A survey of the personnel programs of the smaller cities of Southern California
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A SURVEY OF THE PERSONNEL PROGRAMS OF THE SMALLER CITIES OF SOUTHERN CALIFORNIA
A Thesis P re s e n te d to th e F a c u l ty o f the School o f P u b lic A d m in is tr a tio n U n iv e r s ity of Southern C a lif o r n i a
In P a r tia l F u lfillm e n t o f t h e R e q u i r e m e n t s f o r t h e D e g re e M aster o f S cien ce i n P u b lic A d m in is tr a tio n
by R o b e r t M. C a r r a s c o May 1950
UMI Number: EP64479
All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion.
Dissertation Publishing
UMI EP64479 Published by ProQuest LLC (2014). Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code
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This thesis, written by
.................. iLo£er.t..M*.-.Qar.raac.a....................
,
under the guidance of h.iJ9L.. Faculty Committee and approved by all its members, has been presented to and accepted by the Council on Graduate Study and Research in partial fulfill ment of the requirements for the degree of
_______
Maja.tar_...o.f....S.CLi.anc.a...l.n.............. .................
D ate.............................................................
Faculty Committee
TABLE OP CONTENTS CHAPTER I.
PAGE INTRODUCTION .......................................................... Im portance o f the su rv e y • ' • • • •
1
The s u r v e y p r o c e d u r e •
2
Review o f P r e v i o u s S u r v e y s • • II.
•• •
3
SURVEY PROCEDURE .................................................
6
S electio n of E sse n tial P ractices
• •
6
S e l e c t i o n o f S u rv e y Method . . . . .
9
L i m i t a t i o n s on t h e Number o f C i t i e s .
9
Time o f t h e S u r v e y • • • . • • • • • III.
1
11
THE EXTENT OF CIVIL SERVICE AND PERSONNEL DEPARTMENTS C iv il S ervice
.............................
• • • • • • • • • • •
C i v i l S e r v i c e Commissions O ffic ia ls1 attitu d es service C e n tra l Personnel
•
•• •
13 14 16
toward c i v i l . . . . . .
17
Departm ents . . .
18
P erso n n el departm ents i n n o n - c i v i l serv ice c i t i e s
• • • • • • • • •
18
Personnel d ir e c to r s in c i t i e s w ith c i v il serv ice
• • • • . * • • •
19
C l e r i c a l and t e c h n i c a l s t a f f s
• •
20
O ffic ia l personnel records
•• •
20
•
CHAPTER IV .
PAGE THE USE OP POSITION CLASSIFICATION PLANS.
22
Types o f C l a s s i f i c a t i o n P l a n s • • • . , .
22
No p l a n
.......................................................... 22
Inform al c l a s s i f i c a t i o n plan
• • • •
23
F orm al c l a s s i f i c a t i o n p l a n
• • • • •
23
E x te n t o f C l a s s i f i c a t i o n P lans
. . . .
23
C l a s s i f i c a t i o n p l a n s an d c i v i l s e r v i c e ................................................................... 25
V.
K eeping t h e p l a n c u r r e n t .......................
26
I n s t a l l i n g agencies
26
• • • • • • • • •
PAY PLANS IN THE CITIES SURVEYED
. . . .
29
• • • • • • • • • •
30
S a la ry ordinance only • • • • • • • •
30
Types o f Pay P l a n s
I n f o r m a l p a y p l a n .................................................31 F o rm al p a y p l a n • • • • ............................ The E x t e n t o f Pay P l a n s i n t h e C i t i e s
V I.
31 •
31
D i s t r i b u t i o n among t h e t y p e s o f p l a n s
31
The i n s t a l l i n g a g e n c y • • • . • • • •
33
Pay r e c o m m e n d a tio n s t o c i t y c o u n c i l s .
34
RECRUITMENT AND SELECTION........................................36 T esting • . . • • • . • • • • • • • • •
38
C i v i l s e r v i c e an d t e s t i n g • • • • • •
38
T estin g agency
38
O ral t e s t s
. . • • • • • • • • •
• » • • • • ............................
I n v e s tig a tio n of A pplicants • • • • • •
41 41
iv CHAPTER
PAGE The i m p o r t a n c e o f i n v e s t i g a t i o n s Incom plete d a ta
• • • •
• • • • • • • • • • • •
P r e - e m p lo y m e n t M e d i c a l E x a m i n a t i o n s
41 42
• . •
43
Im portance o f m edical exam inations • • •
43
E x te n t o f m edical exam inations i n the survey • • • • • • • • * • » • » • • • F i n g e r p r i n t i n g ........................
44
. . . . . . . . •
44
E x t e n t o f t h i s p r o c e d u r e . .............................
46
P h o t o g r a p h s ♦ .............................................................
46
.
The v a l u e o f f i n g e r p r i n t i n g a p p l i c a n t s
44
The a d v a n t a g e o f r e q u i r i n g p h o t o g r a p h s •
46
The e x t e n t o f t h i s r e q u i r e m e n t i n t h e c i t i e s surveyed
* .....................................
— —* V e t e r a n s 1 P r e f e r e n c e .................................
47 47
The meaning o f t h e t e r m
• • • • • • • •
47
O p in io n s o f a u t h o r i t i e s
..................................
48
E x ten t of the p r a c t i c e • • • • • • • • •
49
O th e r t y p e s o f p r e f e r e n c e
........................
49
R e s i d e n c e R e q u i r e m e n t s • ......................................
50
E x planation of the requirem ents
• • • •
50
R esidence re q u ire m e n ts i n th e c i t i e s
V II.
s u r v e y e d ...................................................................
51
SUBSIDIARY FUNCTIONS.....................................................
52
P r o m o t i o n s ........................................................................
53
V
CHAPTER
PAGE The p ro b le m s i n v o l v e d The u s e o f t e s t s
.............................
53
...........................................
53
Employee e f f i c i e n c y r a t i n g s i n p r o m o t i o n
54
S e n i o r i t y c r e d i t s i n prom otions • •
••
55
=* •
56
D ischarge Procedures Types o f p r o c e d u r e s ..................................
56
D i s c h a r g e by a d m i n i s t r a t i v e d i s c r e t i o n .
56
W ritte n charges f i l e d by departm ent h e a d s .................................................................. Employee a p p e a l s a g a i n s t d i s c h a r g e G rievance Procedures
57 ••
57
...........................................
58
The i m p o r t a n c e o f t h e s e p r o c e d u r e s
••
58
G rievance proced u res i n the c i t i e s s u r v e y e d ..................................................... Employee o r g a n i z a t i o n s
• •
Employee E f f i c i e n c y R a t i n g s
59
........................ • ...................
59
•
60
Methods o f r e c o g n i z i n g t h e e f f i c i e n t e m p l o y e e s .....................................................
60
The u s e o f r a t i n g s i n t h e c i t i e s s u r veyed
.....................................................
61
The c a u s e s o f t h i s s c a r c i t y o f r a t i n g p l a n s ..................................................................
61
Employee R e t i r e m e n t • ...........................................
63
The o p e r a t i o n o f a r e t i r e m e n t s y s t e m
63
•
CHAPTER
PAGE E x te n t o f r e t i r e m e n t system s i n th e c i t i e s s u r v e y e d ...........................................
64
Membership i n t h e S t a t e Employees R e t i r e m e n t S ystem ......................................
65
S i c k L e a v e ........................ ......................................
65
................................................
65
d efin itio n
S ick le a v e p r a c t i c e s i n the c i t i e s surveyed
.....................................................
65
V a c a t i o n s ............................. .... .................................
67
V acation p r a c t i c e s
............................. ....
O t h e r F u n c t i o n s ......................................
67 67
H e a l t h i n s u r a n c e .............................. . *
68
Group l i f e i n s u r a n c e p l a n s
68
T r a i n i n g p ro g ra m s • •
• • • • *
..................................
Employee r e c r e a t i o n p l a n s ................... .... C r e d it unions
. .
.................................
.
6969 69
Employee s u g g e s t i o n p l a n s • ....................
69
Employee s a f e t y p rogram s
• ...................
70
Handbooks f o r em ployees .............................
70
R e c o g n itio n of long m e r ito r io u s s e r v i c e ..............................................................
70
C h e ck in g o f p a y r o l l s by t h e p e r s o n n e l departm ents
......................................
M atern ity leav e of absence
....................
71 72
v ii CHAPTER
PAGE R e q u i r i n g a doc t o r Ts c e r t i f i c a t e a f t e r
V III.
s ic k leav e or le av e of absence • * . .
72
........................
74
..................................
74
CONCLUSION . . . . . . . . . . . R e s u lts o f the Survey
•
The e x t e n t o f p e r s o n n e l p r a c t i c e s In te rp re ta tio n of re s u lts Employee p a r t i c i p a t i o n
. . .
.............................
74 76
• • • • • • • • •
77
Growth o f r e t i r e m e n t s y s t e m s • • • • • •
77
Employee r e l a t i o n s
78
• • • • •
........................
The u s e o f th e t e c h n i c a l s e r v i c e s o f o th e r agencies • • • • • •
........................
79
Why t h e P e r s o n n e l P r a c t i c e s Vary • • . • ♦
80
The I m p o r t a n c e o f t h e P e r s o n n e l F u n c t i o n s ,
84
S m all c i t i e s c a n make u s e o f p e r s o n n e l p r o g r a m s .....................................
84
The c o s t o f p e r s o n n e l p ro g ra m s • • • • •
86
S t e r e o t y p e s as f a c t o r s o f o p p o s i t i o n • •
86
The b e l i e f t h a t c i t y c o u n c i l s s h o u ld manage p e r s o n n e l .....................................
87
The e f f o r t s o f c i v i l o r g a n i z a t i o n s t o p ro m o te m u n i c i p a l p e r s o n n e l pro g ra m s • R e c o m m e n d a t i o n s ....................... Use o f o t h e r a g e n c i e s
• • • • • • • • •
88 89 89
The u s e o f p a r t - t i m e p e r s o n n e l d irecto rs
• • • •
.................... • • • • •
90
v iii CHAPTER
PAGE The d e v e l o p m e n t o f employe© p a r t i c i p a tio n in personnel p o lic y fo rm ulation
92
E lim in a te the p r e p a r a t i o n o f t e s t s by u n tra in e d persons • • • • • • • • . .
93
Take t h e a d m i n i s t r a t i o n o f c i v i l s e r v i c e from e l e c t e d o f f i c i a l s Summation ........................ APPENDIX A
• • •
. . . . . . . . . .
.......................
94 94 96
APPENDIX B ...............................................................................................
97
......................................................................................
98
BIBLIOGRAPHY
ix
LIST OP. TABLES
TABLE I. II.
PAGE C i v i l S e r v ic e i n th e C i t i e s Surveyed •
IV .
....................................................
C i v i l S e r v i c e and C l a s s i f i c a t i o n P l a n s
V I.
• •
25
............................
28
E x t e n t o f Pay P l a n s i n t h e C i t i e s S u rv e y e d
32
A g e n c ie s I n s t a l l i n g Pay P l a n s i n t h e C i t i e s Surveyed
V II.
24
A g e n c i e s I n s t a l l i n g t h e F o rm al C l a s s i f i c a t i o n Plans
V.
15
E x t e n t o f C l a s s i f i c a t i o n P l a n s i n th e C i t i e s Surveyed
III.
• •
..................................
33
Source o f T ests i n the C i t i e s w ith C i v i l S e r v i c e ...................................................
40
V III.
S e l e c t i o n P r a c t i c e s i n the C i t i e s Surveyed
45
IX.
E x t e n t o f R e t i r e m e n t S y s t e m s .............................
64
CHAPTER I INTRODUCTION The p u r p o s e o f t h i s s u r v e y was t o d e t e r m i n e t h e d e g r e e t o w h ic h t h e s m a l l e r c i t i e s o f s o u t h e r n C a l i f o r n i a h a v e a d o p t e d t h e m e r i t p r i n c i p l e and e s t a b l i s h e d p e r s o n n e l practices*
I t was n o t made t o e v a l u a t e t h e q u a l i t y o f t h e
p e r s o n n e l s e r v i c e s , b u t was d e s i g n e d m e r e l y t o f i n d o u t w hether s ta n d a rd p ro ced u res a r e p r a c tic e d *
In a d d itio n , i t
was i n t e n d e d t o r e v e a l w h e t h e r c i v i l s e r v i c e s y s t e m s h a v e b e e n e x t e n s i v e l y a d o p t e d i n t h e s m a l l e r c i t i e s , an d i f have n o t ,
they
to a s c e r t a i n what o t h e r p e r s o n n e l systems a r e i n
use* A s e c o n d a r y p u r p o s e o f t h e s u r v e y was t o d e t e r m i n e how t h e s m a l l e r c i t i e s a c c o m p l i s h t h e t e c h n i c a l f u n c t i o n s o f p e rso n n e l program s. such as t h e s e j
The a n s w e r s w ere s o u g h t t o q u e s t i o n s
What p r o v i s i o n s h a v e t h e s m a l l e r c i t i e s made
to c a r r y on t h e t e c h n i c a l f u n c t i o n s ?
Have t h e y b e e n f o r c e d
to h i r e s k i l l e d t e c h n i c i a n s , d e s p i t e the c o s t?
Have t h e y
b e e n a b l e t o s e c u r e t h e a s s i s t a n c e o f l a r g e r a g e n c i e s , who possess s ta f f s of tra in e d tech n ician s?
Have t h e y a t t e m p t e d
to perform th e se te c h n ic a l task s w ith such u n tr a in e d persons a s w ere a v a i l a b l e ? Im portance o f the s u rv e y *
Pew s u r v e y s h a v e b e e n made
2
w h ic h g i v e t h e a n s w e r s t o t h e s e q u e s t i o n s .
On t h e w h o le ,
t h e g e n e r a l p u b l i c knows l i t t l e a b o u t t h e p e r s o n n e l p r a c t i c e s of the s m a l l e r c i t i e s o f s o u th e r n C a l i f o r n i a . t h e y a r e o b s c u r e d by t h e l a r g e r a g e n c i e s ,
A pparently
such as th e C i ty -
an d t h e County o f Los A n g e l e s , w h ich h a v e h a d c i v i l s e r v i c e f o r a l o n g p e r i o d o f tim e ( t h e C i t y s i n c e 1903 an d t h e County s i n c e 19131 ) . The s u r v e y p r o c e d u r e *
Very l a r g e an d v e r y s m a l l
c i t i e s were e l i m i n a t e d from t h e s u r v e y i n o r d e r to s e c u r e a more n e a r l y homogeneous g ro u p *
An a d d i t i o n a l l i m i t a t i o n was
th e n e c e s s i t y f o r th e i n v e s t i g a t o r to r e s t r i c t th e l i s t to t h o s e c i t i e s w i t h i n f i f t y m i l e s o f t h e Los A n g e l e s C i t y H a l l * The c i t i e s r a n g e from t h o s e l o c a t e d i n h i g h l y i n d u s t r i a l i z e d a r e a s , s u c h a s H u n t i n g t o n P a r k an d S o u t h G a t e , t o t h o s e i n a g r i c u l t u r a l a r e a s , s u c h a s S a n t a Ana an d C o lto n * Many a r e s a t e l l i t e s o f Los A n g e l e s , w h i l e o t h e r s , f a r t h e r away, a r e t h e m a r k e t i n g c e n t e r s f o r r e g i o n s o f c o n s i d e r a b l e size.
Some a r e b e a c h o r r e s o r t tow ns; s t i l l o t h e r s a r e
alm ost e n t i r e l y r e s i d e n t i a l *
The c i t i e s s u r v e y e d a r e a mixed
g r o u p i n te rm s o f t h e g e n e r a l c h a r a c t e r i s t i c s o f t h e i r population. A ppendix A l i s t s
the c i t i e s su rv ey ed , t h e i r p o p u la tio n s ,
3- C i v i l S e r v i c e A sse m b ly , C i v i l S e r v i c e A g e n c i e s i n t h e Uni t e d S t a t e s —A 1940 C e n s u s . ( C h i c a g o , C i v i l S e r v i c e A ssem bly o f t h e U n i t e d S t a t e s an d C a nada , J u l y , 1940)* 59 p p .
3 an d t h e number o f p e r s o n a em ployed b y each*
p
The l a r g e s t
was B u rb a n k w i t h 7 2 , 5 8 8 p e o p l e ; t h e s m a l l e s t was San M arino w ith a p o p u la tio n o f 10,500.
S a n t a M onica, w i t h 8 0 0 , had
t h e m o s t em ployees o f t h e c i t i e s s u r v e y e d , w h i l e Hermosa Beach, w i t h f o r t y - f o u r , had th e f e w e s t . P e rso n n e l p r a c t i c e s a c c e p te d by prom inent a u t h o r i t i e s w ere com bined i n t o a c h e c k l i s t . each o f the t h i r t y - f o u r c i t i e s I.
Then a v i s i t was made t o
t o be s t u d i e d .
REVIEW OF PREVIOUS SURVEYS
The few p r e v i o u s s u r v e y s o f p e r s o n n e l p r a c t i c e s i n s o u th e rn C a l i f o r n i a have covered o n ly l i m i t e d p h ases o f th e problem .
Some h av e h a d s p e c i a l i z e d p o i n t s o f v ie w r e s u l t i n g
i n c o n c l u s i o n s o f r e s t r i c t e d v a l u e t o a d m i n i s t r a t o r s and stu d en ts.
O thers have been o f such g e n e r a l n a t u r e t h a t t h e i r
r e s u l t s c a n n o t be a p p l i e d t o an y s p e c i f i c s i t u a t i o n . ^T he I n d u s t r i a l R e la tio n s S ectio n o f the C a lif o r n i a I n s t i t u t e o f T ec h n o lo g y made a s u r v e y o f c e r t a i n p e r s o n n e l p r a c t i c e s i n Los A n g e l e s C o u n ty d u r i n g 1947, c o v e r i n g b o t h p r i v a t e and p u b l i c a g e n c i e s P r a c t i c e s
in v estig ated
2 See A p p en d ix A. 3 R i c h a r d 0 . S e n s o r a n d Mary F a i t h M a r t i n , S u r v e y o f P e r s o n n e l P r a c t i c e s i n Los A n g e l e s C ounty a s o f A u g u s t 1947. B u l l e t i n No. 1 4 , I n d u s t r i a l R e l a t i o n s S e c t i o n , C a l i f o r n i a I n s t i t u t e o f T e c h n o lo g y , P a s a d e n a 4 , C a l i f .
1,
4 i n c l u d e d t h o s e o f s h i f t d i f f e r e n t i a l s , h o l i d a y p a y , work s c h e d u l e s , premium p a y , and u n i o n m e m b e r s h ip .
