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What’s in a plan?: Resident questions Whitman’s capital planning process

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WHITMAN — Disagreement over what constituted adherence to a bylaw requirement for a capital plan sparked discussion between Selectmen and a resident at the board’s meeting Tuesday, Jan. 22.

Shawn Kain, a former member of the Finance Committee and proponent of a five-year capital improvement plan, asked the Board of Selectmen during a Public Forum who he should approach regarding an appeal of what he saw as the board’s failure to meet a January bylaw deadline for such a plan.

Selectmen Chairman Dr. Carl Kowalski said that, while a capital plan was not being presented that night, a meeting has already been held between town officials, including some department heads and representatives of the Collins Center of UMass, Boston toward developing an ongoing five-year plan.

“You have to have capital to satisfy a capital plan,” Kowalski said. “It’s been asked and answered every time you come.”

“I will meet with the Finance Committee and we will do some prioritization for capital needs this year, but a formal plan will not be [completed],” Town Administrator Frank Lynam said.

“Who do I speak to about this matter if the bylaws aren’t being upheld by the Board of Selectmen?” Kain asked, saying the issue had not yet been made public, an assertion with which Lynam took issue, asserting the situation has been very public. But, aside from the attorney general’s office, officials had no appeals options to offer.

“You can file with the District Court an injunction and order us to get it done,” Lambiase said, noting that planning  work is already underway.

“I’m not aware of any court of appeal above a board of Selectmen,” Lynam said.

“I don’t think there is a board of appeals that’s set up to hear the appeal of anybody [that would have] authority over this board,” Selectman Scott Lambiase agreed, noting he understood Kain’s frustration. “I totally get what you’re asking and what you want here and I think what Frank and the Finance Committee are going to put together is going to be what we’re going to get for a capital plan.”

Both Kowalski and Lambiase agreed that the plan drawn up will meet the requirement for a capital plan while a more formal process is being drawn up with the help of the Collins Center, but Kain was not satisfied with that explanation.

“Will it be a long-term plan, will it be everything we want? No,” Lambiase said. “Do we have money to actually finance this capital plan? That remains to be seen, but there will be a plan forthcoming.”

Lynam said he plans to present a report to the board outlining the town’s capital conditions.

“But it won’t be what you’re looking for,” he said, noting he felt it was clear from Kain’s previous discussions with the board that the Collins Center was being engaged to create a long-term plan, although it wouldn’t meet the timeline he was looking for.

“I think what I’m looking for is specifically what’s in the bylaws,” Kain said. “The bylaw says there will be a capital plan and it will be presented by January. That’s very specific. I was here in June asking about it. I was here in July, I was here in August, I was here in October.”

He said that he was told about the grants for the Collins Center project in October, but saw that as a long-term effort.

“Right now, my major concern is fiscal year 2020,” he said.

Lynam countered that he had five pages of capital requests on 11-by-17-inch paper. Not counting the DPW, there are already “well in excess of $3 million” being asked for this year.

“Will we have a plan put together?” Lynam asked. “We’ll develop one. Will it address all those needs? No it won’t, because it can’t. The revenue isn’t there.”

Lambiase asked Kain what he would do in their position.

“You’re asking us to do something, what would you do?” he asked.

Kain referred to an offer made by Selectmen to have him chair a capital planning committee, which he declined because he felt it would not be in the best interests of those people already working on a capital plan, including Lynam, Selectman Daniel Salvucci — who did not attend the meeting as he was meeting with the Finance Committee about the South Shore Tech budget in his role as liaison to SSVT — and others “used to working together.”

The Building Needs and Capital Projects Committee last met in August, Lynam said, noting it failed to get a quorum to meet in December.

“You’ve been asking about this for a long time and you knew the answer before you got up to the podium,” Kowalski said. “You’ve been told that we did not have the resources to develop a sensible five-year plan in the time frame that you wanted. We know that we’ve missed the deadline for the bylaw, we knew that we were going to miss the deadline for the bylaw and I’m pretty sure we were clear to you that that was what was going to happen.”

He said the next-best thing the board could do was to apply for the grant that is funding the Collins Center’s work.

He suggested Kain’s motivation was to embarrass the board.

Budget update

Lynam said he was meeting with the Finance Committee Jan. 22 to review budget scenarios he distributed to them last week, but no action was planned at that meeting.

“We’re going to be reviewing the results of the meetings in our … the budgets that are under the Board of Selectmen,” he said. “I’m also going to be presenting what we best know, as of this point, for capital requests.”

He said there have been “tremendous amount of capital requests” with limited funds to work with them. A joint meeting on the budget will be scheduled with the Finance Committee next month.

Lynam also noted the Budget Review Committee is progressing in its work to formalize the steps to be taken in beginning, preparing and submitting budgets.

Community assessment survey results are now being analysed for presentation to the board.

Census update

Lambiase reminded citizens to return their Town Census forms as soon as possible.

“A quick note on that is, if you don’t return them, they remove you from the voting rolls,” Selectman Brian Bezanson said. Lynam said that process involves the expense to the town for repeated mailings involved in that process.

