DUXBURY - October 27 - The Duxbury Selectboard endorsed a draft fiscal year 2027 operating budget totaling approximately $105 million on Monday evening, advancing two distinct budget scenarios designed to address the town’s financial challenges following last year’s failed override attempt. The 5A “level services” budget represents a 5.29 percent increase over the current year, while the 5B budget seeks additional funding to restore positions and services cut after voters rejected the override in 2024.
The Full Story
Town Manager René Read and Finance Director Mary MacKinnon presented the draft fiscal year 2027 budget to the Selectboard during an extended evening session, outlining stark choices facing the community. The presentation emphasized that while the 5A budget maintains current reduced service levels, it represents an unsustainable path that could lead to more severe cuts in fiscal year 2028 and potential burnout among overworked staff.
The budget development process began over the summer when the board met four times between May and July to establish priorities following the override defeat. According to Read, the board’s August 5 budget message acknowledged that “the failed override has highlighted the need to prioritize essential services and ensure that our limited resources are allocated effectively and efficiently. This will require additional sacrifices across the organization and may impact our ability to maintain the high quality services that Duxbury residents expect.”
The board identified four key priorities: funding compulsory fixed and shared costs including debt service, pension assessments, and health insurance; maintaining current staffing levels in police, fire, and highway departments; preserving core educational services while limiting the school budget increase to no more than 3 percent over fiscal 2026 levels; and identifying necessary reductions across all departments.
The 5A budget includes two police officers and two firefighter-paramedics that were funded through stabilization funds at a June special town meeting, restoration of two highway department positions that were subject to reductions in force, a 10 percent increase in health insurance costs totaling $871,000, a 9.7 percent increase in electricity costs, a 17 percent increase in natural gas costs, and a 3 percent placeholder for the school department pending their November 5 budget presentation.
MacKinnon explained that the current 5A budget allows the town to operate only at reduced service levels, including the library closed on Sundays year-round, slower permitting and seasonal work, reduced Selectboard meetings, and Town Hall closed to the public on Fridays. She emphasized that the town closed a significant deficit gap through adjustments to local receipt estimates and employee attrition.
The town anticipates significant revenue adjustments, with local receipts estimates increasing by $383,000 since the board’s September discussion. However, MacKinnon cautioned that some revenue estimates for the transfer station and beach permits were reduced because fee increases have not yet been approved by the board. A fee hearing is scheduled for December to address potential increases.
Debt service represents a major component of the budget increase, with the fiscal 2027 budget showing a 1.62 percent increase for voter-approved debt-excluded projects. The town has issued $21 million in debt financing for the new DPW facility out of $27.4 million authorized, and $11.485 million for the seawall project out of $15 million authorized after rescinding $5 million when bids came in lower than expected. The seawall project also received a $3 million grant, of which $1.6 million has been received with the remainder submitted for reimbursement.
MacKinnon presented detailed information showing that exempt debt will drop significantly in 2038 when the middle school and high school debt is fully paid. For the seawall project, 25 percent of debt service will be assessed as betterments to properties benefiting from the project, beginning with fiscal 2027 tax bills. The betterment revenue will offset the debt exclusion costs.
Fixed costs are driving much of the budget increase. Beyond labor costs, which represent 54 percent of the total budget, health insurance represents an $871,000 increase at a projected 10 percent rate increase. The Plymouth County Retirement Association assessment increased 7.48 percent to $7.09 million. MacKinnon explained that Plymouth County and other contributory retirement systems are in a catch-up period to fund unfunded pension liabilities, with Plymouth County’s schedule extended to 2031 after previously targeting 2029. Once that obligation is complete, the town should see a significant drop in the $7 million annual expense.
Medicare costs, property insurance, utilities, and building maintenance also contribute to the increases. The budget includes $140,000 in additional funding across departments for buildings and grounds supplies and services. Finance Committee Chair Betsy Sullivan addressed the board during public comment, emphasizing the unsustainability of current staffing levels and the dedication of town employees who are working six to seven days per week to maintain services.