Most o f t h e s e
p r a c t i c e s a r e s e t b y S t a t e la w f o r m u n i c i p a l i t i e s ; c o n s e q u e n t l y , l i t t l e new i n f o r m a t i o n i s p r o v i d e d . Two l a t e r s u r v e y s o f s e l e c t e d p e r s o n n e l p r a c t i c e s i n p r i v a t e i n d u s t r y w ere made b y t h e M e r c h a n t s 1 a n d M a n u f a c t u r e r s * A s s o c i a t i o n o f Los A n g e le s i n O c t o b e r 1948^ an d May 1949,® S i n c e t h e s e s t u d i e s w ere r e s t r i c t e d t o p r a c t i c e s i n p r i v a t e in d u stry ,
t h e i r r e s u l t s a re o f valu e f o r com parative
purposes only. E ach y e a r t h e C a l i f o r n i a League o f C i t y Employees* A s s o c i a t i o n s c o n d u c t s a s u r v e y o f b e n e f i t s and w o rk in g c o n d i t i o n s i n C a l i f o r n i a c i t i e s w i t h member a s s o c i a t i o n s , ® The v a l u e o f t h e s e s u r v e y s t o t h e s t u d e n t i s l i m i t e d by two facto rs
i
(1) t h e y c o v e r t h e e n t i r e s t a t e , a n d ( 2 ) c i t i e s
w i t h o u t r e p r e s e n t a t i o n i n t h e League a r e n o t i n c l u d e d . D espite these f a c t o r s ,
th e su rv ey s can be v e r y u s e f u l f o r
com parative p u rp o s e s , A s tu d y d e a l i n g w ith the so u rc e s o f t e c h n i c a l a s s i s t a n c e
4 Community S u r v e y o f S e l e c t e d P e r s o n n e l P r a c t i c e s i n t h e Los A n g e le s ^ r e a , O c t o b e r 1 9 4 8 , M e r c h a n t s * an d M a n u f a c t u r e r s * A s s o c i a t i o n o f Los A n g e l e s , Unpaged ( m i m e o , ) , ® S p e c i a l Survey o f S e l e c t e d P e rs o n n e l P o l i c i e s i n th e Los A n g e le s A r e a . May 1 9 4 9 , M e rc h an ts* a n d M a n u f a c t u r e r s * A s s o c i a t i o n o f Los A n g e l e s , Unpaged ( m i m e o , ) , ® S u r v e y o f B e n e f l t s an d Working C o n d i t i o n s . A p r i l 1 9 4 9 , C a l i f o r n i a League o f C i t y E m p l o y e e s 1 A s s o c i a t i o n s , 4 p p . ( m i m e o . )
was made by F r e d G. W h ite J r . i n 1941.
7
I t d e t a i l e d the growth
o f t h e s e r v i c e r e n d e r e d b y Los A n g e le s C o u n ty t o t h e c i t i e s w ithin i t s b o rd ers.
However, s i n c e t h e C o u n ty c a n n o t g i v e
a s s i s t a n c e to c i t i e s i n n e ig h b o rin g c o u n t i e s ,
t h e s t u d y does
n o t d e s c r i b e t h e s i t u a t i o n i n t h e whole s o u t h e r n C a l i f o r n i a area.
F urtherm ore,
c i v i l service
th e s tu d y i s concerned p r i m a r i l y w ith the
t e s t i n g f u n c t i o n , w hich i s o n l y p a r t o f t h e
t o t a l p e rso n n e l program . Q
A l a t e r s u r v e y by J u d i t h N. J a m i s o n , i n 1944 , o f a l l s o u r c e s o f t e c h n i c a l a s s i s t a n c e t o c i t i e s i n t h e Los A n g ele s a r e a , was more c o m p r e h e n s i v e i n s c o p e .
I t showed t h a t c i t i e s
r e c e i v e h e l p i n s o l v i n g t h e i r t e c h n i c a l p e r s o n n e l p r o b le m s f ro m s e v e r a l s o u r c e s .
A l t h o u g h t h i s s t u d y was p r i m a r i l y
c o n c e r n e d w i t h c i v i l s e r v i c e t e s t i n g , em ployee r e t i r e m e n t a d m i n i s t r a t i o n was a l s o c o n s i d e r e d .
^ I*16 C o n t r a c t Method o f F u r n i s h i n g P e r s o n n e l S e r v i c e t o S m a ll C i t i e s i n Los A n g e le s C o u n t y , ( u n p u b l i s h e d M a s t e r 1s t h e s i s , The U n i v e r s i t y o f S o u t h e r n C a l i f o r n i a , Los A n g e l e s , 1941). 8 ’’I n t e r g o v e r n m e n t a l C o o p e r a t i o n i n P u b l i c P e r s o n n e l A d m i n i s t r a t i o n ” , S t u d i e s i n L o c a l G o v e rn m e n t. No. 8 , B ureau o f Government R e s e a r c h , U n i v e r s i t y o f C a l i f o r n i a a t Los A n g e l e s , 1 944, 107 p p .
CHAPTER I I SURVEY PROCEDURE The f i r s t s t e p i n making t h e s u r v e y was to s e l e c t t h e p r a c t i c e s w h ich c o m p e t e n t a u t h o r i t i e s a g r e e a r e e s s e n t i a l f a c t o r s i n a p u b l i c p e r s o n n e l program .
These
p r a c t i c e s o r p r o c e d u r e s w ere com bined i n t o a m im eographed check l i s t . stu d ied .
The n e x t s t e p was to s e l e c t t h e c i t i e s
t o be
Use o f t h e p e r s o n a l i n t e r v i e w method s h a r p l y
l i m i t e d t h e number o f c i t i e s w h ic h c o u l d be v i s i t e d . I.
SELECTION OP ESSENTIAL PRACTICES
An e x a m i n a t i o n o f t h e w r i t i n g s i n t h e f i e l d of p u b l i c p e r s o n n e l management r e v e a l e d t h a t a u t h o r i t i e s d i f f e r w i d e l y a s t o t h e e l e m e n t s t o be i n c l u d e d i n a c o m p r e h e n s i v e l i s t o f personnel p r a c tic e s .
T h a t t h e p r o b l e m i s a common one i s
shown b y t h e f o l l o w i n g s t a t e m e n t by Henry P . Hubbards I t is d o u b tfu l.. . i f a p erfect l i s t of c la s s ific a tio n o f such elem ents has e v e r r e c e iv e d g e n e r a l a c c e p ta n c e by p r a c t i t i o n e r s o r s t u d e n t s i n the f i e l d . The p r o b le m was r e s o l v e d by t a k i n g two l i s t s ,
one v e r y
d e t a i l e d a n d t h e o t h e r v e r y b r o a d , and. w o rk in g up a c h e c k
1 ffThe E le m e n ts o f a C o m p re h e n siv e P e r s o n n e l P r o g r a m ” , P u b l i c P e r s o n n e l R e v iew . 1 : 1 , J u l y , 1 9 4 0 .
7 l i s t from them. The d e t a i l e d l i s t o f e s s e n t i a l p e r s o n n e l f u n c t i o n s , t a k e n fro m Mosher an d K i n g s l e y , ^ i s a s f o l l o w s : 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20. 21. 22. 23. 24. 25. 26.
C lassific atio n --ju risd ic tio n a l C la s s ific a tio n —d u ties R ecru itin g S e le c tio n , exam ination, in v e s t i g a t i o n certificatio n P robation S ervice ra tin g s T ransfer Prom otions R e in s t a t e m e n t T ra in in g and e d u c a tio n A ttendance c o n tro l S eparations D iscip lin e A p p e a ls C o m p e n s a tio n C h e c k in g o f p a y r o l l s S u p e r a n n u a t i on G r i e v a n c e s an d s u g g e s t i o n s H e a lth , w e l f a r e , and r e c r e a t i o n Work e n v i r o n m e n t C o o p e r a t i o n o f em ployees C ooperation o f ex e cu tiv e p e rso n n e l R u l e s an d r e g u l a t i o n s I n v e s t i g a t i o n o f o p e r a t i o n o f t h e law R esearch and s t a t i s t i c s Public r e l a t i o n s
The l i s t o f b r o a d g e n e r a l f u n c t i o n s i s
t h a t o f the
P u b lic A d m in is tr a tio n S e rv ic e i n i t s pam phlet P e rso n n e l Program s f o r S m a l l e r C i t i e s Thes e f u n c t i o n s a r e :
2 J . D o n a ld K i n g s l e y and W i l l i a m E . M o sh e r, P u b l i c P e r s o n n e l A d m i n l s t r a t i o n (New York a n d Londons H a r p e r s an d B ro th e rs , 1941), p . 90. 3 P e r s o n n e l Program s f o r S m a l l e r Ci t i e s . P u b l i c A d m i n i s t r a t i o n S e r v i c e P u b l i c a t i o n No. 7 3 . C h i c a g o , I l l i n o i s , 1940. p . 5 .
8 1. A s t a t u t e , c h a r t e r p r o v is io n , or ordinance form ing th e l e g a l b a s i s f o r th e m e r i t sy stem . The b a s i c law s h o u l d e s t a b l i s h an a g e n c y to a d m i n i s t e r t h e p e r s o n n e l p r o g r a m and s h o u l d d e c l a r e t h e g e n e r a l p r i n c i p l e s t h a t a r e to u n d e r l i e the a c t i o n s o f the a g e n c y and i t s r u l e s and r e g u l a t i o n s . 2 . A p o s i t i o n 'c l a s s i f i c a t i o n plan t h a t is b a s e d upon d u t i e s an d r e s p o n s i b i l i t i e s a c t u a l l y b e i n g d i s c h a r g e d b y p u b l i c e m p l o y e e s . The c l a s s s p e c i f i c a t i o n s w h ic h compose t h i s p l a n a r e u s e d i n r e c r u i t m e n t, i n t h e e s t a b l i s h m e n t o f wage an d s a l a r y r a t e s , i n making p r o m o t i o n s , d e m o t i o n s , a n d t r a n s f e r s and i n a d m i n i s t e r i n g a t r a i n i n g p r o g r a m . 3 . A c o m p e n s a t i o n o r pay p l a n t h a t i s b a s e d upon t h e s a l a r y a n d wage l e v e l s p r e v a i l i n g i n c o m p a r a b l e p u b l i c s e r v i c e and i n p r i v a t e b u s i n e s s , upon t h e f i n a n c i a l c o n d i t i o n o f t h e m u n i c i p a l i t y , an d upon i t s s o c i a l r e s p o n s i b i l i t y a s a n e m p l o y e r . The c o m p e n s a t i o n p l a n , i n t e g r a t e d w i t h t h e c l a s s i f i c a t i o n p l a n , s e e k s t o g i v e e q u a l pay f o r e q u a l w o rk . 4 . A r e c r u i t m e n t pro g ra m b a s e d upon open com petitive exam inations. The p u r p o s e o f t h i s p ro g ra m i s t o p r o v i d e t h e c i t y w i t h t h e m o s t c o m p e t e n t e m ployee s a v a i l a b l e . 5 . P rocedures f o r d eterm ining prom otions, dem otions, t r a n s f e r s , l a y - o f f s , su s p e n s io n s , d i s m i s s a l s , an d r e t i r e m e n t s ; f o r r a t i n g t h e r e l a t i v e e f f i c i e n c y o f em ployees; and f o r prom oting th e h e a l t h and w e l f a r e o f em ployees. These p r o c e d u r e s s h o u l d be t e s t e d by t h e c r i t e r i a o f t h e i r c o n t r i b u tio n s to the m aintenance o f a c a r e e r s e r v i c e f o r p u b l i c e m p l o y e e s , an d t o e f f i c i e n t a d m i n i s t r a t i o n . A c h e c k l i s t was made from b o t h o f t h e ab o v e l i s t s . Only t h o s e f u n c t i o n s a p p e a r i n g on b o t h l i s t s w ere u s e d , a l t h o u g h c e r t a i n a d d i t i o n a l i t e m s were i n c l u d e d , t o b e u s e d i n g a t h e r i n g d a ta needed to f u l f i l l th e se co n d ary purpose o f the su rv ey ;
9 II.
SELECTION OF SURVEY METHOD
The p e r s o n n e l i n t e r v i e w m ethod was s e l e c t e d f o r two reasons.
F i r s t , more d e t a i l e d a n d more a c c u r a t e i n f o r m a t i o n
c o u l d b e o b t a i n e d b y t h i s m e th o d .
Second, th e l i m i t e d
number o f c i t i e s i n t h i s r e g i o n w ould make i t d i f f i c u l t t o g e t a n a c c u r a t e sam ple b y t h e m a i l e d q u e s t i o n n a i r e m e th o d . I n a d d i t i o n , r e c e n t q u e s t i o n n a i r e s u r v e y s h av e n o t r e c e i v e d en o u g h r e t u r n s t o i n s u r e a c c u r a t e r e s u l t s . ^ J u d g i n g from t h e comments o f one c i t y m anager d u r i n g the su rv e y ,
t h i s was a f o r t u n a t e c h o i c e .
He r e m a r k e d t h a t
he h a d t h r e e q u e s t i o n n a i r e s on h i s d e s k ; e a c h w ould t a k e a d a y t o f i l l o u t , end he s i m p l y d i d n o t h a v e t h a t much tim e to s p a re .
By c o n t r a s t , h i s i n t e r i v e w i n t h i s s u r v e y d i d n o t
l a s t more t h a n t w e n t y m i n u t e s , s i n c e h i s c i t y was one o f t h e s m a l l e s t s u r v e y e d an d h a d d e v e l o p e d o n l y an e x t r e m e l y l i m i t e d number o f p e r s o n n e l f u n c t i o n s . III.
LIMITATIONS ON THE NUMBER OF CITIES
S i n c e t h e p e r s o n a l I n t e r v i e w method was t o b e u s e d , i t was m a n i f e s t l y i m p o s s i b l e t o v i s i t a l l t h e c i t i e s i n s o u t h e r n C alifo rn ia.
T herefore, In o rd er to secu re a r e p r e s e n ta ti v e
4 F o r e x a m p le , t h e d i r e c t o r o f t h e C a l i f o r n i a I n s t i t u t e o f T e c h n o lo g y S u r v e y s t a t e d t h a t l e s s t h a n h a l f o f t h e f i r m s p o lle d r e tu r n e d the q u e s t i o n n a i r e s .
10
sam ple, c e r t a i n a r b i t r a r y c r i t e r i a were u s e d as to th e c itie s
to be s u rv e y e d . 1.
These w e r e j
C i t i e s m u s t b e s i x t y m i l e s o r l e s s fro m t h e Los
A n g e le s C i t y H a l l * 2.
C i t i e s m ust have an e s t i m a t e d p o p u l a t i o n between
1 0 , 0 0 0 and 1 0 0 , 0 0 0 , i n o r d e r to e l i m i n a t e t h e v e r y s m a l l an d t h e v e r y l a r g e c i t i e s *
P o p u l a t i o n e s t i m a t e s w ere t a k e n
fro m t h e 1948 R o s t e r o f S t a t e * C o u n t y , M u n i c i p a l , and Township O f f i c i a l s , i s s u e d by t h e C a l i f o r n i a S e c r e t a r y of S tate* ^ A c o u n t o f t h e t o t a l number o f i n c o r p o r a t e d c i t i e s w i t h i n l i m i t a t i o n number one r e v e a l e d t h a t t h e r e w ere s i x t y - s e v e n c i t i e s s i x t y m i l e s o r l e s s fro m t h e C i t y H a l l . A p p l i c a t i o n o f l i m i t a t i o n number two r e d u c e d t h e number o f citie s
t o be s u r v e y e d t o t h i r t y - f o u r . 0 c i t i e s a p p e ars i n th e A ppendix.
A l i s t o f these
T h is l i s t i n c l u d e s a l l o f t h e c i t i e s i n Los A n g e l e s , O ra n g e , an d R i v e r s i d e C o u n t i e s w h ich w ere w i t h i n t h e l i m i t a tio n s s ta te d above.
A n Qf t h e c i t i e s i n San B e r n a r d i n o
County, e x c e p t one, were w i t h i n t h i s r a n g e .
S ince th e re
a r e no c i t i e s i n O ra n g e , R i v e r s i d e , a n d San B e r n a r d i n o
® P r a n k M. J o r d a n , R o s t e r o f S t a t e . C o u n t y , C i t y , and Township O f f i c i a l s o f t h e S t a t e o f C a l i f o r n i a ( Sacram en t o ; S ta te P r in tin g O ffic e , 1948). 6 See A p p e n d ix A.
C o u n ties w hich have p o p u la tio n s e s tim a te d to he la r g e r than 100,000 t h i s su rv ey re a c h e d th e m ajor c i t i e s i n th o se co u n ties.
N i n e t e e n c i t i e s i n Los A n g e le s C ounty w e r e n o t
i n c l u d e d i n t h i s s u rv e y b e c a u s e t h e i r p o p u la tio n s were e i t h e r too l a r g e o r to o sm all* 7 IV .
TIME OP THE SURVEY
E ac h c i t y was v i s i t e d d u r i n g t h e p e r i o d e x t e n d i n g f ro m A p r i l 2 1 , 1949 t o May 2 7 , 1 9 4 9 .
Only t h r e e o r f o u r c i t i e s
w ere v i s i t e d e a c h day and no o t h e r work was done d u r i n g t h o s e d a y s , i n o r d e r t h a t s u f f i c i e n t tim e c o u l d b e d e v o t e d to th e su rv e y .
The r e s u l t s o f t h e s u r v e y a p p l y o n l y t o t h a t
p e r i o d an d a l l c o n c l u s i o n s drawn f ro m t h e s u r v e y s h o u l d b e c o n s i d e r e d w i t h t h i s tim e l i m i t a t i o n i n m in d . A r e s p o n s i b l e c i t y o f f i c i a l was c o n t a c t e d I n e a c h c i t y i f p o s s i b l e , he was t h e p e r s o n i n c h a r g e o f t h e p e r s o n n e l program .
I f he was b u s y o r o u t o f town, an a s s i s t a n t , a
s e c r e t a r y , o r t h e p e r s o n n e l c l e r k was i n t e r v i e w e d .
I n some
i n s t a n c e s i t was n e c e s s a r y to make a r e t u r n v i s i t t o m e e t w i t h an o f f i c i a l who h a d b e e n a b s e n t on t h e p r e v i o u s v i s i t . I t was e m p h a s i z e d i n t h e i n t e r v i e w t h a t t h e s u r v e y was a q u a n t i t a t i v e s t a t i s t i c a l a p p ro a c h and n o t an a tte m p t to e v a l u a t e t h e q u a l i t y o f t h e p e r s o n n e l p r o g ra m o f t h e c i t y
See A p p e n d ix B.
12
being surveyed.
S u b s t a n t i a l l y t h e same q u e s t i o n s were
a s k e d a t e a c h c i t y on e a c h p h a s e o f t h e p e r s o n n e l p r o g r a m . As t h e q u e s t i o n s w ere a n s w e r e d a n o t a t i o n o r c h e c k was p l a c e d on t h e c h e c k l i s t .
Employment f i g u r e s w ere a s k e d
f o r on t h e b a s i s o f a n e s t i m a t e o r t h e m o s t r e c e n t c o u n t .
