Massachusetts Municipal Association Handbook for Massachusetts Selectmen Fourth Edition Handbook For Massachusetts Selectmen Fourth Edition John Ouellette, Editor Massachusetts Municipal Association Massachusetts Selectmen’s Association One Winthrop Square Boston, MA 02110 A publication of the Massachusetts Municipal Association Copyright 2014 ISBN: 0-9621064-0-2 Dedication The 2014 edition of the Handbook for Massachusetts Selectmen is dedicated to Needham Selectman Jerry Wasserman 1947-2013 The Massachusetts Selectmen’s Association acknowledges the lasting contributions and passion for government of Jerry Wasserman, former MSA President and longtime champion of local government and civic participation. Jerry’s service to his community of Needham, and to the entire Commonwealth, exemplifies the highest standards of leadership, and he made his mark with humanity, humor, dignity and professionalism. Acknowledgements This publication is made possible through the hard work and dedication of many individuals who share the credit for this fourth edition of the Handbook for Massachusetts Selectmen. The Handbook was prepared under the direction, guidance and review of an editorial advisory board: Ellen Allen, Selectman, Town of Norwell Colleen Corona, Selectman, Town of Easton Paul DeRensis, Selectman, Town of Sherborn David Dunford, Selectman, Town of Orleans David Kielson, former Selectman, Town of Chesterfield Josh Ostroff, Selectman, Town of Natick Kim Roy, Selectman, Town of Halifax Alex Vispoli, Selectman, Town of Andover We acknowledge those who provided comments, wrote or rewrote portions of this handbook, including: from the Massachusetts Municipal Lawyers Association – John Barrett, John Clifford, John Collins, Michael Curran, Leonard Kopelman, James Lampke, Henry Luthin, Gregor McGregor, Thomas Mullen, Juliana Rice and Robert Ritchie; Marilyn Contreas, Senior Program and Policy Analyst, Massachusetts Department of Housing and Community Development; Alan Tosti, Chair, Arlington Finance Committee; and John Robertson, Legislative Director, Massachusetts Municipal Association. John Ouellette, Publications Editor/Web Director, Massachusetts Municipal Association, served as editor, author and researcher for the Handbook. He wrote several sections in the new edition. Megan Devine, Member Services Coordinator and Patricia Mikes, Communications and Membership Director, Massachusetts Municipal Association provided guidance and support during the development of this publication. Handbook for Massachusetts Selectmen Table of Contents Chapter 1: The Massachusetts Selectman – An Introduction History of the Office of Selectman .....................................................................................................................1 Government by Committee ...............................................................................................................................3 Legal Authority .................................................................................................................................................3 Coordination and Strategic Responsibilities......................................................................................................4 Leadership Responsibilities ...............................................................................................................................4 Assuming the Office of Selectman .....................................................................................................................5 Making a Difference ..........................................................................................................................................6 Chapter 2: Selectmen and Public Decision Making Conducting a Proper Meeting ...........................................................................................................................7 The Open Meeting Law ...................................................................................................................................10 The Public Records Law ..................................................................................................................................21 Conducting an Error-Free Hearing .................................................................................................................23 Conflicts of Interest and Bias ..........................................................................................................................32 Parliamentary Guide Considerations ..............................................................................................................36 Dealing With the Public and the Media ..........................................................................................................38 Chapter 3: Organization of Town Government Definition and Role of Charters .....................................................................................................................45 City vs. Town Distinction ................................................................................................................................48 Selectmen-Town Meeting Form .......................................................................................................................48 Town Government Today.................................................................................................................................50 Options for Changing Local Government Structure ........................................................................................52 Town Manager/Administrator .........................................................................................................................56 Recall Provisions .............................................................................................................................................57 Chapter 4: Administrative and Regulatory Responsibilities Selectmen and Town Meeting ..........................................................................................................................59 Election Responsibilities .................................................................................................................................62 Appointing Town Boards, Commissions and Committees ...............................................................................63 Licenses and Permits .......................................................................................................................................68 Contracting and Procurement .........................................................................................................................72 Insurance and Liability ...................................................................................................................................76 Managing Municipal Property ........................................................................................................................81 Utilities and Franchise Activities .....................................................................................................................84 Boundaries ......................................................................................................................................................85 Chapter 5: Financial Management Finance Roles and Responsibilities ..................................................................................................................87 Trends in Organization of Finance Functions..................................................................................................91 Municipal Budgeting .......................................................................................................................................92 The Budget Process .........................................................................................................................................96 Budget Formats ...............................................................................................................................................97 Sources of Revenue ..........................................................................................................................................99 Assessment Administration ...........................................................................................................................102 Setting the Property Tax Rate ........................................................................................................................105 Proposition 2½ .............................................................................................................................................106 Contingent Appropriations ...........................................................................................................................109 School Finance ..............................................................................................................................................110 Capital Improvement Planning and Budgeting .............................................................................................116 Municipal Debt .............................................................................................................................................121 User Fees and Enterprise Funds .....................................................................................................................128 Financial Accounting and Reporting