“There is no department that is adequately staffed,” Sullivan told the board. “We have department heads that are working every weekend. This isn’t just like a real run for the roses to get a big thing done. We’re talking to make the deadlines that we are legally obligated. They’re working. Our salaried employees are working six days a week and sometimes partially seven. And it’s not sustainable. They will not stay.”
The proposed 5B budget addresses needs not met under 5A and includes restoration of four full-time and two part-time positions subject to reductions in force, addition of seven full-time and one part-time new positions, and various critical expenses. Specific 5B requests include: restoration of an administrative assistant in the town manager’s office, restoration of the assistant town accountant position vacant since July 1, restoration of a part-time benefits specialist who retired, an additional $47,000 for enhanced cybersecurity measures including security information and event management and extended detection and response systems, two additional full-time police patrol positions, two firefighter-paramedic positions, a full-time civil engineer position for the DPW with expertise in drainage and coastal issues, restoration of the lands and natural resources position, a part-time custodian for the new DPW facility, restoration of Sunday hours at the library, a full-time assistant beach operations manager, funding for the Care Solace mental health assistance program, and a part-time position for the home-delivered meals program at the Senior Center.
IT Director Mike explained that the cybersecurity enhancements in 5B are critical components of the town’s security posture, noting that the average cost of a breach in 2025 is $2 million, with at least 12 Massachusetts municipalities experiencing incidents costing over $1 million. The town secured a grant to fund implementation in the first year, with the 5B request providing sustainability for the program.
DPW Director Sheila Sgarzi advocated strongly for the civil engineer position, explaining that the town currently pays consultants for work that could be done in-house. She cited the Washington Street sidewalk project where the town is paying a consultant $89,600 for construction administration services at just 24 hours per week. Sgarzi indicated that at least 25 percent of the engineer’s salary could be funded through the Water Enterprise Fund, as the position would support water infrastructure projects and help address PFAS issues.
Recreation Director Steve Studley defended the proposed assistant beach operations manager position, noting that the beach generated $1.3 million in revenue in fiscal 2025 but cost $1.4 million to operate, resulting in a net deficit of $129,000 when including the $1 million beach lease. Studley explained that current staffing is unsustainable and that a full-time assistant would provide succession planning and reduce reliance on part-time seasonal staff. He also noted that the snowy owl season last winter cost $22,000 in unexpected part-time salaries but generated $37,000 more in off-season sticker sales.
The aquatics director position at Percy Walker Pool, included in the 5A budget at $28,000, generated discussion. Studley explained that the Aqueducts program brings in almost $118,000 of the pool’s total $270,000 revenue, representing 45 percent of receipts. A full-time employee had been running the program essentially for free as part of other duties, but that arrangement proved unsustainable. The pool costs approximately $500,000 to operate when including salaries and expenses.
Selectboard member Amy MacNab expressed concerns about adding costs to programs already operating at a deficit, while Selectboard member Cynthia Ladd Fiorini questioned why the position was included in 5A rather than 5B. Town Manager Read explained the decision was based on the significant revenue the program generates and the risk of losing that revenue if the position were not funded.
Senior Center Director Joanne Moore presented the request for a full-time home-delivered meals manager position, noting that the program delivered 13,269 meals last year representing 51 percent of total meal production, up from under 3,000 meals when the program started in 2003 with 19 hours of weekly staffing. The program provides not only meals but wellness checks and socialization for homebound residents. Moore indicated that the program generates revenue that exceeds food costs, with the Senior Center returning $112,585 to the general fund last year against an $80,000 food budget, though the full cost including benefits was not explicitly calculated.
The Care Solace mental health assistance program, currently funded by the Friends of the Council on Aging for a pilot period, would require $10,000 in town funding as part of a $29,000 line item that also includes training and food service budget increases. Superintendent Danielle Klingaman spoke favorably about the school department’s experience with Care Solace, explaining that it provides connections to therapists accepting patients and eliminates the weeks or months of lag time families previously experienced. The program provides monthly data analytics reports breaking down categories of mental health support sought and measures substance abuse assistance, potentially making it eligible for opioid settlement funding.