CHAPTER I I I THE EXTENT OP CIVIL SERVICE AND PERSONNEL DEPARTMENTS The f i r s t m a j o r f u n c t i o n o f a p u b l i c p e r s o n n e l p r o g ra m w h ic h was i n v e s t i g a t e d a t t h e b e g i n n i n g o f e a c h i n t e r v i e w was t h e e x i s t e n c e o f a c i v i l s e r v i c e p r o g r a m o r a .fo rm a l personnel departm ents
In each c i t y c i v i l s e r v ic e
was e x p l a i n e d a s b e i n g a s y s t e m o f s e l e c t i o n b y m e r i t , a s d e t e r m i n e d b y w r i t t e n e x a m i n a t i o n s o r o t h e r o b j e c t i v e means, a n d t h e p r o h i b i t i o n o f t h e d i s c h a r g e o f p e r m a n e n t em p lo y ee s f o r p o l i t i c a l o r s i m i l a r r e a s o n s *1 T h is d e f i n i t i o n was a m p l i f i e d to i n c l u d e t h e f a c t t h a t c i v i l s e r v i c e i s b a s e d upon a s t a t u t e , a c h a r t e r p r o v i s i o n , o r an o r d i n a n c e e s t a b l i s h e d by the v o te r s o f th e c ity *
T h is l e g a l p r o
v i s i o n s p e c i f i e s t h e m ethod o f a d m i n i s t r a t i o n an d g r o u n d s f o r d i s c h a r g e o f p e r m a n e n t em p lo y ee s* A f o r m a l p e r s o n n e l d e p a r t m e n t was d e f i n e d a s a d e p a r t m e n t e s t a b l i s h e d by t h e c i t y c o u n c i l t o a c t a s a c e n t r a l employment a g e n c y f o r t h e c i t y , records,
to m a in ta in p erso n n el
t o a d m i n i s t e r t h e c l a s s i f i c a t i o n and p a y p l a n , and
t o a d v i s e t h e c i t y c o u n c i l on p e r s o n n e l m a t t e r s .
^This
q u e s t i o n was a s k e d a s a means o f c h e c k i n g on t h e e x i s t e n c e o f a ffm e r i t s y s t e m ” , w h ic h i s d i f f i c u l t t o d e t e r m i n e s i n c e i t i s b a s e d on t h e s p i r i t o f a p p o i n t m e n t b y m e r i t r a t h e r
14 t h a n b y t h e l e t t e r o f t h e la w a s I n a c i v i l s e r v i c e s y s t e m . I f a p e r s o n n e l d e p a r t m e n t was i n e x i s t e n c e w i t h o u t c i v i l s e r v i c e t h e n t h e c i t y was b e l i e v e d t o h a v e t r i e d t o e s t a b l i s h a m e rit system . I.
CIVIL SERVICE
The a n s w e r s t o t h e q u e s t i o n on t h i s s u b j e c t r e v e a l e d t h a t c i v i l s e r v i c e a s d e f i n e d above h a s b e e n a c c e p t e d a s a f u n c t i o n o f p e rs o n n e l a d m i n i s t r a t i o n by a m a j o r i t y o f th e c i t i e s surveyed.
Tw enty-tw o o f t h e t h i r t y - f o u r c i t i e s h a d
i n s t a l l e d a c i v i l s e r v i c e system .^-
These c i t i e s h a d 5 , 3 0 5
em ployees, o r s e v e n ty and f i v e - t e n t h s p e r c e n t o f th e t o t a l number o f e m ployee s i n a l l o f t h e c i t i e s s u r v e y e d .
These
f i g u r e s a r e shown i n T a b le I . Four a d d i t i o n a l c i t i e s o f the t h i r t y - f o u r surveyed had a c i v i l s e r v i c e system f o r s p e c i f i c d e p a r t m e n t s - - u s u a l l y t h e f i r e and p o l i c e d e p a r t m e n t s - - a l t h o u g h one c i t y i n c l u d e d t h e em ployees o f t h e s t r e e t d e p a r t m e n t .
R i v e r s i d e had
i n s t a l l e d a m ethod o f employment w i t h t h e m a j o r c h a r a c t e r i s t i c s o f c i v i l s e r v i c e f o r i t s f i r e an d p o l i c e d e p a r t m e n t s , b u t d i d n o t c a l l i t ”c i v i l s e r v i c e ” .
The em p lo y ee s o f t h e s e
d e p a r t m e n t s w ere s e l e c t e d by e x a m i n a t i o n a n d c o u l d be
1 T h is r e f e r s o n l y t o f o r m a l c i v i l s e r v i c e s y s t e m s vo te d i n by th e e l e c t o r a t e .
TABLE I CIVIL SERVICE IN THE CITIES SURVEYED Number of Employees
Per ce n t of T otal
Number of Cl t i e s
Per cent of To t a l
8
23.5
1982*
26.3
W ith C i v i l S e r v ic e
22
64.7
5305
70.5
C iv il S ervice in a few d e p a r t m e n t s
4
11.8
237
3.2
Typo W ithout C i v i l S e rv ic e
&
This f i g u r e i n c l u d e s t h o s e f u l l - t i m e p e r m a n e n t em p lo y ee s i n d e p a r t m e n t s e x c l u d e d from c i v i l s e r v i c e i n a l l ei t i e s •
16 d is c h a r g e d o n ly a f t e r w r i t t e n ch a rg e s had been f i l e d w ith the p o lic e or f i r e b o a rd s.
A lthough R iv e r s id e d id n o t l i s t
t h e s y s t e m a s c i v i l s e r v i c e , i t was i n c l u d e d i n t h i s g r o u p . E ig h t o f th e t h i r t y - f o u r c i t i e s had n o t e s t a b l i s h e d a c i v i l s e r v i c e s y s t e m a t t h e tim e o f t h e s u r v e y .
1,092
e m p l o y e e s , o r t w e n t y - s i x an d t h r e e - t e n t h s p e r c e n t o f t h e t o t a l number em ployed b y t h e t h i r t y - f o u r c i t i e s s u r v e y e d , w orked i n t h e s e c i t i e s and i n c e r t a i n d e p a r t m e n t s w h ic h w e r e exempt fro m c i v i l s e r v i c e i n t h e c i t i e s w h ic h h a d c iv il serv ice. C i v i l S e r v i c e C o m m is s i o n s .
S in ce the seco n d ary purpose
o f t h i s s u r v e y was t o d e t e r m i n e w h ere t h e c i t i e s o b t a i n e d the te c h n ic a l a s s i s t a n c e to m a in ta in t h e i r p erso n n el p ro g r a m s , a c h e c k was made o f t h e u s e o f a c i v i l s e r v i c e com m ission, as su c h , o u t s i d e o f th e c i t y . F ive o f the tw e n ty -s ix c i t i e s w ith f u l l or p a r t i a l c i v i l s e r v i c e h a d c o n t r a c t e d w i t h t h e Los A n g e le s C o u n ty C i v i l S e r v i c e Commission to p e r f o r m t h e f u n c t i o n s o f a c i v i l s e r v i c e com m ission.
T h ese f i v e c i t i e s were*
B ell,
Maywood, Redondo B e a c h , San F e r n a n d o , and S o u t h G a t e . I n the rem aining tw enty-one c i t i e s w ith a c i v i l s e r v i c e p r o g r a m t h e c i v i l s e r v i c e co m m is s io n s w ere a p p o i n t e d fro m among c i t i z e n s o f t h e c i t i e s b y t h e a p p o i n t i n g a u t h o r i t i e s , as s p e c i f i e d by th e e n a b lin g law .
T h is p r o b a b l y means t h a t
t h e c i v i l s e r v i c e c o m m issio n s r e f l e c t t h e v i e w p o i n t o f t h e
17 men who a p p o i n t e d them and does n o t n e c e s s a r i l y mean t h a t they a re t e c h n i c a l l y q u a lifie d * O f f i c i a l s 1 a t t i t u d e s toward c i v i l s e r v i c e * g e n e r a l i z a t i o n c a n h e made a b o u t t h e a t t i t u d e s
No v a l i d
to w a r d c i v i l
s e r v i c e d em o n strated by the o f f i c i a l s c o n t a c t e d i n th e c i t i e s , a n d no a t t e m p t was made d u r i n g t h e s u r v e y t o e l i c i t p e r s o n a l opinions*
Only a few p e r s o n s v o l u n t e e r e d r e m a r k s a b o u t
c i v i l s e r v i c e a n d , o f c o u r s e , no c o n c l u s i o n s s h o u l d be a t t e m p t e d on s u c h s l i g h t e v i d e n c e . However, i t s h o u l d b e n o t e d t h a t C i t y C l e r k s a r e o f t e n g i v e n t h e r e s p o n s i b i l i t y f o r m a i n t a i n i n g t h e p a p e r work connected w ith c i v i l s e rv ic e * T hese o f f i c i a l s a r e u s u a l l y o e l e c t i v e a n d c o n s e q u e n t l y do n o t come u n d e r t h e c i v i l rules* D u r i n g t h e s u r v e y one C i t y C l e r k s t a t e d t h a t o n l y t h e l a z y a n d i n c o m p e t e n t w a n te d c i v i l s e r v i c e , f o r t h e p r o t e c t i o n i t g a v e them.
T h is a t t i t u d e was n o t g e n e r a l , b u t t h e o v e r a l l
r e l a t i o n s h i p b e t w e e n c i v i l s e r v i c e and t h e c i t y a d m i n i s t r a t i o n i n t h e s m a l l c i t i e s s u r v e y e d was w e l l summed up by F r e d e r ic k E. P e i t z c h .
H© s a i d , r e g a r d i n g t h e r e s u l t s o f a
sim ila r n a tio n a l survey, Having c i v i l s e r v i c e may i n many c i t i e s mean t h a t t h e r e i s a g r o u p o f laymen c o n s t i t u t i n g a c i v i l s e r v i c e b o a r d t h a t m e e ts o c c a s i o n a l l y , w i t h
^ A r t i c l e I I , A c t 5 2 3 3 , p a r a g r a p h s 851 an d 8 5 2 , Government Code S t a t e o f C a l i f o r n i a . The c i t y c l e r k i s an electiv e o f f ic ia l in six th class c itie s of C a lifo rn ia.
18 th e day to day a d m i n i s t r a t i o n o f p e r s o n n e l m a t t e r s l e f t i n th e hands o f t h e f u l l - t i m e o f f i c i a l s . N o th in g more t h a n t h a t . 3 II.
CENTRAL PERSONNEL DEPARTMENTS
P erso n n el d ep artm en ts i n non- c i v i l s e r v i c e cl t i e s . In c o n t r a s t to the g e n e r a l a c c e p ta n c e o f c i v i l s e r v i c e by m o s t o f t h e c i t i e s s u r v e y e d , i t was f o u n d t h a t t h e c i t i e s w ith o u t c i v i l s e r v ic e have n o t e x t e n s iv e ly adopted c e n t r a l p e r s o n n e l d e p a r t m e n t s as a s u b s t i t u t i o n .
Only two c i t i e s
w i t h o u t c i v i l s e r v i c e , O n t a r i o an d F u l l e r t o n , h a v e v e n t u r e d to f o r m a l i z e t h e i r p e r s o n n e l p r o g r a m s . I n O n t a r i o t h e C i t y Manager a c t e d a s P e r s o n n e l D irecto r.
He a p p r o v e d t h e employment o f new w o r k e r s , he
r e v i e w e d t h e r e c o m m e n d a tio n s f o r t h e d i s c h a r g e o f em ployees by d e p a r t m e n t h e a d s , an d he was r e s p o n s i b l e f o r m aking pay r e c o m m e n d a tio n s t o t h e C i t y C o u n c i l .
The o f f i c i a l p e r s o n n e l
r e c o r d s w e r e m a i n t a i n e d by h i s s e c r e t a r y .
He m et w i t h
em ployees, i n d i v i d u a l l y o r i n g r o u p s , to d i s c u s s g r i e v a n c e s . I n F u l l e r t o n t h e C i t y T r e a s u r e r was d e s i g n a t e d a s P e r s o n n e l D i r e c t o r by t h e C i t y C o u n c i l .
T h is a c t i o n was
t a k e n a s h o r t tim e b e f o r e t h e i n t e r v i e w so t h e T r e a s u r e r was u n a b l e f u l l y t o d e f i n e t h e f u n c t i o n s a s s i g n e d t o h im .
3 " M u n i c i p a l P e r s o n n e l T rends i n 1 9 4 8 " , P u b l i c Management, 3 1 s 1 3 3 , May 1 9 4 9 .
19 However, a few w ere d e f i n i t e l y known*
The T r e a s u r e r f s
D epartm ent m a in ta in e d th e o f f i c i a l p e r s o n n e l re c o rd s *
A ll
p e r s o n s s e e k i n g employment w i t h t h e c i t y f i l e d a p p l i c a t i o n s w i t h t h i s d e p a r t m e n t f o r r e v i e w b y d e p a r t m e n t h ea d s*
The
employment o f new w o r k e r s an d t h e d i s c h a r g e o f i n c o m p e t e n t em p lo y ee s w ere l e f t t o t h e d i s c r e t i o n o f t h e d e p a r t m e n t heads*
A c l a s s i f i c a t i o n a n d p a y p l a n was d e v e l o p e d , b u t
t h e p r i v a t e f i r m w h ic h d e s i g n e d t h e p l a n h a s c o n t r a c t e d t o k e e p i t up t o d a t e *
A p p a r e n t l y t h e T r e a s u r e r a c t s as a
l i a i s o n o f f i c e r between t h i s f i r m and th e c i ty *
T h ere i s
no e x a m i n a t i o n p r o g r a m . P ersonnel d ir e c to r s in c i t i e s w ith c i v i l s e r v i c e * I n s m a l l c i t i e s w here c i v i l s e r v i c e h a s b e e n a d o p t e d th e p r o b l e m o f t h e employment o f a p e r s o n n e l d i r e c t o r t o a d m i n i s t e r th e program i s d i f f i c u l t to s o l v e .
T h is i s
true
even i f i t has been d e c id e d t h a t th e program w i l l c o n s i s t o n ly o f the form al f u n c tio n s o f r e c r u i t i n g , ex am in atio n , s c o r i n g , an d t h e p r o m u l g a t i o n o f e l i g i b l e l i s t s * The P u b l i c A d m i n i s t r a t i o n S e r v i c e h a s s e t f o r t h a guide f o r m unicipal a d m in is tra to rs to use in so lv in g th is problem .
I t i s s t a t e d as f o llo w s s
T h e o r e t i c a l l y , i t may b e a d v a n c e d t h a t a n y c i t y o r c o u n t y w i t h 500 o r more p u b l i c em ployees n e e d s a p e r s o n n e l d i r e c t o r , o r i t may b e s a i d t h a t a n y com m u n i t y o f more t h a n 7 5 , 0 0 0 p o p u l a t i o n r e q u i r e s t h e s e r v i c e s o f s u c h an o f f i c i a l . 4
4 P u b l i c A d m i n i s t r a t i o n S e r v i c e P u b l i c a t i o n No. 7 3 , o p * c i t . , p . 4*
20 I f t h e s e a s s u m p t i o n s a r e v a l i d , i t w o u ld f o l l o w t h a t t h e m a j o r i t y o f t h e c i t i e s i n t h i s s u r v e y w o u ld n o t n o r m a l l y employ p e r s o n n e l d i r e c t o r s .
The r e s u l t s o f t h e s u r v e y
h a v e shown t h i s t o h e t h e c a s e . P u l l - t i m e p e r s o n n e l d i r e c t o r s w ere f o u n d i n t h r e e o f t h e c i t i e s — S a n t a M o nic a, w i t h 800 e m p l o y e e s ; A lh a m b ra , w i t h 350 e m p l o y e e s ; an d B u r b a n k , w i t h 759 e m p l o y e e s .
San
B e r n a r d i n o , w i t h 569 e m p l o y e e s , d i d n o t h a v e a p e r s o n n e l d irec to r.
No o t h e r c i t y i n t h e s u r v e y w i t h 500 o r more
e m ployee s h a d e i t h e r a c i v i l s e r v i c e s y s t e m o r a m e r i t system f o r a l l em ployees; c o n s e q u e n tly a p e r s o n n e l d i r e c t o r was u n n e c e s s a r y . C l e r i c a l and t e c h n i c a l s t a f f s .
Two o f t h e c i t i e s
w i t h c i v i l s e r v i c e , S a n t a Ana and H u n t i n g t o n P a r k , h a d f u ll- tim e personnel c le r k s . h a d one a s s i s t a n t ; clerical assista n t.
In H untington Park th e c l e r k
t h e Alhambra P e r s o n n e l D i r e c t o r h a d one The P e r s o n n e l D i r e c t o r o f B urbank h a d
one t e c h n i c a l a s s i s t a n t an d t h r e e p e r s o n s on h i s c l e r i c a l sta ff.
I n S a n t a Monica t h e r e w ere two c l e r i c a l w o r k e r s and
one p a r t - t i m e m e d i c a l e x a m in e r i n t h e p e r s o n n e l d e p a r t m e n t . O ffic ia l personnel re c o rd s.
The q u e s t i o n o f t h e
l o c a t i o n o f o f f i c i a l p e r s o n n e l r e c o r d s was d i f f i c u l t t o d e a l w ith , e s p e c i a l l y i n those c i t i e s w ith o u t c i v i l s e rv ic e program s.
N e v e r t h e l e s s , i t was a s c e r t a i n e d t h a t f i f t e e n
c i t i e s m a i n t a i n t h e o f f i c i a l p e r s o n n e l r e c o r d s i n th e
21
o f f i c e of the c i t y c le r k ; in c lu d e d i n th is l i s t are c i t i e s w ith c i v i l service*
Two o t h e r c i t i e s d e p a r t e d from t h i s
p r o c e d u r e i n h a v i n g t h e c i v i l s e r v i c e c l e r i c a l work perform ed by c l e r k s i n the c i t y m a n ag er's o f f i c e , w ith c e r t a i n em p lo y ee s i n t h e c i t y c l e r k ’ s o f f i c e d e s i g n a t e d a s personnel c le r k s .
CHAPTER IV 'THE USE OF POSITION CLASSIFICATION PLANS The f l o o r i n g o f t h e p u b l i c p e r s o n n e l p r o g ra m i s p o sitio n c l a s s i f i c a ti o n p lan .
th e
T his p l a n i s e v o l v e d from
a s t u d y o f t h e work p e r f o r m e d i n a l l t h e p o s i t i o n s w h ic h a r e e i t h e r under c i v i l s e r v ic e or a re under the j u r i s d i c t i o n o f the p e r s o n n e l d e p a rtm e n t.
P o sitio n s w ith s im ila r d u tie s
a r e g r o u p e d t o g e t h e r i n t o c l a s s e s f o r w h ic h c l a s s d e s c r i p tio n s are w ritte n .
The a c t u a l p l a n i s made up o f t h e s e
w r i t t e n d e s c r i p t i o n s , an a l p h a b e t i c a l o r sc h e m a tic l i s t o f t h e c l a s s t i t l e s , an d a n a c c o u n t o f t h e m eth o d o f a d m i n i s t r a ti o n o f the p la n . X.