State’s funding shortfall

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Unfunded and underfunded state education mandates cost the W-H Regional School District more than $5 million a year, based on the most recent complete report from fiscal 2018. There were $8,131,147 in mandated costs during FY 2018, but only $2,110,957 of anticipated reimbursements were received [See page 5].

“We have an $8 million state mandate that no other department in the town has with $5 million of it not being funded,” said School Committee Chairman Bob Hayes. “That is a giant piece of the budget that other departments don’t have. … The point I’m making is that, when departments start getting pitted against each other, and I hate to use that term, we provide a different service was the answer that I told the Finance Committee members, than other departments. It’s very difficult to compare.”

Superintendent of Schools Jeffrey Szymaniak offered a breakdown of those costs during a budget discussion at the Wednesday, Jan. 16 School Committee meeting.

Town administrators, select board and Finance Committee members from both towns attended the meeting.

Szymaniak said he has appreciated the opportunity to have talks with the Whitman Finance Committee and the town administrators to fill them in on where the district is at financially, he is not yet able to offer budget projections until the official budget roll-out on Wednesday, Feb. 6.

Whitman’s Finance Committee, for example, has been seeking impact statements from town departments based on 3- or 6-percent budget cuts.

“I can’t do what police, fire — everybody else [has done] — and put a number on it,” Szymaniak said. “We have great teachers right now and I would be remiss and I would not be doing my job if were to say I’m starting to cut the budget in January before I present it to you folks.”

Szymaniak said his job is to present a budget that will “adequately move the district as slimly forward as we can. … So I’m telling you this, a deficit or a level-fund will impact us severely.”

The district is looking at a $2.9 million increase in costs — with $3.7 million in deficits that are unfunded across the board if the budget were level-funded, according to Szymaniak.

“The impact would be in service delivery,” he said. “It’s people — I’m not going to put a dollar number or put a number on folks — it’s programs. It’s everything that we’ve done the right way over the past five years.”

Szymaniak said he fully understands Whitman’s financial position and is willing to work with them, but sees the potential for “devastating” cuts if the schools are looking at a $3.7 million deficit.

“We have not yet fully recovered from [cuts made in 2008 through 2010]. If we went back to Square Zero, you look at a 10-year process to get back to where we were.”

He also outlined how unfunded and underfunded mandates from the state impact town budgets.

“Some of the things that we think we do out of the course of doing business out of the course of the day are actually mandates that have an impact on our school budget,” Szymaniak said. “This is what we’re held to, so when we’re talking increases in costs, this is what the state determines we need to do as a district.”

Teacher evaluation, for example, used to consist of an administrator talking with a teacher, according to Szymaniak. The state now wants districts to generate evidence-backed data for such evaluations, requiring a software program — as well as added time not calculated for the comparison, which has doubled if not tripled over the past 10 years.

“As our student population grows, we might have to provide more teachers for that,” Szymaniak also said of English Language Learners. “We doubled our teachers — we had one teacher and two tutors last year — and by our numbers, we should have two teachers and a tutor, if not three teachers for next year.”

Health insurance costs are also expected to increase by about 5 percent next year. Finance Committees and town administrators have also been asking about full-day kindergarten, Szymaniak said. While it will not likely be a budget issue this year, but will likely come up in the future.

“FinComs asked, because we are putting expenditure out for charter schools … and when are we going to look at keeping our kids here,” he said. “That’s a piece that this board has looked at over time.”

Full-day kindergarten could help the district see charter school kids staying in the district over time, according to Szymaniak.

“I think you’re not going to see it the first year, but you will see a definite impact in that expense going out,” he said of the charter school money. “Once you establish roots in a school system, you’re going to stay.”

Special education costs are impossible to project, Szymaniak said, noting that just last week two students were placed out-of-district based on behavior issues that are “not acceptable to our school” and disrupt classrooms, effecting the education of other students.

School choice requires that districts permit students to attend schools where they want. Students that go out of W-H, brings in no money for the district, but students coming into the district bring in some funds.

“I don’t see myself advocating for less services than the meager services that we already provide,” School Committee member Fred Small said.

Hayes agreed, noting it was incumbent upon Szymaniak to present a budget outlining what it’s going to take to run the district and it was up to the committee to come up with a budget figure.

Where regional transportation is concerned, Small said he understands that the state wants communities to have “skin in the game” by limiting reimbursements.

“But the mandate is they shall fully fund regional transportation subject to appropriation,” he said. “We’ve cut our start times, we’ve done everything we can, software-related to create the best bus routes to save as much money as possible on our busing.”

He said there are problems with the state bidding process for bus contracts, because of the limited number of bus companies competing.

In other business, Dan Sullivan of CLA provided an auditors’ report.

“All the information in the financial records were presented fairly, were presented in compliance with what you need to do to prepare the financial statements,” he said. The clean report indicated that the district does not need to make any changes in its practices.

The outside audit encompasses reviews of financial statements, internal controls and accounting principals as well as a government-required single audit of grant expenditures and bonds to determine a bond rating.

“Management and staff were responsive to all our inquiries,” Sullivan said. “We had no [problems] with the way things were reported.”

District Treasurer David Leary also provided a positive report on the district’s debt position, OPEB and transfers of scholarship accounts to better-yield investment vehicles.