Selectboard Chair Brian Glennon emphasized the importance of sustainability in budget planning, referencing Hanover’s experience where an override passed but the town continues to face financial challenges. He stated that last year’s approach of a multi-year sustainable budget should remain the guiding principle. However, the board agreed that incorporating school department figures and understanding full fiscal year 2027 implications should precede any multi-year projections.
The school department will present its proposed budget to the school committee on November 5, with a public hearing scheduled for December 10. The town manager is scheduled to present a balanced budget to the Selectboard on December 15 incorporating all department requests and school figures. The budget presented Monday represents approximately one-third the size of last year’s override request, according to Read.
Selectboard member Fernando Guitart, participating remotely, stated that the 5A budget reflects the board’s stated priorities and that he fully supports it while having detailed clarifying questions. Glennon echoed that assessment, stating “mission accomplished” on the 5A budget representing board priorities while expressing cautious optimism about presenting the 5B budget to voters.
The meeting also addressed state legislative action and community developments. Glennon thanked residents who attended the MassDOT bridge meeting and acknowledged a letter from the Webster Island Association expressing appreciation for the seawall project. He noted that Police Sergeant Chris Mori is retiring after a 38-year career, with a formal ceremony scheduled for Friday. Glennon also thanked State Representative Ken Sweezey for filing three bills intended to improve summer recreational beach access related to piping plover and tern guidelines, restrictions on beach access mitigation tools, and over-sand vehicle restrictions.
Why It Matters
The draft fiscal 2027 budget represents a critical juncture for Duxbury following last year’s override defeat. Residents will ultimately decide whether to support additional funding through an override vote or accept significantly reduced services and risk losing experienced staff to burnout. The 5A budget allows basic operations to continue but at levels town officials and the Finance Committee describe as unsustainable, while the 5B budget seeks to restore positions and services deemed essential. The decisions made will affect everything from public safety staffing to library hours, beach access, infrastructure maintenance, and the town’s ability to attract and retain qualified employees. With the school department budget still forthcoming and representing approximately half the town’s total spending, the full scope of the fiscal challenge and the ask to voters will become clearer in the coming weeks.
Meeting Minutes
Key Motions & Votes
Motion: To enter executive session pursuant to General Laws Chapter 30A Section 21A(2) to conduct strategy sessions in preparation for negotiations with non-union personnel (town manager) and reconvene in open session at approximately 6:30 p.m. Outcome: Approved. Vote: Unanimous (5-0 roll call vote with Fernando Guitart remote). Timestamp: 8:48
Motion: To approve the October 6, 2025 Selectboard Executive Session Minutes B regarding non-union personnel town manager with contents to be released. Outcome: Approved. Vote: Unanimous. Timestamp: 2:33:20
Motion: To approve the October 10, 2025 Selectboard Executive Session Minutes B regarding non-union personnel town manager with contents to be released. Outcome: Approved. Vote: Unanimous. Timestamp: 2:33:38
Motion: To adjourn the meeting. Outcome: Approved. Vote: Unanimous. Timestamp: 2:33:58
Public Comment
Finance Committee Chair Betsy Sullivan addressed the Selectboard during the budget discussion, emphasizing the unsustainable nature of current staffing levels across all town departments. Sullivan stated that department heads are working six to seven days per week to meet legal obligations and deadlines, and that salaried employees are experiencing significant burnout. She cautioned that the 5A budget, while balanced, does not adequately staff departments and risks losing qualified employees. Sullivan praised the dedication of town staff who continue to provide high-quality services despite being significantly overworked. No other public comments were made during the designated open forum or throughout the meeting.
What’s Next
The school department will present its proposed fiscal year 2027 budget to the school committee on November 5, 2025, with discussion scheduled for November 19 and a public hearing on December 10. The town manager is scheduled to present a balanced fiscal year 2027 budget to the Selectboard on December 15, 2025, incorporating the school department figures and all departmental requests. The Selectboard will hold a fee hearing in December to consider increases for transfer station permits, beach stickers, and other municipal fees. Capital budget requests will be reviewed by the Fiscal Advisory Committee beginning in November. The Finance Committee will continue meeting with department heads to review budget submissions. The final budget will be presented to voters at a future town meeting, likely including an override question for the 5B components.