/
TYPES OP CLASSIFICATION PLANS
P re lim in a ry d is c u s s io n s w ith persons a c q u a in te d w ith the use o f c l a s s i f i c a t i o n plans by the s m a lle r c i t i e s r e v e a l e d t h a t t h e p l a n s w ould v a r y c o n s i d e r a b l y f ro m t h e i d e a l p la n as d e s c r i b e d above.
In o rd er to provide f o r th is
e x p e c t e d v a r i a n c e a g r o u p i n g o f t h r e e g r a d e s o f p l a n s was made; t h e g r a d e s r a n g e d from t h e v i r t u a l l y n o n - e x i s t e n t p l a n t o one embodying a l l t h e c h a r a c t e r i s t i c s o f a model p l a n . The f o l l o w i n g p a r a g r a p h s d e s c r i b e t h e s e t y p e s . No p l a n .
Employees i n t h e v a r i o u s d e p a r t m e n t s a r e
23 c a lle d d ep u ties, c le rk s, or a s s is ta n ts *
No w r i t t e n s t a t e
m ents o f d u t i e s e x i s t , an d t h e c i t y h a s n e i t h e r made a s u r v e y o f em ployee d u t i e s an d r e s p o n s i b i l i t i e s n o r em ployed o t h e r a g e n c i e s t o do so* Inform al c l a s s i f i c a t i o n p la n *
The c i t y a u t h o r i t i e s
have p e r c e i v e d th e need f o r a c l a s s i f i c a t i o n p l a n , b u t f o r one r e a s o n o r a n o t h e r h a v e n o t made a s u r v e y o f em ployee d u ties*
However, t h e c i t y m a n a g e r , t h e p e r s o n n e l d i r e c t o r ,
o r t h e c i v i l s e r v i c e co m m issio n h a s w orked o u t a r u d i m e n t a r y s y s t e m o f c l a s s t i t l e s i n an a t t e m p t t o s t a n d a r d i z e them th roughout the v a rio u s departm ents*
These t i t l e s h a v e b e e n
a d a p t e d fro m t h e p l a n s o f o t h e r c i t i e s ,
fro m s u r v e y s o f t h e
L eague o f C a l i f o r n i a C i t i e s , o r fro m some o t h e r s o u r c e *
No
w ritte n c la ss d e sc rip tio n s exist* F o rm a l c l a s s i f i c a t i o n p l a n *
A s p e c i a l su rv e y has
b e e n made o f t h e d u t i e s and r e s p o n s i b i l i t i e s o f c i t y em ployees* P o s i t i o n s h a v e b e e n g r o u p e d i n t o c l a s s e s , f o r w h ic h w r i t t e n d escrip tio n s exist*
The m ethod o f a d m i n i s t e r i n g t h e c l a s s
i f i c a t i o n p la n has been s e t f o r t h i n th e e n a b lin g o rd in a n c e or in the plan i t s e l f * II.
EXTENT OF CLASSIFICATION PLANS
T a b le I I p r e s e n t s t h e e x t e n t o f c l a s s i f i c a t i o n p l a n s fo u n d i n t h e c i t i e s s u r v e y e d *
Over o n e - h a l f o f t h e c i t i e s
had a fo rm a l c l a s s i f i c a t i o n p l a n , w h ile l e s s
than tw enty p e r
24
TABLE I I EXTENT OP CLASSIFICATION PLANS IN THE CITIES SURVEYED
Type o f P l a n
Number o f Cl t i e s
Per c e n t o f T otal
Number o f Employees
Per ce n t o f T otal
No p l a n
6
17.6
1,410
18.7
Inform al plan
9
26.5
1,292
17.2
19
55.9
4,822
64.1
F o rm a l p l a n T otals
34
100.
7,524
100.
c e n t w ere a t t h e o t h e r e x t r e m e , w i t h no c l a s s i f i c a t i o n p l a n . A s u b s t a n t i a l m a j o r i t y ( s i x t y - f o u r an d o n e - t e n t h p e r c e n t ) o f t h e e m p lo y ee s i n a l l t h e c i t i e s s u r v e y e d w ere w o r k i n g i n the c i t i e s having form al c l a s s i f i c a t i o n p la n s . C l a s s i f i c a t i o n p l a n s and c i v i l s e r v i c e .
A c la ssific
a t io n plan i s a b a s ic fu n ctio n of a c i v i l se rv ic e agency.
,
Mosher a n d K i n g s l e y , i n d e s c r i b i n g t h i s r e l a t i o n s h i p , s a y , "In i t s
Cthe c l a s s i f i c a t i o n p l a n ' s ] a b s e n c e t h e t a s k s o f
r e c r u i t m e n t an d s e l e c t i o n a r e a l l b u t i m p o s s i b l e o f a c c o m p l i s h m e n t . 11 B e c a u s e o f t h e i m p o r t a n c e o f t h e p l a n to e f f e c t i v e c i v i l s e r v i c e a t a b u l a t i o n was made o f t h e c i t i e s w i t h c i v i l s e r v i c e w h ic h h a d f o r m a l c l a s s i f i c a t i o n p l a n s . of th is
The r e s u l t s
t a b u l a t i o n a r e shown i n t h e t a b l e b e l o w . TABLE I I I CIVIL SERVICE AND CLASSIFICATION PLANS
Type o f C l a s s i f i c a t i o n P lan
Number o f C i t i e s w ith c i v i l se rv ic e
No p l a n
4
In fo rm a l plan
3
F o rm a l p l a n
15
I t can be observed t h a t alm o st t h r e e - q u a r t e r s o f th e
1 Mosher a n d K i n g s l e y , o p . c i t . . p . 4 3 8 .
26
c i t i e s w ith c i v i l s e r v i c e had a fo rm a l c l a s s i f i c a t i o n p l a n . K eeping t h e p l a n c u r r e n t . o u t o f d a t e soon a f t e r i t s
A c l a s s i f i c a t i o n plan is
i n c e p t i o n , and becomes e v e n more
s o a s tim e g o e s on I f c o n t i n u e d e f f o r t s a r e n o t d i r e c t e d t o w a r d making I t r e f l e c t t h e c h a n g i n g d u t i e s o f e m p l o y e e s . That t h i s i s as d i f f i c u l t as th e o r i g i n a l ta s k o f d ev elo p in g t h e p l a n i s shown b y t h e f o l l o w i n g s t a t e m e n t o f t h e P u b l i c A d m inistration S erv ice : A c o n s id e r a tio n o f the d i f f i c u l t i e s a t t e n d a n t upon m a i n t a i n i n g t h e c l a s s i f i c a t i o n p l a n i n d i c a t e s t h a t a s much t e c h n i c a l s k i l l a n d ju d g m e n t a r e r e q u ir e d i n i t s p ro p e r m aintenance as i n i t s p rep aratio n .2 A lthough t h i s m a t te r o f m a in ta in in g c l a s s i f i c a t i o n p la n s was c o n s i d e r e d i m p o r t a n t , no q u e s t i o n s w ere a s k e d i n t h e survey about e f f o r t s by the c i t i e s date.
t o k e e p t h e i r p l a n s up t o
The number o f e m p lo y ee s w o r k i n g i n t h e p e r s o n n e l o f f i c e
o f an y c i t y w ould seem t o r e f l e c t t h e amount o f tim e t h e d ep artm en t i s a b le to spend in th e m aintenance o f i t s c la s s if ic a tio n p lan . I n s ta ilin g ag en cies♦
In conform ity w ith the secondary
purpose of t h i s su rv ey (th e d e te rm in a tio n o f the so u rce of t e c h n i c a l a s s i s t a n c e f o r p e r s o n n e l p r o g ra m s i n t h e s m a l l e r c itie s),
t h e a g e n c i e s w h i c h i n s t a l l e d th e f o r m a l p l a n s were
2 P u b l i c A d m i n i s t r a t i o n S e r v i c e P u b l i c a t i o n No. 73, o p . c i t . , p. 17.
27 P re v io u s s u r v e y s , such as th o se o f Jam ison 3
ascertain ed . 4 an d W h ite , r e v e a l e d t h a t t h e c i t i e s r e l i e d c o n s i d e r a b l y upo n o u t s i d e a g e n c i e s t o d e v e l o p t h e i r c l a s s i f i c a t i o n p lans.
The r e s u l t s o f t h e p r e s e n t s u r v e y I n d i c a t e d t h a t
t h i s tr e n d has c o n tin u e d to the p r e s e n t tim e.
T a b le IV
p re se n ts a ta b u la tio n of these r e s u lt s # The a g e n c y i n s t a l l i n g
t h e g r e a t e s t number o f p l a n s
was t h e C o o p e r a t i v e P e r s o n n e l S e r v i c e s o f t h e S t a t e P e rs o n n e l Board; i t d ev elo p ed n in e o f th e n in e t e e n form al p la n s found In the c i t i e s .
P r i v a t e f i r m s made s i x s u r v e y s
fro m w h i c h p l a n s w ere d e v e l o p e d , w h i l e t h r e e o f t h e c i t i e s f o u n d i t f e a s i b l e to make t h e i r own p l a n s # Los A n g e l e s a l s o i n s t a l l e d one p l a n .
3 Jam ison,
0£.
c l t . » p . 22#
4 W hite, o p . c i t . . p . 53.
The C o u n ty o f
28
TABLE IV AGENCIES INSTALLING THE FORMAL CLASSIFICATION PLANS
I n s t a l l i n g Agency
Number o f P la ns
C ooperative P ersonnel S e rv ic e s , S t a t e P e r s o n n e l B o a rd
9
P riv a te firm s
6
S elf in s ta lle d
3
Los A n g e l e s C o u n t y TOTAL
__1 19
CHAPTER V PAY PLANS IN THE CITIES SURVEYED x
The t h i r d g e n e r a l f u n c t i o n o f p u b l i c p e r s o n n e l
agencies s e t f o r t h by the P ublic A d m in istra tio n S erv ice is th e c o n s t r u c t i o n and m ain ten an ce o f a com pensation p l a n , 1 Mosher an d K i n g s l e y e m p h a s iz e t h e i m p o r t a n c e o f t h i s f u n c tio n i n the fo llo w in g sta te m en ts I n t h e more p r o g r e s s i v e j u r i s d i c t i o n s t h e c i v i l s e r v i c e co m m issio n i s t h e employment a g e n c y a c q u a i n t e d w i t h t h e employment m a r k e t ; i t h a s t h e r e s p o n s i b i l i t y f o r s e t t i n g up t h e s a l a r y s c a l e s and s u b m i t t i n g them t o t h e a p p r o p r i a t i n g au th o r!ty .^ A lthough t h i s s ta te m e n t r e f e r s to c i v i l s e r v i c e a g e n c ie s , i t i s e q u a lly tr u e w ith r e s p e c t to agencies n o t p o sse ssin g c iv il serv ice. A c o m p e n s a t i o n o r pay p l a n i s an o r g a n i z e d an d p l a n n e d m e th o d o f c o m p e n s a t i n g e m p lo y ee s f o r t h e i r e f f o r t s *
I t is
u s u a l l y b a s e d u p o n t h e c l a s s i f i c a t i o n p l a n so t h a t p e r s o n s i n t h e same c l a s s o f p o s i t i o n s w i l l r e c e i v e t h e same r a n g e or sc a le of salary*
These s a l a r y r a n g e s s h o u l d i n c l u d e o n e ,
tw o, o r f i v e s t e p s o f p a y f o r e a c h p o s i t i o n * T
§ Supra, p. 7,
2 Mosher and K i n g s l e y , o p . cijb*, p . 95*
They a r e b a s e d
30 upon p r e v a i l i n g r a t e s , r a t e s d e r i v e d b y n e g o t i a t i o n w i t h em ployees i n d i v i d u a l l y o r i n g r o u p s , o r r a t e s w h ic h h a v e b e e n f o u n d to b e m o s t common f o r s i m i l a r p o s i t i o n s i n o t h e r cities*
At t h e b e g i n n i n g o f e a c h f i s c a l y e a r t h e s e r a t e s
and t h e t i t l e s o f t h e p o s i t i o n s r e c e i v i n g them a r e p u b l i s h e d i n the annual s a l a r y ordinance*
T h is o r d i n a n c e m u st be
a p p r o v e d by a m a j o r i t y o f t h e c i t y c o u n c i l p r i o r t o i t s p u b licatio n * The p a y p l a n s d e v e l o p e d b y t h e c i t i e s w e r e d e t e r m i n e d d u r i n g t h i s s u r v e y ; h o w e v e r, b e f o r e t h e s u r v e y i t was f o u n d t h a t a g r o u p i n g o f p a y p l a n s s i m i l a r t o t h a t made o f c l a s s i f i c a t i o n p l a n s w ould be n e c e s s a r y *
I n f o r m a t i o n was t h e n
r e c e i v e d d u r i n g t h e i n t e r v i e w s upon t h e e x t e n t o f t h e p a y p la n s i n th e c i t i e s s u rv e y e d , th e a g e n c ie s w hich i n s t a l l e d t h e pay p l a n , i f a n y , and t h e r o l e o f t h e c i v i l s e r v i c e co m m issio n o r t h e p e r s o n n e l d e p a r t m e n t i n m a i n t a i n i n g t h e pay p la n s • I.
TYPES OP PAY PLANS
F o l l o w i n g t h e a d v i c e o f t h o s e a c q u a i n t e d w i t h th e s a l a r y p o l i c i e s o f s m a l l c i t i e s , a g r o u p i n g was t y p e s o f pay p l a n s w h ic h m i g h t survey*
made o f t h e
be e n c o u n t e r e d d u r i n g t h e
These t y p e s a r e a s f o l l o w s : S a la ry ordinance o n ly *
There i s no o r g a n i z e d p l a n o f
p a y i n g e m ployee s a n d no a t t e m p t i s made t o g i v e e q u a l pay f o r
31 e q u a l work.
The o r d i n a n c e c o n t a i n s s i n g l e r a t e s f o r e a c h
p o s i t i o n i n each d e p a rtm e n t; o r , i f i t does c o n t a in r a t e s , t h e y m u s t h e a p p r o v e d e a c h y e a r by t h e c i t y c o u n c i l b e f o r e becom ing e f f e c t i v e .
No g e n e r a l s u r v e y s h a v e b e e n made on
w hich to b ase th e s e s a l a r y r a t e s . In fo rm al pay p l a n .
T h is p l a n i s c h a r a c t e r i z e d b y a
r o u g h a p p r o x i m a t i o n o f e q u a l p a y f o r e q u a l w o rk .
I t may o r
may n o t b e i n t e g r a t e d w i t h t h e c l a s s i f i c a t i o n p l a n .
The c i t y
m a n ag er o r t h e p e r s o n n e l d i r e c t o r h a s recommended t h e a d a p t a t i o n of the s a l a r y p la n s o f o th e r c i t i e s city .
to th e needs o f h is
Some p o s i t i o n s a r e p a i d a s a l a r y r a t e c o n s i s t i n g o f
s e v e r a l s t e p s , w hile o th e rs r e c e iv e s in g le r a t e s . F o rm a l pay p l a n .
A ll c l a s s i f i e d p o s itio n s a re placed
i n a s a l a r y plan c o n s is tin g o f s a l a r i e s f o r each p o s i t i o n w h ic h i n c r e a s e b y a c e r t a i n p e r c e n t a g e e a c h y e a r f o r a g i v e n number o f y e a r s .
T hese s a l a r i e s a r e b a s e d upon a s t u d y o f
p r e v a i l i n g r a t e s i n l o c a l p r i v a t e f i r m s an d n e i g h b o r i n g p ublic J u r is d ic tio n s .
The p a y p l a n i s d e r i v e d f r o m t h e
c l a s s i f i c a t i o n p lan . II.
THE EXTENT OF PAY PLANS IN THE CITIES
P i s t r i b u t l o n among t h e t y p e s o f p l a n s .
Table V
su m m arizes.th e r e s u l t s o f th e stu d y o f t h i s f u n c tio n i n th e citie s
surveyed.
Over one h a l f o f t h e em p lo y ee s w o r k i n g f o r
t h e c i t i e s i n c l u d e d I n t h e s u r v e y w orked i n c i t i e s w i t h
32
TABLE V EXTENT OF PAY PLANS IN THE CITIES SURVEYED
Type o f P l a n
Number o f Cl t i e s
S a la ry ordinance only
Per cen t o f T otal
Number o f Employees
Per c e n t o f T otal
9
26.5
1,532
20.4
In fo r m a l pay p la n
12
35*3
2,045
27*1
F o rm a l p a y p l a n
13
58.2
3«947
52.5
100.
7,524
TOTAL
34
100.
33 form al com pensation p l a n s , w h ile o n ly o n e - f i f t h o f the t o t a l worked i n c i t i e s h a v i n g no p l a n a t a l l .
T h is f i g u r e i s
i n f l u e n c e d by th e f a c t t h a t the l a r g e s t c i t i e s su rv ey ed had form al pay p l a n s , as i n d i c a t e d by the f ig u r e s #
The number o f
c i t i e s h a v i n g f o r m a l p l a n s was n e a r l y e q u a l t o t h e number o f th o se w ith in fo rm a l plans# The i n s t a l l i n g a g e n c y #
The s u r v e y r e v e a l e d t h a t t h e
c i t i e s d e p e n d e d upon o u t s i d e a g e n c i e s t o a g r e a t e x t e n t f o r t h e d e v e l o p m e n t o f t h e i r f o r m a l pay p l a n s # p lan s, of course, req u ired l i t t l e th e ir preparation#
The o t h e r t y p e o f
s k ille d assistan ce in
C h a r t VI below shows t h e a g e n c i e s
i n s t a l l i n g plans# CHART VI AGENCIES INSTALLING PAY PLANS IN THE CITIES SURVEYED
I n s t a l l i n g A gency
Number o f C i t i e s w i t h F o rm a l Pay P l a n s
C ooperative P ersonnel S e rv ic e s , S t a t e P e r s o n n e l B oard
6
P r i va t e f i rms
4
S elf in s ta lle d
J5
TOTAL
13
A g a in t h e C o o p e r a t i v e P e r s o n n e l S e r v i c e s h e a d s t h e l i s t i n t h e number o f f o r m a l p a y p l a n s i n s t a l l e d # s i x , w hile p r i v a t e firm s developed f o u r . i t p o s s i b l e t o make t h e i r own p l a n s .
I t developed
Three c i t i e s found
34 Pay r e c o m m e n d a tio n s to c l t y c o u n c i l s .
Each y e a r a t
b u d g e t p r e p a r a t i o n tim e c i t y c o u n c i l s r e c e i v e r e q u e s t s f o r i n c r e a s e s i n pay f o r i n d i v i d u a l e m p lo y ee s o r g r o u p s o f em ployees.
I n c i t i e s w i t h s a l a r y r a n g e s t h i s means r e q u e s t s
f o r h i g h e r r a n g e s f o r some c l a s s e s .
Sometimes t h e s e a r e
p r e s e n t e d by d e p a r t m e n t h e a d s a n d som e tim es by em ployee groups.
Then o c c a s i o n a l l y d u r i n g t h e f i s c a l y e a r d e p a r t m e n t
h e a d s f i n d t h e y a r e u n a b l e to f i l l p o s i t i o n s a t t h e s a l a r i e s o f f e r e d an d t h e y r e q u e s t i n c r e a s e s i n o r d e r t o a t t r a c t com petent p e o p le .
