When a Town, City or the State Controlled the Water: The Massachusetts Tort Claims Act
If the drowning happened at a town beach, a state park or a municipal pool, chapter 258 of the General Laws of Massachusetts, known as the Massachusetts Tort Claims Act, sets the rules for a claim against a public employer, meaning a government body responsible for the employee whose act or omission is in question.
Under section 4 of chapter 258, a lawsuit cannot begin unless the claimant "first presented his claim in writing to the executive officer of such public employer within two years after the date upon which the cause of action arose," and the claim was finally denied in writing, sent by certified or registered mail, or as the section otherwise provides. If the officer does not deny the claim in writing within six months of presentment, or the claim is not resolved under section five, the statute treats it as finally denied. For a city or town, presentment is sufficient if made to officials including the mayor, city manager, town manager, city or town clerk or city solicitor; for the Commonwealth and its agencies, presentment to the attorney general is sufficient. Separately, "No civil action shall be brought more than three years after the date upon which such cause of action accrued." The section sets different rules for claims relating to the sexual abuse of a minor.
For a family, this written presentment is a separate step that comes in addition to the deadline for filing suit, so a claim against a public body involves two clocks rather than one.
Section 2 of chapter 258 makes public employers liable "in the same manner and to the same extent as a private individual under like circumstances," but not for interest before judgment, punitive damages, or "any amount in excess of $100,000," with an exception for serious bodily injury claims against the Massachusetts Bay Transportation Authority. That limit applies to public employers only.
Whether a particular beach, pool or agency counts as a public employer is a legal question. If you are unsure who ran the water, a family may weigh finding out which town, city or state agency managed the site and which official would receive a written claim; an attorney can help confirm both.