The Boston Water and Sewer Commission (BWSC) was created by the Boston Water and Sewer Reorganization Act of 1977, c. 436 (Act). Pursuant to the Act, the water and sewer divisions of the Department of Public Works of the City of Boston (City) were abolished and the powers and duties thereof transferred to BWSC. BWSC is charged with improving and maintaining the water and sewer systems for the benefit of the residents of the City in order to increase their commerce, welfare and prosperity and to improve their living conditions. The Act empowers BWSC to charge and collect fees for the provision of its local services. BWSC is authorized to exercise all of the powers and privileges of, and is subject to the limitations upon, cities and towns as provided by the laws of the commonwealth.
BWSC Commission members are appointed by and may be removed by the Mayor of the City, subject to approval by the City Council. Although the Act does not specify whether BWSC employees are municipal employees, the Act does provide that BWSC members are deemed to be "special municipal employees" for purposes of G.L. c. 268A. The Act also provides that all BWSC employees are subject to the residency and voting registration requirements as would apply to such employees if employed by the City. In the event of the dissolution or termination of BWSC, title to all funds and other properties held by BWSC vest in the City.
1. Are BWSC employees "state employees" or "municipal employees for the purpose of G.L. c. 268A?
2. Are BWSC employees subject to the financial disclosure requirements of G.L. c. 268B, s.5?
1. BWSC employees are "municipal employees" for the purposes of G.L. c. 268A.
2. No.
1. Jurisdiction under G.L. c. 268A
G.L. c. 268A, the Massachusetts conflict of interest law, is applicable to all public employees whether they serve at the municipal, county, or state level We conclude that BWSC is a municipal agency as that term is defined in c. 268A, s.1(f)[1] This conclusion is based primarily upon: (i) the essentially local character of BWSC's power and the services it provides, (ii) the City's control of (iii) BWSC's power to collect local revenues:[4] (iv) the fact that BWSC's yearly surpluses, if any, must be paid over to the City to appropriate as it deems necessary (Section 7(f); and (v) the fact that title in BWSC's property vests in the City upon BWSC's dissolution (Section 19). Also significant are the Act's designation of BWSC members as "special municipal employees" (Section 19), the fact that BWSC's original employees were transferred from the City (Section 5), and the residency requirements applicable to BWSC's current employees (Section 4). Given BWSC's essentially local character, and the nature of BWSC's statutory responsibilities, the Commission concludes that BWSC is a municipal agency for purposes of G.L. c. 268A. Accordingly BWSC's employees are municipal employees subject to the conflict of interest provisions of c. 268A.[6] This conclusion is consistent with In the Matter of Edward G. Brooks, 1981 State Ethics Commission 149, in which a BWSC collection clerk was found to be a "municipal employee" for purposes of G.L. c. 268A because of BWSC's essentially local character. Page 253
2. Jurisdiction under G.L. c. 268B
The mandatory financial disclosure requirements of G.L. c. 268B apply to any individual who holds a major policy-making position in a "governmental body.", G.L. c. 268B, s.1(h) defines a "governmental body" as any state or county agency, authority, board, bureau, commission, council, department, division or other entity. Section 1(h) excludes from the statutory definition of governmental body any city, town or municipal agency. For the reasons stated in section one of this opinion, we conclude that BWSC is a municipal agency and therefore is not a governmental body under G.L. c. 268B. See, e.g., EC-COI-FD-87-1; 86-1; 79-3. Accordingly, because BWSC is not a governmental body for purposes of c. 268B, BWSC employees are not subject to the financial disclosure requirements of G.L. c. 268B, s.5.