O ther re a s o n s g iv e n f o r the r e q u e s te d
i n c r e a s e s may i n c l u d e a s h o r t a g e o f t r a i n e d p e r s o n s i n c e r t a i n tech n ical f ie ld s ,
o r a ch a n g e i n d u t i e s o f em ployees o f s u c h
a n a tu re as to w arra n t in c re a s e d s a l a r i e s .
In a d d i t i o n to
t h e s e i n d i v i d u a l o r g r o u p r e q u e s t s t h e r e may b e a r e q u e s t by t h e em plo yee a s s o c i a t i o n f o r a g e n e r a l i n c r e a s e o f a l l s a l a r i e s , on t h e g r o u n d t h a t t h e c o s t o f l i v i n g h a s i n c r e a s e d , o r t h a t o t h e r c i t i e s o f t h e same s i z e a r e p a y i n g h i g h e r s a l a r i e s . S in c e c i t y c o u n c i ls must co n d u c t th e c i t y a f f a i r s a t th e most econom ical l e v e l o f c o s t s b u t a l s o must m a in ta in a w orking f o r c e o f com petent s a t i s f i e d p e o p l e , in a d i f f i c u l t p o sitio n .
t h e s e r e q u e s t s p u t them
They m u s t b e a b l e t o j u s t i f y t o t h e
ta x p a y e r s any s a l a r y i n c r e a s e s , b u t must c a r e f u l l y c o n s i d e r r e q u e s t s f o r i n c r e a s e s by the em ployees.
Any a r b i t r a r y
d i s a p p r o v a l o f s u c h i n c r e a s e s i s c e r t a i n t o m e et w i t h em ployee r e s e n t m e n t o r even t h e l o s s o f c a p a b l e t r a i n e d
35 em ployees. S i n c e t h e c i v i l s e r v i c e co m m issio n o r t h e p e r s o n n e l dep artm en t d e a ls c o n s t a n t l y w ith the p ro c e s s o f r e c r u itm e n t a n d may b e i n c h a r g e o f t h e m a i n t e n a n c e o f t h e pay p l a n , i t w ould seem n a t u r a l f o r t h e c i t y c o u n c i l o r t h e c i t y m anager t o t u r n t o t h i s a g e n c y f o r r e c o m m e n d a tio n s a s t o how t o d e a l w ith th e r e q u e s ts f o r pay i n c r e a s e s .
In a d d itio n ,
th e agency
may b e i n a p o s i t i o n t o f u r n i s h d o cu m en te d d a t a t h r o u g h pay s u r v e y s w h ic h w ould e n a b l e t h e c i t y c o u n c i l t o j u s t i f y any a c t i o n i t m ight t a k e - - t o th e ta x p a y e rs or to the em ployees. I n v ie w o f t h e s e f a c t s ,
t h e c i t i e s s u r v e y e d w ere a s k e d
w h e t h e r t h e c i t y c o u n c i l o r t h e c i t y m a n ag er r e q u e s t e d t h e c i v i l s e r v i c e c o m m is s io n o r t h e p e r s o n n e l d i r e c t o r t o recom mend f o r o r a g a i n s t s a l a r y i n c r e a s e s .
In seven o f th e
tw e n t y - s i x c i t i e s w ith f u l l o r p a r t i a l c i v i l s e r v i c e the c i v i l s e r v i c e c o m m is s i o n o r t h e p e r s o n n e l d i r e c t o r was c a l l e d upon f o r r e c o m m e n d a t i o n s . t h e c i t y m a nager i s
I n one c i t y w i t h o u t c i v i l s e r v i c e ,
t h e p e r s o n n e l d i r e c t o r , an d he makes a l l
r e c o m m e n d a tio n s t o t h e c i t y c o u n c i l .
In a n o th e r c i t y w ithout
c i v i l se rv ic e but w ith a personnel d ir e c to r , a p r iv a te firm makes t h e r e c o m m e n d a t i o n s .
The r e m a i n i n g c i t i e s
reported
t h a t t h e c i t y c o u n c i l s o r c i t y m a n a g e rs d e a l w i t h t h e p a y p r o b le m s w i t h o u t h e l p f ro m o t h e r s .
CHAPTER VI / RECRUITMENT AND SELECTION T rad itio n ally ,
the f u n c t i o n o f r e c r u i t m e n t has been
th e p rim ary d uty o f the p u b lic p e rs o n n e l agency.
Included
i n t h i s f u n c t i o n have been th e ta s k s o f a d v e r t i s i n g f o r c a n d i d a t e s , e x a m in i n g them f o r f i t n e s s , a p p l y i n g any lim itatio n s,
such as r e s i d e n c e or v e t e r a n s 1 p r e f e r e n c e , and
d e v e l o p i n g , fro m t h o s e who r e m a i n , a l i s t o f p e r s o n s e l i g i b l e f o r em p lo y m e n t.
Mosher an d K i n g s l e y f o r c e f u l l y p o i n t up
t h e i m p o r t a n c e o f t h e r e c r u i t m e n t f u n c t i o n when t h e y s a y , The s e l e c t i o n p r o c e s s h a s a lw a y s b e e n t h e c e n t r a l p o i n t o f i n t e r e s t i n th e p u b l i c p e r s o n n e l program , and f o r a v a r i e t y o f r e a s o n s . I t is , f i r s t of a ll, t h e c o r n e r s t o n e o f t h e w h o le p e r s o n n e l s t r u c t u r e . U nless r e c r u itm e n t p o l i c y i s soundly co n ceiv ed , t h e r e c a n b e l i t t l e hope o f b u i l d i n g a f i r s t - r a t e sta ff. I t i s , s e c o n d l y , t h a t a s p e c t o f t h e em ploy m ent p r o g ra m i n r e s p e c t t o w h ic h p u b l i c p e r s o n n e l p r a c t i c e s d i f f e r m o st s t r i k i n g l y fro m p r i v a t e . The m e r i t s y s t e m i m p l i e s , ab o v e a l l e l s e - a p a r t i c u l a r s y s t e m o f r e c r u i t m e n t an d s e l e c t i o n . 1 I n p o i n t i n g o u t t h e d i f f e r e n c e b e t w e e n p u b l i c and p r i v a t e p e r s o n n e l w o rk , t h e a u t h o r s r e f e r t o t h e r e q u i r e m ent t h a t c i v i l s e r v i c e d e p a r t m e n t s m u s t g i v e c o m p e t i t i v e ex am in atio n s to d e r iv e a l i s t o f c a n d id a te s ranked i n the o rd e r o f t h e i r s c o r e s on t h e e x a m i n a t i o n s .
1 Mosher and K i n g s l e y ,
0£.
On t h e o t h e r h a n d ,
c l t . . p . 109.
37 p r i v a t e p e r s o n n e l a g e n c i e s may, a n d o f t e n d o , t e s t a p p l i c a n t s f o r p o s i t i o n s , b u t t h e m ethod i s u s e d o n l y f o r t h e p u r p o s e o f s e p a r a t i n g t h e q u a l i f i e d from t h e u n q u a l i f i e d .
However,
p u b l i c a g e n c i e s w h ic h do n o t have c i v i l s e r v i c e may g i v e e x a m i n a t i o n s w i t h t h e same p u r p o s e - - t o f i n d t h e b e s t q u a l i f i e d em ployees. A nother d i f f e r e n c e between p u b l ic and p r i v a t e p e r s o n n e l p r a c t i c e i s th e r i g h t to a p p e a l th e r e s u l t s o f th e ex am in a tio n process.
C o m p e t i t o r s h av e t h e p r i v i l e g e o f r e v i e w i n g t h e
r e s u l t s an d o f p r o t e s t i n g w h a t t h e y may r e g a r d a s i m p r o p e r p r a c t i c e s o r e r r o r s in com putation. I f a c i t y has a c i v i l s e r v i c e program , a n o t h e r v a r i a n c e i n t h e p u b l i c p r o c e s s from t h a t o f p r i v a t e p e r s o n n e l work i s u su ally p resen t.
T h is i s
the p r a c t i c e o f v e t e r a n s 1 p r e f e r e n c e .
W ritte n i n t o the c i v i l s e r v ic e r u l e s , in th e en a b lin g o r d i n a n c e o r t h e c i t y c h a r t e r , may b e a p r o v i s i o n t h a t p r e f e r e n c e be g i v e n to v e t e r a n s i n t h e form o f a d d i t i o n a l c r e d i t s in the e x a m in a tio n .
In t h i s c a s e e x t r a p o i n t s a r e added to
the sc o re s o f a l l q u a l i f i e d v e t e r a n s . A lso w r i t t e n i n t o th e r u l e s ,
t h e c h a r t e r , o r th e
e n a b l i n g o r d i n a n c e , may b e a p r o v i s i o n t h a t o n l y r e s i d e n t s o f t h e c i t y a r e t o be a l l o w e d t o p a r t i c i p a t e i n the exam inations• O ther f a c t o r s i n th e r e c r u i t m e n t and s e l e c t i o n p r o c e s s f o l l o w e d b y a p u b l i c p e r s o n n e l a g e n c y may i n c l u d e t h e
38 r e q u i r e m e n t s t h a t e m p lo y ee s f u r n i s h p h o t o g r a p h s o f t h e m s e l v e s a t t h e tim e o f em ploym ent, have t h e i r f i n g e r p r i n t s
taken a t
t h e tim e o f e m p l o y m e n t , ' and t a k e p h y s i c a l e x a m i n a t i o n s fro m public or p riv a te p h y sic ia n s. I.
/
TESTING
C i v i l s e r v i c e an d t e s t i n g .
A ll of the c i t i e s
surveyed
w h i c h h a d c i v i l s e r v i c e , w i t h one e x c e p t i o n , u s e d o p en c o m p e t i t i v e e x a m i n a t i o n s t o s e l e c t t h e i r em plo yees*
The
e x c e p t i o n s e l e c t e d o n l y i t s p o l i c e m e n and f i r e m e n on t h e b a s i s o f t e s t s ; new em ployee s i n o t h e r d e p a r t m e n t s o f t h e c i t y w ere s e l e c t e d b y t h e d e p a r t m e n t h e a d s , u s i n g w h a t e v e r means t h e y chose.
A f t e r a s i x m onths p r o b a t i o n a r y p e r i o d t h e s e new
em p lo y ee s became p e r m a n e n t em ployees w i t h a l l t h e r i g h t s g i v e n t o them b y c i v i l s e r v i c e .
Only one c i t y n o t h a v i n g c i v i l s e r
v ic e used t e s t s i n the s e l e c t i o n o f em ployees.
In th is case,
o n l y t h e f i r e m e n and p o l i c e m e n were s e l e c t e d b y c o m p e t i t i v e te sts• T esting agency.
A l t h o u g h t e s t i n g i s c o n s i d e r e d t h e m o st
im p o rtan t fu n c tio n o f a p u b lic personnel agency, i t i s a ls o t h e m ost e x p e n s i v e .
A t e s t p ro g ra m w h ic h w i l l s t a n d up
u n d e r t h e c r i t i c i s m s o f t h e p u b l i c an d o f t h e e m p lo y e e s r e q u i r e s c o n s i d e r a b l e t r a i n i n g on t h e p a r t o f t h e p e r s o n s c o n s t r u c t i n g the e x a m in a tio n s .
As m e n t i o n e d p r e v i o u s l y , s u c h
p e r s o n s r e c e i v e s a l a r i e s w h ic h t h e c i t y may be u n a b l e t o p a y ,
39 and in the s m a lle r c i t i e s v irtu a lly p ro h ib its
th e in fre q u e n c y o f exam inations
t h e employment o f t r a i n e d t e c h n i c i a n s .
T h erefo re, c i t i e s a re o b lig e d e i t h e r to c o n t r a c t w ith o th e r a g e n c i e s t o make up t h e i r e x a m i n a t i o n s o r p l a c e t h e t e s t i n g program i n th e hands o f u n s k i l l e d p e r s o n s .
As shown i n
T a b le V I I , m o s t o f t h e c i t i e s w i t h c i v i l s e r v i c e c h o o s e t h e form er p ro c e d u re . A t o t a l of n in e tee n c i t i e s c o n tra c te d w ith o th er ag e n c ie s f o r the p r e p a r a t i o n o f t e s t s .
T h is t o t a l would
p r o b a b l y be l a r g e r i f t h e Los A n g e le s C o u n ty C i v i l S e r v i c e Commission was p e r m i t t e d t o c o n t r a c t w i t h c i t i e s o u t s i d e o f the c o u n ty .
A t p r e s e n t , an i n t e r p r e t a t i o n b y t h e C o u n ty
C o u n s e l o f t h e e n a b l i n g s e c t i o n o f t h e C o u n ty C h a r t e r p r e v e n t s th is.^
Comments o f some o f t h e p e r s o n s i n t e r v i e w e d i n t h e
citie s
c o n t r a c t i n g w i t h t h e C o u n ty i n d i c a t e d t h a t t h e y were
s a t i s f i e d w i t h t h e C o u n ty s e r v i c e , a n d u n d o u b t e d l y c i t i e s i n n e i g h b o r i n g c o u n t i e s have h e a r d t h i s a n d w o uld t a k e a d v a n t a g e of oppo rtu n ities
to c o n t r a c t f o r th e s e r v i c e .
The s e v e n c i t i e s w h i c h made up t h e i r own e x a m i n a t i o n s draw upon a number o f s o u r c e s f o r t h e i r m a t e r i a l .
Some u s e d
t h e C i v i l S e r v i c e A sse m bly t e s t e x c h a n g e s e r v i c e , some c o n t r a c t e d w i t h t h e S t a t e P e r s o n n e l B o a rd f o r t e s t s r e q u i r i n g v e r y t e c h n i c a l m a t e r i a l , an d some b o u g h t s t a n d a r d i z e d t e s t s
2 W h i t e , ojD. c i t . . p . 8 7 .
40
TABLE V II SOURCE OF TESTS IN THE CITIES WITH CIVIL SERVICE
A g e n c ie s p r e p a r i n g t e a t s
Humber o f cl ties
Los A n g e le s C o u n ty C i v i l S e r v i c e Commission
12
C ooperative P erso n n elS e r v ic e s , S t a t e P e r s o n n e l B o a rd
5
P riv a te firm
1
N eighboring c i t y
1
Make up own t e s t s
7
TOTAL
26
fro m t e s t b u r e a u s *
None o f t h e s e c i t i e s h a d f u l l - t i m e
personnel d irecto rs*
Two o f them h a d f u l l - t i m e p e r s o n n e l
c l e r k s who w orked w i t h t h e c i v i l s e r v i c e c o m m is s io n s i n the p r e p a r a t i o n o f the te s ts * I n t h e one c i t y w i t h o u t c i v i l s e r v i c e w h ic h h o l d s open c o m p e t i t i v e e x a m i n a t i o n s f o r f i r e m e n and p o l i c e m e n t h e f i r e an d p o l i c e b o a r d s made up t h e e x a m i n a t i o n s w i t h o u t t h e h elp o f o u ts id e agencies* O ral t e s t s *
An i n t e g r a l p a r t o f a c i v i l s e r v i c e t e s t
i s an i n t e r v i e w o f c a n d i d a t e s b y a b o a r d o f s p e c i a l i s t s i n t h e f i e l d f o r w h ic h t h e t e s t i s b e i n g g i v e n *
The c h a i r m a n
o f the bo ard i s u s u a l l y a r e p r e s e n t a t i v e o f the p e rs o n n e l departm ent.
I n t h i s s u r v e y i t was f o u n d t h a t t h e c i v i l
s e r v i c e co m m issio n s o f two c i t i e s a c t e d a s o r a l t e s t i n g b o ard s and i n te r v i e w e d a l l c a n d id a te s f o r c i t y p o s i t i o n s * II.
INVESTIGATION OF APPLICANTS
The i m p o r t a n c e o f i n v e s t i g a t i o n s *
A u th o r itie s in the
p u b lic p e rs o n n e l f i e l d a g re e t h a t the i n v e s t i g a t i o n o f p erso n s ap p ly in g f o r c i t y p o s i t io n s i s an ex trem ely v a lu a b le s te p in t h e s e l e c t i o n o f q u a l i f i e d em ployees*
F o r i n s t a n c e , Mosher
and K i n g s l e y s a y , ” The p e r s o n a l i n v e s t i g a t i o n c o n s t i t u t e s an i n d i s p e n s a b l e s t e p i n th e w e l l - d e v i s e d s e l e c t i o n program , p a r t i c u l a r l y in r e l a t i o n to p o s itio n s in v o lv in g r e s p o n s i b i l i t y .
3 Mosher and K i n g s l e y , o £ . c l t * * p* 2 2 3 .
42 H ubbard b e l i e v e s s u c h i n v e s t i g a t i o n s s h o u l d c o v e r o t h e r a r e a s , i n a d d i t i o n t o t h e c h e c k i n g o f p a s t em ploym ent.
He
says, Through s u c h i n v e s t i g a t i o n s i t i s p o s s i b l e n o t o n l y t o e l i m i n a t e p e r s o n s w i t h c r i m i n a l r e c o r d s an d those of q u e s tio n a b le m orals, b u t to s i f t a p p lic a n ts much more c a r e f u l l y on t h e b a s i s o f s u i t a b i l i t y a s i n d i c a t e d fro m t h e i r p e r s o n a l r e p u t a t i o n a n d o ccu p atio n al reco rd s* 4 Incom plete d a t a *
The c i t i e s i n t h e s u r v e y w h ic h d i d
n o t have c i v i l s e r v i c e were u n a b l e to f u r n i s h i n f o r m a t i o n a b o u t t h i s p h a s e o f t h e s e l e c t i o n program*
I f an y c h e c k i n g
o r i n v e s t i g a t i o n was made i n t h e s e c i t i e s , i t was a p p a r e n t l y done b y d e p a r t m e n t h e a d s , a c t i n g on t h e i r own i n i t i a t i v e . I n d e e d , t h o s e c i t i e s w h ic h d i d h a v e c i v i l s e r v i c e w ere a l s o u n a b l e t o p r o v i d e much d e f i n i t e i n f o r m a t i o n .
Pour of
the tw e n ty -s ix c i t i e s w ith c i v i l s e r v i c e d e f i n i t e l y d id n o t i n v e s t i g a t e t h e i r a p p l i c a n t s * backgrounds*
T h re e o f t h e
tw e n ty - s ix i n v e s t i g a t e d o n ly the a p p l i c a n t s f o r p o l i c e p o s itio n s or fo r p o s itio n s in v olving f i n a n c i a l r e s p o n s ib ility * F iv e o th e r s i n v e s t i g a t e d the background o f a l l a p p l i c a n t s . One c i t y c a r r i e d on i n v e s t i g a t i o n s a t t h e r e q u e s t o f d e p a r t m ent h e a d s .
The r e m a i n i n g t h i r t e e n c i t i e s w i t h c i v i l s e r v i c e
d id not f u r n is h adequate d a ta . Hone o f t h e s e l a s t c i t i e s had f u l l - t i m e p e r s o n n e l
4 H ubbard,
o jd *
c l t . . p. 5.
