destitute and out of almshouses in addition to giving what material help is necessary, in possibly cutting down the cost of maintenance of the city home and almshouse through the application of modern methods, in developing a plan involving the mobilization of all related agencies to combat unemployment both in its ordinary proportions and as brought on by industrial depression, in preventing the usual shift of unemployment to charity and the taxpayer, in constructively protecting childhood against neglect and unwholesome surroundings and thus lessening destitution and criminality in later years, in protecting the youth of the city from dangerous and improper amusements and furnishing needed recreational facilities to serve the welfare of all citizens, in keeping pace with modern developments in the welfare field and in applying preventative measures to avoid foreseeable dangers before they arise. In brief, the advantages and economies growing out of the organization of a modern Department of Public Welfare result from building up and offering a constructive and coördinated service of rehabilitation, conservation, and community well-being for all, and at the same time eliminating overlapping, duplication, and that useless expenditure for material relief which renders no constructive assistance.

CHAPTER XII

PLANNING POWERS OF MASSACHUSETTS DEPARTMENTS

Mos

OST people think of planning as a new power for a state department and few realize the extent of the work Massachusetts, through her state departments, has already done in this field. The history of the growth of this work points to a gradually increasing recognition of problems and a desire to meet these problems in a scientific way. As the civic consciousness is awakened to the need of far-sighted planning public opinion is created and legislative action results. The first legislative act to grant planning powers to a state department in Massachusetts recognized the dangers of grade crossings and sought to lessen accidents from this cause. The problem of transporting people and goods safely and conveniently has long been a recognized problem. Realization of the effects localities have on the health of the people brought more legislation, to be followed by acts concerning the purity of the water supply, drainage and sewage disposal. Soon it became evident that laws were needed to ensure protection from fire to persons employed in large numbers under one roof; that laws were needed, also, to protect the public from poorly built theatres, halls and other public buildings; and that

some state supervision was needed to ensure even decently wholesome living conditions for the people of the commonwealth.

PUBLIC UTILITIES

In 1864 the Board of Railroad Commissioners was formed, its chief duties at that time being to make grade crossings more safe. The Board of Gas Commissioners was established in 1885. From these beginnings was evolved our present Department of Public Utilities with its powers of supervision over such chartered public utility corporations as gas and electric companies, water companies, railroad corporations, street railway companies and telephone and telegraph companies. There are engaged in some form of public utility operation under the jurisdiction of the department 366 companies, persons, associations and municipalities. The department studies the problems of these companies and gives assistance where possible to them and to the public served by them. Special investigations and reports to the legislature are made when necessary, complaints received and hearings held. A special report of the department to the legislature on transpo. tion facilities in the metropolitan district is of great interest, resulting, as it did, in the formation of a Division of Metropolitan Planning in the Metropolitan District Commission.

HIGHWAY AND HARBOR PLANNING

The Department of Public Works grew from the Board of Harbor Commissioners established in 1866 and the Massachusetts Highway Commission established in 1893. It now has two divisions with planning powers clearly established,-the Division of Highways and the Division of Waterways and Public Lands.

The Division of Highways is empowered to advise and coöperate with local governments in the construction of public ways; to maintain and repair state highways, to erect guide-posts, to care for trees, and to prepare highway maps; to regulate billboards; to collect information relative to the geological formation of the commonwealth, so far as it relates to materials for road-building; and to take land by eminent domain on behalf of the Commonwealth. In addition to its work of road-building, widening, tree-planting, and advice to municipalities, the Division of Highways has drawn up a five-year program for highway work and a program for strengthening or rebuilding the many inadequate bridges of the state. At the end of the year 1922 the total length of state highways was 1,440.121 miles. For construction of state highways alone $2,883,592.54 was spent in 1922. The division has made rules and regulations for the control of billboards, has issued licenses and permits and has set apart four scenic highways on which billboards will be forbidden.

Out of 17 local ordinances and by-laws submitted by cities and towns, two have received the approval of the division.

The Division of Waterways and Public Lands is empowered to take charge of the lands, rights in lands, flats, shores and all rights in tide waters belonging to the commonwealth; to develop Boston harbor; to improve and preserve rivers and harbors; and to take and hold real estate and build thereon, and to lease wharves and piers. Work of this division includes pier improvement, filling and improvement of flats, harbor dredging, river improvement and shore protection by sea-walls. Reclamation of the province lands is being carried on. A study has been made of the great ponds in the commonwealth not under the jurisdiction of any other state department.

PLANNING FOR HEALTH

The importance of health was early recognized and the Board of Health and Vital Statistics was established in 1869. The act establishing this board read in part as follows: "They shall make sanitary investigations and inquiries in respect to the people, the causes of disease, and especially of epidemics and the sources of mortality and the effects of localities, employments, conditions and circumstances on the public health." Through various stages this board has developed into the Department of Public Health. Its powers, so far