the key issues, challenges, and opportunities for
strengthening our town government and improving its effectiveness. The Committee will present a
report of these findings to the BOS.
Phase 2: Identify best practices and relevant experiences from other towns. Focusing on the
issues, challenges, and opportunities identified in phase one the BGSC will work with a consultant
who will charged with identifying best practices and experiences from other towns that might serve
as models for Brewster.
Phase 3: Develop recommendations. Based on the results of the interviews, public input, and
consultant findings, the BGSC will develop recommendations for reorganization and reform of
policies and procedures. The BGSC will develop its draft report in partnership with the consultant.
Final recommendations will be presented to the BOS and to the public. Recommendation may be
short-term, such as management improvements or policy changes, or long term, such as moving
towards a Town Charter.
3. SCHEDULE (FIFTEEN MONTHS)
Phase 1 will be completed within eight months of convening the BGSC.
Phase 2 will be completed within three months of the completion of Phase 1.
Phase 3 will be completed within four months of the completion of Phase 2.
4. SUPPORT
The Town will provide secretarial support to take minutes, post meeting notices, distribute
materials and schedule BGSC meetings with individuals and members of the BCC.