43 d irec to rs,
t h i s f a c t perhaps ac c o u n tin g f o r the la c k of
organized e f f o r t to in v e s tig a te ap p lic a n ts*
An a d d i t i o n a l
r e a s o n may be t h e p r o h i b i t i v e c o s t , b o t h i n tim e and money, o f c a r r y i n g on s u c h i n v e s t i g a t i o n s * III.
PRE-MPLOYMENT MEDICAL EXAMINATIONS
Im portance o f m ed ical e x a m in e tio n a ♦
T h ere a r e s e v e r a l
r e a s o n s f o r t h e u s e o f p h y s i c a l e x a m i n a t i o n s o f new em ployees by p u b lic p e rs o n n e l a g e n c ie s .
The one w h ic h o c c u r s m o s t
r e a d i l y t o t h e minds o f p r e s e n t e m p loyee s i s
the p r e v e n t io n
o f p e r s o n s w i t h com m unicable d i s e a s e s fro m j o i n i n g t h e work force*
Then, d e p a r t m e n t h e a d s w an t to be c e r t a i n t h a t t h e
w orkers th ey h i r e a r e p h y s i c a l l y capable o f perform ing the d u t i e s a s s i g n e d to them.
T h is i s e s p e c i a l l y t r u e i n t h e
p o l i c e an d f i r e d e p a r t m e n t s , w h ere e m p lo y ee s a r e r e q u i r e d t o be p h y s i c a l l y f i t a t a l l tim es to d e a l w ith s i t u a t i o n s r e q u irin g g re a t p hysical e x e rtio n . T h ere i s an ev e n more f u n d a m e n t a l m o t i v e f o r r e q u i r i n g pre-em ploym ent m e d ic a l e x a m in a tio n s . o f the r e t i r e m e n t system .
This i s t h e p r o t e c t i o n
Mosher and K i n g s l e y p o i n t o u t t h e
d a n g e r , i n t h i s r e s p e c t , o f h i r i n g un ex a m in e d e m p l o y e e s , when they say; T h is i s a d e s i r a b l e r e q u i r e m e n t and i n d e e d a n e s s e n t i a l one i f a r e t i r e m e n t and c o m p e n s a t i o n system has been e s t a b l i s h e d . How s u c h a s y s t e m c a n i n t h e l o n g r u n be k e p t s o l v e n t when t h e
44 d o o r s a r e op en to r e c r u i t s w i t h o r g a n i c and p h y s ic a l d e f e c ts i t i s d i f f i c u l t to u n d e rsta n d . P r i v a t e firm s have long re c o g n iz e d th e v a lu e o f g i v i n g pre-em ploym ent p h y s i c a l e x a m in a tio n s .
In a survey by
t h e M e r c h a n t s ' and M a n u f a c t u r e r s 1 A s s o c i a t i o n i n t h e Los A n g e le s a r e a I t was f o u n d t h a t a l m o s t o n e - h a l f o f t h e m a n u f a c t u r i n g c o n c e r n s s u r v e y e d r e q u i r e d e x a m i n a t i o n s , and over o n e - t h i r d o f the n o n -m anufacturing firm s in the survey re q u ire d exam inations. E x te n t o f m edical exam inations in th e s u rv e y .
As
shown i n T a b le V I I I , s i x t e e n c i t i e s r e q u i r e d t h a t a l l new em p lo y ee s s u b m i t t o m e d i c a l e x a m i n a t i o n s .
F ourteen a d d i tio n a l
c i t i e s demanded t h a t a p p l i c a n t s f o r p o l i c e an d f i r e d e p a r t ment p o s i t i o n s h a v e m e d i c a l e x a m i n a t i o n s . e x a m i n a t i o n s o n l y o f new m a le e m p l o y e e s .
One c i t y r e q u i r e d Only t h r e e c i t i e s
o u t o f the t o t a l o f t h i r t y - f o u r surveyed d id n o t r e q u ir e ap p lican ts
to t a k e m e d i c a l e x a m i n a t i o n s . IV.
FINGERPRINTING
The v a l u e o f f i n g e r p r i n t i n g a p p l i c a n t s ♦
A previous
q u o t a t i o n fro m H ubbard h a s i l l u s t r a t e d t h e e m p h a s is he p l a c e s on t h e e l i m i n a t i o n o f p e r s o n s w i t h c r i m i n a l r e c o r d s from t h e
5 Mosher a n d K i n g s l e y ,
0£.
c i t . , p. 601.
6 M e r c h a n t s 1 an d M a n u f a c t u r e r s ' A s s o c i a t i o n , O c t o b e r 1948 S u r v e y , 0 £ . c i t . . u n p a g e d .
45
TABLE V I I I SELECTION PRACTICES IN TEE CITIES SURVEYED
Groupa i n v o l v e d
NUMBER OF CITIES REQUIRING: M edical Exam inations F i n g e r p r i n t i n g P hotographs
A l l e m ployee s
16
12
12
Policem en & f i remen
13
3
3
P o lic e only
1
Male em p lo y ee s
1
None r e q u i r e d
3
17
17
34
34
34
TOTAL
46 lists
of ap p lican ts fo r c ity p o s itio n s .
rt
A -basis f o r th is
e l i m i n a t i o n w h i c h he d o e s n o t c i t e i s t h e f a c t t h a t c i t y em p lo y ee s may b e e n t r u s t e d w i t h p u b l i c moneys o r w i t h f a c t s t h a t w o u ld be o f f i n a n c i a l w o r t h t o o u t s i d e r s i f known b y them.
The q u i c k e s t m ethod o f e l i m i n a t i n g t h o s e w i t h
r e c o r d s i s b y t a k i n g t h e f i n g e r p r i n t s o f a p p l i c a n t s an d s u b m i t t i n g them t o t h e FBI f o r c h e c k i n g . E xtent of th is p ro ced u re.
The t a b u l a t i o n i n T a b l e V I I I
shows t h a t o n e - h a l f o f t h e c i t i e s s u r v e y e d f i n g e r p r i n t e i t h e r a l l new em p lo y ee s o r t h e new em p lo y e e s o f s e l e c t e d d e p a r t m ents, such as the p o l i c e and f i r e d e p a rtm e n ts . h a l f of the c i t i e s
The o t h e r
s u r v e y e d d i d n o t f i n g e r p r i n t a n y new
em ployees. V.
PHOTOGRAPHS
The a d v a n t a g e o f r e q u i r i n g p h o t o g r a p h s . advantage o f a p p l i c a n t photographs i s persons ta k in g the ex am in a tio n s,
The p r i n c i p a l
the i d e n t i f i c a t i o n o f
thus p r e v e n tin g a p p l i c a n t s
fro m h i r i n g e x p e r t s t o t a k e t h e e x a m i n a t i o n s f o r them .
T his
p u r p o s e i s i n d i c a t e d on t h e ^ d e a l 11 a p p l i c a t i o n b l a n k d e v e l o p e d b y t h e C i t y o f E v a n s t o n , I l l i n o i s , an d r e p r o d u c e d by th e P u b lic A d m in is tra tio n S e r v ic e . 8
The b l a n k i n f o r m s t h e
7 S upra# p. 42. ® M e r i t Systern I n s t a l l a t i o n ( P u b l i c A d m i n i s t r a t i o n S e r v i c e , C h i c a g o , 1941* P u b l i c a t i o n No. 7 7 ) , p . 2 4 - 2 5 .
47 a p p l i c a n t t h a t he m u s t p r e s e n t h i s p h o t o g r a p h t o t h e e x a m i n a t i o n p r o c t o r s b e f o r e b e i n g a d m i t t e d t o t h e e x a m in a t i o n room. id en tifies
The p h o t o g r a p h i s k e p t , a n d p r e s u m a b l y th e a p p l ic a n t th ro u g h o u t the v a rio u s s ta g e s o f
the exam ination p r o c e s s . However, Mosher an d K i n g s l e y a p p a r e n t l y do n o t recommend t h e u s e o f p h o t o g r a p h s , f o r no m e n t i o n o f them o c c u r s i n t h e i r te^st on p u b l i c p e r s o n n e l managem ent. The e x t e n t o f t h i s r e q u i r e m e n t i n t h e c i t i e s s u r v e y e d . The s u r v e y r e v e a l e d t h a t s e v e n t e e n o f t h e c i t i e s
surveyed,
a l l w ith c i v i l s e r v i c e program s, r e q u ir e d t h a t a p p l ic a n ts f u r n i s h t h e i r p h o t o g r a p h s a t t h e tim e o f employment o r w i t h th e ir ap p licatio n s.
I n c lu d e d i n th e s e v e n te e n c i t i e s w hich
do n o t a s k em p lo y ee s f o r p h o t o g r a p h s a r e e i g h t w i t h c i v i l s e r v ic e program s.
I t s h o u l d b e remembered t h a t I n a l l t h o s e
c i t i e s i n w h ic h t h e p h o t o g r a p h i s r e q u i r e d ,
the a p p l i c a n t
must f u r n i s h i t h i m s e l f . VI.
VETERANS» PREFERENCE
The m eaning o f t h e t e r m .
V eterans1 p reference re fe rs
t o t h e e x t r a p r i v i l e g e s g i v e n t o v e t e r a n s o f t h e armed s e r v i c e s who s e r v e d d u r i n g a n y w a r .
The p r i v i l e g e s may
c o n s i s t o f a d d i t i o n a l p o i n t s a d d e d to t h e i r e a r n e d s c o r e s on c i v i l s e r v i c e e x a m i n a t i o n s , o r w a i v i n g o f a n y h e i g h t o r • w e i g h t r e q u i r e m e n t s , o r t h e p r o v i s i o n t h a t v e t e r a n s may b e
48 l a i d o f f o n l y a f t e r n o n - v e t e r a n s , i n a n y l a y - o f f o f em ploy ees* These a r e j u s t a few o f t h e form s o f p r e f e r e n c e ;
there are
p r o b a b l y many v a r i e t i e s i n t h e v a r i o u s p u b l i c a g e n c i e s o f the c o u n try . O pinions o f a u t h o r i t i e s .
P ublic personnel a d m in is tra to rs
an d s t u d e n t s , i n g e n e r a l , r e g a r d t h i s p r a c t i c e a s an u n d e s i r -
f
a b l e r e s t r i c t i o n oh t h e b a s i c p r i n c i p l e o f f r e e and open c o m p e titio n to s e l e c t th o se b e s t q u a l i f i e d f o r p u b lic p o sitio n s.
Mosher and K i n g s l e y p u t i t s t r o n g l y when t h e y s a y ,
The c o n c l u s i o n i s i n e s c a p a b l e t h a t no more s e r i o u s problem co n cern s th o s e i n t e r e s t e d i n and r e s p o n s i b l e f o r im p r o v i n g t h e l e v e l o f e f f i c i e n c y i n t h e p u b l i c s e r v i c e t h a n th e problem £ of v e t e r a n s ' p r e f e r e n c e J . . . ^ B u t no m a t t e r how t h e q u e s t i o n i s r e g a r d e d b y a d m i n i s t r a t o r s , i t r e m a i n s a r e a l i t y w h ic h m u st be f a c e d . T h e r e f o r e , a number o f c o m m i t t e e s o f p e r s o n s i n t e r e s t e d i n t h e p r o b l e m hav e made r e c o m m e n d a tio n s f o r d e a l i n g w i t h i t . One s u c h c o m m i t t e e — t h a t o f t h e C i v i l S e r v i c e A sse m b ly m e e t i n g i n 1944--rec o m m en d e d t h a t v e t e r a n s b e r e q u i r e d t o r e c e i v e a p a s s i n g g r a d e on e x a m i n a t i o n s b e f o r e b e i n g g i v e n extra p o i n t s A
c o m m itt e e o f i n t e r e s t e d c i t i z e n s , members
o f Town H a l l , a p u b l i c s e r v i c e o r g a n i z a t i o n i n Los A n g e l e s , 9 Mosher and K i n g s l e y ,
0£.
c i t . . p. 250.
10 The Employment o f V e t e r a n s i n t h e P u b l i c S e r v i c e i n t h e Uni t e d S t a t e s ( R e p o r t o f t h e Com m ittee on V e t e r a n Employ m e n t P r a c t i c e s , C i v i l S e r v i c e A ssem bly o f t h e U n i t e d S t a t e s and Canada, A u g u st, 1 9 4 4 ). 8 pp.
49 u rg e d t h a t v e t e r a n s be g iv e n t h e i r p r e f e r e n c e a f t e r r e c e i v i n g passing g r a d e s . ^
The f o l l o w i n g p a r a g r a p h s w i l l show how t h e
s m a l l e r c i t i e s o f s o u t h e r n C a l i f o r n i a have met t h e p r o b l e m . E xtent o f the p r a c t i c e .
I n t h i s s u r v e y i t was f o u n d
t h a t t w e n t y - t w o o f t h e t w e n t y - s i x c i t i e s w h i c h g a v e e x a m in a t i o n s t o a p p l i c a n t s f o r m u n i c i p a l employment g a v e v e t e r a n s 1 p r e f e r e n c e on t h e e x a m i n a t i o n s . t o v e t e r a n s who s c o r e d l e s s
One o f t h e s e g a v e p o i n t s o n l y
t h a n s e v e n t y p e r c e n t b u t more
t h a n s i x t y - f i v e p e r c e n t ; i n t h e s e c a s e s t h e s c o r e s w ere r a i s e d to th e p a s s in g g ra d e o f s e v e n ty p e r c e n t .
Two
a d d i t i o n a l c i t i e s w h i c h e x a m in e d a p p l i c a n t s d i d n o t g i v e v e te r a n s the a d d i t i o n a l p o i n t s . p r e fe re n c e only i n case o f a t i e .
One c i t y g a v e v e t e r a n s a One c i t y w h i c h h a d c i v i l
s e r v i c e d id n o t g iv e any i n f o r m a t i o n as to i t s
p ractice.
E ig h t o f th e tw enty-tw o c i t i e s w hich gave v e t e r a n s e x t r a p o i n t s on t h e i r e x a m i n a t i o n s d i d so a f t e r t h e v e t e r a n s h a d r e c e i v e d passing grades. T h ere was no d e f i n i t e t r e n d among t h e s e c i t i e s a s t o t h e number o f p o i n t s t o b e a d d e d — some c i t i e s g a v e f i v e p o in ts , others ten .
Only t h r e e c i t i e s g a v e a n a d d i t i o n a l
t e n p o i n t s to d i s a b l e d v e t e r a n s . O ther ty p es o f p r e f e r e n c e .
U n fo rtu n a tely , inform ation
A°w Can C i v i l S e r v i c e Methods b e I m p r o v e d ? (A r e p o r t by t h e M u n i c i p a l an d C o u n ty G overnment S e c t i o n , Town H a l l , Los A n g e l e s , F e b r u a r y , 1 9 4 5 ) . 26 p p .
50 on o t h e r t y p e s o f v e t e r a n s 1 p r e f e r e n c e o r p r i v i l e g e s was n o t o b ta in e d in a l l the c i t i e s su rv ey ed .
One c i t y , h o w e v e r , i t
was l e a r n e d , h a d a c i v i l s e r v i c e r u l e t h a t v e t e r a n s t a k i n g t h e e x a m i n a t i o n s f o r c i t y employment w ere n o t to be s u b j e c t to th e s t a n d a r d age l i m i t a t i o n . No c i t y w h ic h d i d n o t have c i v i l s e r v i c e made a n y f o r m a l r e c o g n i t i o n o f t h e p r a c t i c e s w h ic h a r e i n v o l v e d i n v e t e r a n s ’ preference. V II.
RESIDENCE REQUIREMENTS
E x p la n a tio n o f the r e q u ir e m e n ts . on t h e a p p l i c a n t s f o r c i t y em p lo y m e n t.
T his i s a l i m i t a t i o n Only t h o s e who h av e
l i v e d i n t h e c i t y f o r a p e r i o d o f tim e a r e e l i g i b l e t o work f o r the c i t y .
T h is l i m i t a t i o n i s u s u a l l y a p p l i e d i n th e
b e l i e f t h a t o n l y t h o s e who p a y t h e t a x e s s h o u l d h a v e a r i g h t t o com pete f o r m u n i c i p a l p o s i t i o n s . The r e s t r i c t i o n i s v ie w e d w i t h d i s f a v o r by a u t h o r i t i e s i n the f i e l d .
Mosher an d K i n g s l e y , a s u s u a l , h av e s e r i o u s
m isgivings about the p r a c t i c e .
They s a y s
T his i s o f t e n a n e x t r e m e l y s e r i o u s r e s t r i c t i o n and one n o t i n harmony w i t h t h e m e r i t p r i n c i p l e . I n l a r g e p a r t , i t h a r k s b a c k t o t h e n a t i o n o f th e p u b l i c s e r v a n t a s a p a r a s i t e l i v i n g on t h e com munity, and i s b o u n d up w i t h t h e i d e a t h a t e a c h community s h o u l d t a k e c a r e o f i t s own. I t i s a c a r d i n a l f e a t u r e of s e l e c t i o n a c c o rd in g to m e r it t h a t t h e b e s t q u a l i f i e d c a n d i d a t e s h o u l d b e e m p lo y e d , w h a t e v e r h i s r e s i d e n c e . 12
12 Mosher an d K i n g s l e y , o p . c i t . . p . 1 2 0 .
51 I n t h e s u g g e s t i o n s f o r t h e im provem ent o f c i v i l s e r v i c e made b y a c o m m itt e e o f Town H a l l t h e r e i s i n c l u d e d a r e c o m m e n d a tio n t h a t ,fr e s i d e n c e r e q u i r e m e n t s s h o u l d b e e l i m i n a t e d as a p r e r e q u i s i t e f o r c i v i l s e r v i c e e x a m i n a t i o n s • R esidence re q u ire m e n ts i n the ci t i e s su rv e y e d .
The
p r a c t i c e o f r e q u i r i n g p r i o r r e s i d e n c e was n o t w i d e s p r e a d i n the c i t i e s
surveyed.
Only t w e l v e o f t h e t w e n t y - s i x c i t i e s
w i t h c i v i l s e r v i c e r e q u i r e d t h a t a p p l i c a n t s m u s t be r e s i d e n t s o f the c i t i e s .
Four a d d i t i o n a l c i t i e s had su ch a re q u ire m e n t
i n t h e i r c i v i l s e r v i c e r u l e s , b u t t h e c i v i l s e r v i c e commis s i o n s had w a iv e d t h e r u l e s .
The r e m a i n i n g t e n d i d n o t have
a resid e n ce req u irem en t. A l l o f t h e c i t i e s , w i t h two e x c e p t i o n s , w h i c h d i d n o t have c i v i l s e r v i c e o r g iv e ex a m in a tio n s f o r c i t y p o s i t i o n s h a d no o f f i c i a l r e s i d e n c e r e q u i r e m e n t .
One e x c e p t i o n r e q u i r e d
t h a t a p p l i c a n t s m u s t h a v e l i v e d i n t h e c i t y f o r one y e a r p r i o r t o em ploym ent.
The o t h e r c i t y s i m p l y r e q u i r e d t h a t a p p l i c
a t i o n s b e a c c e p t e d from r e s i d e n t s o n l y . I t m u s t be remembered t h a t d e p a r t m e n t h e a d s i n t h e s e c i t i e s m i g h t h av e t h e i r own r u l e s a b o u t whom t h e y e m p lo y e d , d e s p i t e th e l a c k o f such r u l e s s e t f o r t h by th e c i t y c o u n c i l ,
13 Town H a l l C o m m itt e e , ojd, c i t . , p , 3 ,
CHAPTER V II y SUBSIDIARY FUNCTIONS I n a d d i t i o n to th e b ro ad f u n c tio n s o f c l a s s i f i c a t i o n , c o m p e n s a t i o n , an d r e c r u i t m e n t d e s c r i b e d i n p r e v i o u s c h a p t e r s , a p e r s o n n e l p r o g ra m i n c l u d e s o t h e r f u n c t i o n s o f v a r y i n g im portance* F o r e m o s t among t h e s e f u n c t i o n s a r e s
an o rg a n iz e d
p r o m o t i o n a l p l a n , a c l e a r c u t m ethod o f s e p a r a t i n g u n d e s i r a b l e em p lo y ee s from t h e s e r v i c e , some means o f s e t t l i n g t h e g r i e v a n c e s o f e m p l o y e e s , a n em ployee e f f i c i e n c y r a t i n g p l a n , a m eth o d o f r e t i r i n g e m p l o y e e s , and p r o v i s i o n s f o r s i c k l e a v e and v a c a t i o n s f o r em ployees* F u n c t i o n s w h ic h m i g h t be o f e q u a l i m p o r t a n c e t o t h o s e c i t e d ab ove b u t w h ic h a r e f a r l e s s f r e q u e n t l y u s e d , a r e t h o s e
oft
em ployee t r a i n i n g , a n em ployee r e c r e a t i o n p r o g ra m
s p o n s o r e d b y t h e c i t y , a n em ployee c r e d i t u n i o n , an em ployee s u g g e s t i o n p l a n , an em ployee s a f e t y p r o g r a m , t h e p r o v i s i o n b y t h e c i t y o f a g r o u p h e a l t h an d l i f e i n s u r a n c e p r o g ra m f o r e m p l o y e e s , an d r e c o g n i t i o n o f t h e e m p lo y ee s w i t h r e c o r d s o f long se rv ic e * The c h e c k i n g o f p a y r o l l s i s a n i m p o r t a n t a d m i n i s t r a t i v e d e v i c e u s e d by t h e p e r s o n n e l d e p a r t m e n t f o r t h e p r o t e c t i o n o f t h e c i v i l s e r v i c e program*
A nother a d m i n i s t r a t i v e p ro ced u re
53 w h i c h p r o v i d e s s k i l l e d em p lo y ee s a means f o r r e - e n t e r i n g t h e c i t y se rv ic e a f t e r leav in g fo r m a te rn ity reasons i s m a te rn ity leave o f absence.
the
The r e q u i r e m e n t t h a t em ployees
must p r e s e n t a d o c t o r ’s c e r t i f i c a t e a f t e r a s i c k le a v e or s i c k l e a v e o f a b s e n c e p r o t e c t s n o t o n l y t h e o t h e r em ployee s b u t t h e em p lo y ee s who t a k e t h e l e a v e I.
PROMOTIONS
The p r o b le m s i n v o l v e d .
At f i r s t g la n c e t h e r e m ight
a p p e a r t o b e few p r o b l e m s c o n n e c t e d w i t h t h e p r o m o t i o n o f em ployees.
B u t i n r e a l i t y s e v e r a l s e r i o u s p r o b le m s a w a i t t h e
a d m i n i s t r a t o r who i n t e n d s to d e v e l o p a p r o m o t i o n a l p l a n w h ic h w i l l p e r m i t t h e m o s t q u a l i f i e d e m p lo y ee s t o r i s e p o s i t i o n s i n the c i t y .
to th e top
U ndoubtedly, th e fo re m o st q u e s tio n
c o n c e r n s t h e means f o r r e c o g n i z i n g a b i l i t y . u s e d to f e r r e t o u t s u p e r v i s o r i a l c a p a c i ty ?
S h o u l d t e s t s be Would em ployee
e f f i c i e n c y r a t i n g s be o f v a lu e i n answ ering t h i s q u e s tio n ? Can a d e p a r t m e n t h e a d ’ s i n t i m a t e know ledge o f em ployees s u p e rs e d e any t e s t s o r fo rm al r a t i n g s ? given fo r s e n io r ity ?
What c r e d i t s h o u l d be
These a r e o n l y a few o f t h e q u e s t i o n s
e n c o u n te re d i n d e v e lo p in g a prom otion p la n ; o th e r s a r e s u g g e s te d by e a ch o f th e s e q u e s tio n s b u t a r e n o t d e a l t w ith h e re . The u s e o f t e s t s ♦
Tw enty-four o f th e t w e n t y - s i x c i t i e s
w i t h c i v i l s e r v i c e u s e d t e s t s a s a means o f f i n d i n g em ployees
54 q u a l i f i e d f o r prom otion.
Two c i t i e s w i t h c i v i l s e r v i c e o r a
form o f c i v i l s e r v i c e i n t h e i r f i r e an d p o l i c e d e p a r t m e n t d i d n o t use t e s t s f o r prom otions.
I n one o f t h e s e ,
the s ta te m e n t
was made t h a t t h e d e p a r t m e n t s w ere so s m a l l t h a t no p r o m o t i o n s w ere p o s s i b l e . The e i g h t c i t i e s
s u r v e y e d w h ic h d i d n o t h a v e c i v i l
s e r v i c e p e r m i t t e d t h e i r d e p a r t m e n t h e a d s t o r e l y s o l e l y upo n t h e i r d i s c r e t i o n i n prom oting em ployees, w i th o u t th e u s e o f com petitive t e s t s . Employee e f f i c i e n c y r a t i n g s i n p r o m o t i o n . tw en ty -six c i t i e s w ith c i v i l s e r v ic e ,
Of t h e
t e n u s e d em ployee
e f f i c i e n c y r a t i n g s in the p ro m o tio n al p r o c e s s .
However, i n
two o f t h e s e c i t i e s r a t i n g s w e r e u t i l i z e d o n l y i n t h e f i r e and p o l i c e d e p a rtm e n ts .
One o f t h e l a t t e r c i t i e s h a d a n
i n t e r e s t i n g v a r i a t i o n o f t h e u s u a l m ethod o f r a t i n g .
Each
em ployee up f o r p r o m o t i o n was r a t e d b y h i s f e l l o w e m p l o y e e s , n o t by h i s s u p e r v i s o r s . No d e t e r m i n a t i o n o f t h e e x t e n t o f u s e o f em ployee e f f i c i e n c y r a t i n g s i n p r o m o t i o n s c o u l d b e made i n t h r e e a d d itio n a l c i t i e s w ith c i v i l s e rv ic e . The r e m a i n i n g t h i r t e e n c i t i e s w i t h c i v i l s e r v i c e d i d n o t make a p l a c e f o r em plo yee e f f i c i e n c y r a t i n g s i n t h e prom otional p ro c e s s .
However, t h e c i v i l s e r v i c e r u l e s o f two
o f th e s e c i t i e s had p r o v is io n s f o r t h e i r u s e .
55 D epartm ent heads i n th e c i t i e s w i t h o u t c i v i l s e r v i c e w ere a l l o w e d t o s e l e c t em ployees f o r p r o m o t i o n s a t t h e i r own d i s c r e t i o n .
F o rm a l em ployee e f f i c i e n c y r a t i n g s d i d n o t
play a p a r t in th is p ro cess. S e n io ri ty c re d i ts i n p rom otions.
T h irte e n of the
tw en ty -six c i t i e s w ith c i v i l s e rv ic e fo rm ally recognized t h a t s e n i o r i t y s h o u l d be c o n s i d e r e d i n p r o m o t i o n .
But
d i f f e r e n t m e thods w e re u s e d t o g i v e c r e d i t f o r s e n i o r i t y . U s u a l l y , i t was c o n s i d e r e d a s p a r t o f t h e p r o m o t i o n a l e x a m i n a t i o n a n d a f o r m u l a f o r e s t a b l i s h i n g t h i s s e c t i o n was s e t f o r t h i n the c i v i l s e r v ic e r u l e s .
A t y p i c a l form ula used
was t h e one em ployed by t h e c i t y o f T o r r a n c e . serv ice ru le s of th is c ity s ta te
The c i v i l
th at s e n io rity is
to be
g i v e n from o n e - t e n t h o f one p e r c e n t t o f i v e p e r c e n t , d e p e n d i n g upon t h e y e a r s o f s e r v i c e .
I n one o f t h e t h i r t e e n c i t i e s ,
t h e c i v i l s e r v i c e c o m m is s io n was p e r m i t t e d by t h e c i v i l s e r v i c e r u l e s t o w a iv e t h i s p o r t i o n o f p r o m o t i o n a l exa m in atio ns a t i t s d is c re tio n . E ig h t c i t i e s w ith c i v i l s e rv ic e d id n o t give s e n i o r i t y a p la c e in t h e i r prom otional p ro c e s s .
D e fin ite inform ation
a b o u t t h i s p o i n t was n o t o b t a i n e d i n t h e r e m a i n i n g f i v e o f the tw e n ty -six c i t i e s w ith c i v i l s e r v i c e .
None o f t h e e i g h t
n o n - c i v i l s e r v i c e c i t i e s h a d f o r m a l em p lo y ee e f f i c i e n c y r a t i n g s o f any k in d .
56 II.
DISCHARGE PROCEDURES
Types o f p r o c e d u r e s *
The b e s t known m ethod o f g e t t i n g
r i d o f i n c o m p e t e n t em p lo y e e s i s t h e t y p e i n w h i c h t h e d e p a r t m e n t h e a d s i m p l y d i s c h a r g e s them, w i t h o u t h a v i n g t o j u s t i f y h i s a c t i o n s t o an y o t h e r d e p a r t m e n t o f t h e c i t y .
No
agency i s a u t h o r iz e d to i n v e s t i g a t e the grounds f o r d is c h a r g e upon a p p e a l o f t h e e m p l o y e e . A nother p ro c e d u re i s
en tirely d iffe re n t.
The d e p a r t
m ent h e a d i s r e q u i r e d t o f i l e a w r i t t e n s t a t e m e n t o f c h a r g e s w i t h a co m m issio n o r t h e p e r s o n n e l d e p a r t m e n t o f t h e c i t y . The em ployee c a n a p p e a l t h e a c t i o n w i t h i n a d e f i n i t e p e r i o d o f t im e a f t e r i t
to o k p l a c e .
An i n v e s t i g a t i o n i s made a n d
t h e employee c a n b e r e i n s t a t e d o r he c a n be p l a c e d a t t h e t o p o f t h e e l i g i b l e l i s t f o r t h e c l a s s he f o r m e r l y was i n .
He
w i l l t h e n b e c o n s i d e r e d f o r t h e f i r s t v a c a n c y w h ic h o c c u r s . T h is t y p e o f p r o c e d u r e i s u s u a l l y a p a r t o f t h e c i v i l s e r v i c e program .
However, t h e l a r g e s t c i v i l s e r v i c e s y s t e m i n t h e
U nited S ta te s , p lan .
t h e F e d e r a l s e r v i c e , does n o t f o l l o w t h i s
T here a n em ployee c a n a p p e a l h i s d i s c h a r g e o n l y on
t h e g r o u n d s t h a t i t was f o r p o l i t i c a l o r d i s c r i m i n a t o r y reasons• D isc h arg e by a d m i n i s t r a t l v e d i s c r e t i o n .
The e i g h t
c i t i e s s u r v e y e d w h ic h d i d n o t h ave c i v i l s e r v i c e s y s t e m s p e r m itte d th e d ep artm en t heads f u l l d i s c r e t i o n i n the
57 d is c h a r g e o f em ployees.
W ritte n charges a g a in s t the
em ployee d i d n o t h a v e t o b e f i l e d . co u ld n o t ap p e al t h e i r rem oval. citie s,
The d i s c h a r g e d e m p lo y ee s
However, i n two o f t h e s e
t h e c i t y m an ag er c h e c k e d a l l d i s c h a r g e s o r recom
m endations f o r d is c h a r g e by d e p a rtm e n t h e a d s.
T h is r e q u i r e
m ent may h a v e b e e n i n s t i t u t e d f o r t h e p u r p o s e o f p r o t e c t i n g em p lo y ee s a g a i n s t u n f a i r p r a c t i c e s . W r i t t e n c h a r g e s f i l e d by d e p a r t m e n t h e a d s » th re e of the tw e n ty -six c i t i e s w ith c i v i l s e r v ic e ,
Xn t w e n t y the
d e p a r t m e n t h e a d s w ere r e q u i r e d t o f i l e w r i t t e n c h a r g e s a g a i n s t e m p lo y e e s w i t h t h e c i v i l s e r v i c e c o m m issio n a t some tim e i n th e rem oval p r o c e s s .
The f a c t s a b o u t t h i s p r o c e d u r e
w ere n o t o b t a i n e d i n t h e o t h e r t h r e e c i t i e s . One c i t y w i t h a fo rm o f c i v i l s e r v i c e i n w h ic h t h e f i r e m e n and p o l i c e m e n w ere s e l e c t e d t h r o u g h c o m p e t i t i v e t e s t s d i d n o t r e q u i r e the c h i e f s o f th o s e s e r v i c e s to f i l e w r i t t e n c h a r g e s a g a i n s t em p lo y ee s t o b e d i s c h a r g e d . Employee a p p e a l s a g a i n s t d i s c h a r g e .
Twenty o u t o f t h e
tw en ty -six c i t i e s w ith c i v i l se rv ic e p erm itted discharged e m p lo y ee s t o a p p e a l t h e a c t i o n s t o t h e c i v i l s e r v i c e commis sio n s.
D e f i n i t e i n f o r m a t i o n a b o u t t h i s p r o c e d u r e was n o t
o b t a i n e d f ro m t h e r e m a i n i n g s i x c i t i e s . As m e n t i o n e d a b o v e , none o f t h e e i g h t c i t i e s w i t h o u t c i v i l s e r v i c e p e r m i t t e d d i s c h a r g e d em p lo y e e s t h e r i g h t o f ap p eal.
58
III.
GRIEVANCE PROCEDURES
The i m p o r t a n c e o f t h e s e p r o c e d u r e s .
U ndoubtedly, a t
some p o i n t i n h i s w o r k i n g l i f e e v e r y em p loyee h a s f e l t t h a t he was r e c e i v i n g u n f a i r t r e a t m e n t o f some s o r t from h i s s u p e r i o r , h i s f e l l o w w o r k e r s , o r t h e a g e n c y f o r w h ic h he worked.
I f t h e r e was no p l a c e t o w h ic h h e c o u l d t a k e h i s
t r o u b l e an d i r o n o u t t h e p r o b l e m , a l m o s t c e r t a i n l y h i s e f f i c i e n c y was l o w e r e d .
I n e x t r e m e i n s t a n c e s h e may have q u i t
t o f i n d a p l a c e w h ere t h e p r o b l e m was n o t p r e s e n t . B o th t h e e m p l o y e r and t h e em ployee w ould h a v e b e e n far b etter off i f g riev ance.
t h e r e h a d b e e n a m ethod o f s e t t l i n g
the
Hubbard e m p h a t i c a l l y e m p h a s i z e s t h i s p o i n t when
he s a y s s Good a d m i n i s t r a t i o n i n b o t h g o v e r n m e n t a n d in d u stry req u ires th a t c le a r-c u t p o lic ie s fo r d e a l i n g w i t h p e r s o n n e l p r o b le m s be e s t a b l i s h e d . As f a r a s p r a c t i c a b l e , p a r t i c i p a t i o n b y o r g a n i z e d and u n o r g a n i z e d em p lo y ee s i n f o r m u l a t i n g t h e s e ■ p o l i c i e s should be encouraged. In any e v e n t, w r i t t e n s t a t e m e n t s o f p o l i c y s h o u l d be made a c c e s s i b l e to a l l em ployees. C i v i l s e r v i c e law s, r u l e s , and r e g u l a t i o n s embody t h e b a s i c p e r s o n n e l p o l i c i e s i n m o st g o v e r n m e n t a l u n i t s . I t i s e s s e n t i a l t h a t everyone i n th e s e r v i c e u n d e r s ta n d th e p o l i c i e s w h ic h u n d e r l i e a l l t h e p e r s o n n e l f u n c t i o n s , a n d t h a t a d e q u a t e p r o v i s i o n b e made f o r t h e c o n s i d e r a t i o n o f c o m p l a i n t s and g r i e v a n c e s As Hubbard s u g g e s t s , c i t i e s w i t h c i v i l s e r v i c e have p e rs o n n e l p o l i c i e s s e t f o r t h in the c i v i l s e r v i c e r u l e s .
1 H ubbard, o£ • c l t . . p . 1 1 .
59 C i t i e s w ith o u t c i v i l s e r v i c e can d ev elo p p ro c e d u re s o f c o m m u n ic a tio n and m ethods o f h a n d l i n g g r i e v a n c e s w h ic h w i l l a d e q u a te ly c o n t r o l the p e rs o n n e l problem s. c i t i e s have c i v i l s e r v i c e o r n o t , organized a s s o c ia tio n s
W h e th e r t h e
t h e em ployees may h a v e
to n e g o t i a t e em ployee g r i e v a n c e s w i t h
the m unicipal a d m in is t r a tio n s . G rievance p rocedures i n the c i t i e s su rv e y e d .
A pparently,
t h e p e r s o n s who drew up t h e c i v i l s e r v i c e r u l e s o f t h e c i t i e s w i t h c i v i l s e r v i c e w hich were s u r v e y e d , d id n o t c o n s i d e r the n e c e s s ity f o r w r itte n grievance p ro ced u res.
Only e i g h t o f t h e
t w e n t y - s i x c i t i e s had t h e s e p r o v i s i o n s i n t h e i r r u l e s .
Some
o f t h e p e r s o n s i n t e r v i e w e d i n t h e s e c i t i e s may h a v e c o n s i d e r e d t h a t t h e t e r m "e m p lo y ee g r i e v a n c e s " a p p l i e d o n l y t o t h e b a s i s f o r d i s c h a r g e s , s in c e they m entioned b o ard s o f re v ie w and t r i a l b o a r d s . The g e n e r a l i m p r e s s i o n r e c e i v e d d u r i n g t h e i n t e r v i e w s o f o f f i c i a l s i n a m a j o r i t y o f t h e c i v i l s e r v i c e c i t i e s was t h a t t h i s problem had been l a r g e l y l e f t to the d i s c r e t i o n o f the departm ent h ead s. The same s i t u a t i o n was f o u n d i n t h e n o n - c i v i l s e r v i c e c itie s.
No w r i t t e n g r i e v a n c e p r o c e d u r e s w ere i n e x i s t e n c e
in th ese e ig h t c i t i e s . Employee o r g a n i z a t i o n s ♦ o f the t h i r t y - f o u r c i t i e s asso ciatio n s.
The em p lo y ee s o f t w e n t y - t w o
s u r v e y e d h a d o r g a n i z e d em ployee
The em p lo y e e s o f two a d d i t i o n a l c i t i e s h a d
60 a f f i l i a t e d w ith branches of th e n a t i o n a l la b o r o r g a n iz a tio n s ; one g r o u p b e l o n g e d t o t h e CIO, t h e o t h e r t o t h e APL.
It
sh o u ld be n o te d t h a t g roups o f em ployees, o r i n d i v i d u a l e m p l o y e e s , i n some o f t h e o t h e r c i t i e s
s u r v e y e d may h a v e b e e n
members o f one o r t h e o t h e r o f t h e s e n a t i o n a l o r g a n i z a t i o n s , w i t h t h e p e r s o n s i n t e r v i e w e d n o t knowing o f t h e i r m e m b e r s h ip . The e m p lo y e e s o f t h e r e m a i n i n g t e n c i t i e s o f t h e t h i r t y f o u r c i t i e s s u r v e y e d h a d n o t d e v e l o p e d em ployee a s s o c i a t i o n s . IV .
EMPLOYEE EFFICIENCY RATINGS
Methods o f r e c o g n i z i n g t h e e f f i c i e n t e m p l o y e e s ♦
Person
n e l a d m i n i s t r a t o r s an d d e p a r t m e n t h e a d s h av e i n s t i t u t e d s e v e r a l m e thods o f i d e n t i f y i n g t h e m ost d e s i r a b l e e m p l o y e e s . The m ethod m o s t o f t e n u s e d i s t h e r a t i n g , by t h e d e p a r t m e n t head, of d if f e r e n t f a c t o r s .
T h is r a t i n g i s made on a
s p e c i a l l y d e s i g n e d fo rm an d t u r n e d i n t o t h e p e r s o n n e l departm ent a t r e g u la r s p e c if ie d p e rio d s --p e rh a p s q u a r te r ly , s e m i - y e a r l y , o r even y e a r l y .
The p e r s o n n e l d e p a r t m e n t
c o n v e rts th e s e r a t i n g s i n t o n u m e ric a l s c o re s w hich a r e p l a c e d on t h e e m p l o y e e ’ s r e c o r d c a r d .
These s c o r e s a r e u s e d
f o r d e t e r m i n i n g t h e o r d e r i n w h i c h e m ployee s a r e l a i d o f f . E mployees may h a v e t o a c h i e v e a s p e c i f i e d h i g h s c o r e to be e l i g i b l e f o r prom otion. T here a r e o t h e r m e th o d s t h a n t h i s b u t o n l y t h i s t y p e was c o n s i d e r e d i n t h e s u r v e y .
61
The c i v i l s e r v i c e r u l e s may som e tim es s p e c i f y t h e m ethod o f r a t i n g an d t h e u s e t o w h ic h t h e r a t i n g s a r e to h e put* The u s e o f r a t i n g s i n t h e c i t i e s s u r v e y e d *
A pparently
t h e s e c i t i e s d i d n o t f i n d w o r k a b l e m e thods o f r a t i n g em ployee e f f i c i e n c y .
Only s i x o f t h e t h i r t y - f o u r c i t i e s
s u r v e y e d had a r a t i n g s y s t e m ; t h e s e w ere a l l c i t i e s w i t h c i v i l service*
Two o f them u s e d r a t i n g s o n l y a s a means o f c h e c k
i n g on em p lo y ee s d u r i n g t h e i r p r o b a t i o n a r y term* An a d d i t i o n a l t e n c i t i e s w i t h c i v i l s e r v i c e had provisions in th e ir c i v i l se rv ic e ru les fo r e ffic ie n c y r a t i n g s , b u t f a i l e d t o comply w i t h t h e s e r u l e s * The r e m a i n i n g t e n c i t i e s w i t h c i v i l s e r v i c e d i d n o t hav e p r o v i s i o n s f o r r a t i n g e m p lo y ee s i n t h e i r r u l e s * None o f t h e e i g h t c i t i e s w i t h o u t c i v i l s e r v i c e h a d d e v e l o p e d em ployee r a t i n g p r o g r a m s . The c a u s e s o f t h i s s c a r c i t y o f r a t i n g p l a n s * causes f o r the r e lu c ta n c e of c i t y p erso n n e l o f f i c i a l s i n s t a l l e f f i c i e n c y r a t i n g plans a re p ro b ab ly th e s e ;
G eneral to (1) an
i d e a l r a t i n g s y s t e m h a s n e v e r b e e n d e v i s e d , a n d (2) r a t i n g s a r e s i m p l y o p i n i o n s p u t on p a p e r *
C ity o f f i c i a l s probably
f e e l t h a t th e y m ight as w e l l w a i t f o r th e e x p e rim e n te rs w orking i n th e f i e l d
t o p e r f e c t a s y s t e m t h e y c a n u s e ; and
s i n c e p r e s e n t - d a y r a t i n g s a r e o p i n i o n s anyway, t h e y m i g h t a s w e l l r e l y d i r e c t l y on t h e o p i n i o n s o f o p e r a t i n g s u p e r -
62 v iso rs• J a m is o n f o u n d t h a t t h e Los A n g e le s C o u n ty C i v i l S e r v i c e Commission i n c o r p o r a t e d a p r o v i s i o n i n t o i t s
standard
p e rs o n n e l s e r v ic e c o n t r a c t to e s t a b l i s h e f f i c i e n c y r a t i n g system s i n th e c i t i e s which c o n t r a c t e d f o r th e s e r v i c e . was i n 1 9 4 2 .
This
Up t o 1 9 4 4 , t h e tim e o f t h e s u r v e y , none o f
th e c i t i e s had ta k e n a d v a n ta g e o f t h i s phase o f th e s e r v i c e .
o
J a m i s o n c o n s u l t e d r e p r e s e n t a t i v e s o f t h e c i t i e s and o f t h e C o u n ty C i v i l S e r v i c e Com mission a s t o t h e c a u s e s f o r t h i s lack of response.
The a n s w e r s s h e r e c e i v e d w ere i l l u m i n a t i n g .
She r e p o r t s t h a t . . . c i v i l s e r v i c e d ep a rtm en t heads of b o th the County an d c o n t r a c t c i t i e s a g r e e t h a t t h e r e i s no p a r t i c u l a r need f o r e f f i c i e n c y r a t i n g s f o r sm all i n t i m a t e em ployee g r o u p s o f from t e n t o f i f t y e m ployee s u n d e r a d e p a r t m e n t h e a d . There a r e two f a c t o r s t o t h e q u e s t i o n o f t h e u s e o f e f f ic ie n c y r a tin g s in these c o n tra c t c i t i e s as r e c o g n i z e d by t h e c i v i l s e r v i c e a d m i n i s t r a t o r s . One i s t h a t t h e r a t i n g s h e e t c a n n o t be f i l l e d o u t i m p a r t i a l l y when t h e d e p a r t m e n t h e a d i s c o n f i n e d to. t h e same o f f i c e o r works c o n s t a n t l y s i d e b y s i d e w i t h h i s men. M o r a le s u f f e r s when a d e p a r t m e n t h e a d so c l o s e l y a s s o c i a t e d w i t h h i s men t r i e s t o u s e a r a t i n g s h e e t , e s p e c i a l l y when i t s w o r t h h a s n o t a s y e t b e e n w i d e l y a c k n o w le d g e d b y employee g r o u p s . The s e c o n d f a c t o r i s i n v o l v e d i n the purpose o f e f f i c i e n c y r a t i n g s . The e f f i c i e n c y r a t i n g s y s t e m was d e s i g n e d f o r t h e h e a d o f a l a r g e d e p a r t m e n t , who d oes n o t know t h e members o f h i s d e p a r t m e n t i n t i m a t e l y a n d m u st d e p e n d upon t h e o p i n i o n s o f s u b o r d i n a t e s f o r an ev alu atio n of his s t a f f . These s m a l l e r j u r i s d i c t i o n s do n o t have s u c h a n e m p l o y e e - a d m i n i s t r a t o r
2 J a m i s o n , op. c i t . , p . 2 6 - 8 .
63 situ atio n . The p e r s o n a l i z e d d i s c i p l i n e o f f e l l o w o p i n i o n i s much more e f f e c t i v e t h a n a n y s c o r e on a r a t i n g s h e e t . 3 V.
EMPLOYEE RETIREMENT
The o p e r a t i o n o f
&r e t i r e m e n t
system .
.Most
r e t i r e m e n t system s i n p u b lic a g e n c ie s a r e c o n t r i b u t o r y ; th at i s ,
a c e r t a i n amount i s d e d u c t e d fro m t h e pay c h e c k s
o f em p lo y ee s t o p a y t o w a r d t h e i r r e t i r e m e n t . m a tc h e s t h i s a m o u n t.
The a g e n c y
The a g e s a t w h i c h e m ployee s a r e r e t i r e d
a n d t h e m ethods o f c o m p u tin g r e t i r e m e n t b e n e f i t s a r e s p e c i f i e d i n the r e tir e m e n t system .
The r u l e s a l s o i n c l u d e
th e p la n o f s e l e c t i n g th e o f f i c e r s o f the r e t i r e m e n t system an d t h e s e c u r i t i e s i n w h i c h t h e r e t i r e m e n t f u n d s may be in v ested . The a d m i n i s t r a t i o n o f t h e s e f u n d s i s one o f t h e m o s t s e r i o u s p r o b le m s f o r s m a l l c i t i e s ,
s i n c e em ployee s a p p o i n t e d
to the boards of d i r e c t o r s a r e n o t u s u a l l y a c q u a in te d w ith the i n t r i c a c i e s o f l a r g e - s c a l e in v e s tm e n ts . m ents a r e n o t w e l l - p l a n n e d ,
I f these i n v e s t
t h e e m p lo y ee r e t i r e m e n t b e n e f i t s
are se rio u s ly th reaten ed . A t l e a s t two o t h e r i m p o r t a n t p r o b l e m s a r e f a c e d b y sm all c i t y r e tir e m e n t system s; i n the c i t i e s ,
3 Ib id ..
( 1 ) t h e r e a r e few e m p lo y ee s
t h e f u n d s a r e b u i l t up v e r y s l o w l y , , and
p . 28
64 t h e r e f o r e the r i s k i s n o t sp re a d over a b ro ad b a se of investem ents;
( 2 ) t h e r e i s a d r a i n on t h e f u n d s by t h e c o s t s
o f a c t u a r i a l i n v e s t i g a t i o n s an d p e r i o d i c a u d i t s . s e r i o u s p r o b le m s c a n be c o p e d w i t h i f
These
th e c i t i e s have th e
o p p o r t u n i t y to j o i n a l a r g e r e t i r e m e n t sy stem .
Such a c t i o n
p r o v i d e s them w i t h t h e s e r v i c e s o f f u l l - t i m e f i n a n c i a l e x p e r t s and r e d u c e s t h e c o s t s o f a d m i n i s t r a t i o n . ately ,
F o rtu n
t h e c i t i e s i n C a l i f o r n i a h a v e a r e t i r e m e n t s y s t e m w hich
t h e y c a n j o i n — t h e S t a t e Employees R e t i r e m e n t S y s t e m . E x t e n t o f r e t i r e m e n t system s i n th e c i t i e s s u r v e y e d . T a b l e XX shows t h e number o f c i t i e s w h ic h h a v e r e t i r e m e n t s y s t e m s and t h e number o f em p lo y ee s w o r k i n g i n t h o s e c i t i e s . TABLE IX EXTENT OF RETIREMENT SYSTEMS Number o f C ities R e tire m e n t system No r e t i r e m e n t s y s t e m TOTALS
Per c e n t of T otal
Number o f Employees
Per cen t o f T otal
27
79.4
6,939
92.2
7
20.6
585
7.8
34
100.
7,524
100.
A lm o st e i g h t y p e r c e n t o f t h e c i t i e s h a v e p r o v i d e d r e t i r e m e n t system s f o r t h e i r em ployees.
Over n i n e t y - t w o p e r
c e n t o f t h e e m ployee s o f a l l t h e c i t i e s s u r v e y e d w orked i n th o se c i t i e s w ith r e tir e m e n t system s.
The s e v e n c i t i e s
w h i c h d i d n o t p r o v i d e r e t i r e m e n t s y s t e m s w ere among t h e
65 s m a l l e s t of a l l the c i t i e s e i g h t y - f i v e em ployees.
s u r v e y e d , w i t h an a v e r a g e o f
Two o f t h e s e c i t i e s w e re a b o u t t o
i n s t a l l a l r e a d y a p p r o v e d s y s t e m s a t t h e t im e o f t h e s u r v e y . T w enty-tw o o f t h e c i t i e s w i t h r e t i r e m e n t s y s t e m s w ere i n Los A n g e l e s C o u n t y .
I n 1944 J a m i s o n f o u n d t h a t o n l y
f o u r o f t h e s e c i t i e s i n Los A n g e l e s C o u n t y h a d r e t i r e m e n t sy s terns Membership i n t h e S t a t e Em ployees R e t i r e m e n t S y s te r n . E v e r y one o f t h e t w e n t y - s e v e n c i t i e s w i t h r e t i r e m e n t p l a n s h a d c o n t r a c t e d t o j o i n t h e S t a t e Employees R e t i r e m e n t Sys tern. VI. D efln itio n .
SICK LEAVE
S i c k l e a v e i s a fo rm o f h e a l t h i n s u r a n c e .
Em ployees a r e c r e d i t e d w i t h , f o r e x a m p l e , one d a y o f s i c k l e a v e f o r e a c h m o n th o f s e r v i c e .
If
t h e y become s i c k t h e i r
pa y c o n t i n u e s f o r t h e number o f d a y s t h e y have a c c u m u l a t e d as s i c k l e a v e .
I f t h e y a r e s t i l l s i c k when t h e l i m i t o f
t h e i r accum ulation or allow ance i s re a c h e d , o f c o u rse , t h e i r pay s t o p s .
A l t h o u g h t h e r e a r e many v a r i a t i o n s on t h e p l a n ,
t h i s o u t l i n e i n c l u d e s f u n d a m e n t a l s common to a l l o f th e m . S ick le a v e p r a c t ic e s i n the c i t i e s n in e o f the t h i r t y - f o u r c i t i e s
4 I b i d . . p. 7 .
surveyed.
T w enty-
surveyed, in clu d in g c i t i e s
66 w i t h and w i t h o u t c i v i l s e r v i c e , p r o v i d e d some k i n d o f s i c k l e a v e f o r t h e i r e m p lo y e e s*
However, none o f t h e f i v e c i t i e s
w h ic h d i d n o t g r a n t s i c k l e a v e p r i v i l e g e s h a d c i v i l s e r v i c e p r o g ra m s f o r a l l o f t h e i r e m p l o y e e s . No g e n e r a l i z a t i o n c a n be made a b o u t t h e f o r m u l a s u s e d by t h e c i t i e s usin g i t .
t o com pute b o t h s i c k l e a v e an d t h e m ethod o f
Some c i t i e s g a v e s i c k l e a v e a t t h e r a t e o f one
d a y p e r m o n th , b u t o t h e r s g r a n t e d i t a t r a t e s o f f i v e d a y s per year,
t e n d a y s p e r y e a r , e i g h t e e n d a y s p e r y e a r , an d u p ,
t o a l i m i t o f e i g h t weeks p e r y e a r . cases appear out of l i n e ,
A lth o u g h t h e s e extrem e
t h e method o f t a k i n g t h e s i c k
le a v e m inim izes th e e f f e c t .
I n one c i t y ,
two weeks o f t h e
s i c k l e a v e was t o b e a t o n l y s e v e n t y - f i v e p e r c e n t o f f u l l p ay an d s i x a d d i t i o n a l weeks a t f i f t y p e r c e n t o f f u l l p a y . TShile o t h e r c i t i e s had s i m i l a r f o r m u l a s , t w e n t y - t h r e e c i t i e s p e r m i t t e d s i c k l e a v e t o be t a k e n a t t h e f u l l r a t e o f pay. The amount o f s i c k l e a v e w h ic h em ployee s c o u l d a c c u m u l ate v aried co n sid erab ly .
N ine o f t h e c i t i e s d i d n o t p e r m i t
the accum ulation o f s i c k le a v e ;
t h e tim e h a d t o be u s e d up
e a c h y e a r o r t h e em ployee s i m p l y l o s t t h e y e a r f s c r e d i t s . O t h e r c i t i e s d i d p e r m i t a n a c c u m u l a t i o n , one c i t y t o a maximum o f 140 d a y s .
67
V II .
VACATIONS
V acation p r a c t i c e s .
A ll o f the t h i r t y - f o u r c i t i e s
s u r v e y e d g a v e t h e i r em p lo y e e s a n n u a l v a c a t i o n s . amount o f v a c a t i o n was two weeks p e r y e a r .
The u s u a l
The minimum
amount g r a n t e d was one week p e r y e a r , b y one c i t y , a n d t h e maximum was t h r e e weeks p e r y e a r , g i v e n b y f i v e c i t i e s . Only s i x o f t h e c i t i e s p e r m i t t e d t h e i r e m p lo y ee s t o f o r e g o v a c a t i o n s an d a c c u m u l a t e them o v e r s e v e r a l y e a r s tim e • A common p r o b l e m i n a v a c a t i o n p r o g r a m i s t h e d e t e r m i n a t i o n o f t h e amount o f v a c a t i o n due e m p lo y ee s who work p a r t o f a y e a r , i n c l u d i n g em p lo y ee s b e g i n n i n g work and t h o s e l e a v i n g t h e em ploy o f t h e c i t y .
No d i s t i n c t p a t t e r n o f
m e th o d s o f d e a l i n g w i t h t h i s p r o b l e m was f o u n d i n t h e c i t i e s surveyed.
Some c i t i e s g r a n t e d h a l f a y e a r ' s v a c a t i o n t o
e m p lo y e e s who w orked s i x months b u t l e s s o th ers d id n o t.
th an tw elve m onths;
S t i l l o t h e r s gave t h i s p r i v i l e g e o n ly to
em p lo y e e s who were l e a v i n g , b u t n o t to new e m p l o y e e s . V III.
OTHER FUNCTIONS
T h is s e c t i o n i n c l u d e s c o n s i d e r a t i o n o f f u n c t i o n s h a v i n g a m in o r r o l e i n t h e s m a l l e r c i t i e s p e r s o n n e l p r o g r a m s . Some a r e o f e q u a l I m p o r t a n c e t o f u n c t i o n s p r e v i o u s l y m e n t i o n e d , b u t t h e i r l a c k o f w id esp re ad u se by th e c i t i e s r e l e g a t e s to a s u b o r d in a te p o s i t i o n i n t h i s r e p o r t*
them
68 H ealth in s u r a n c e *
Seventeen o f th e t h i r t y - f o u r c i t i e s
s u r v e y e d had a r r a n g e d f o r h e a l t h an d a c c i d e n t p l a n s w i t h t h e B lu e C r o s s an d C a l i f o r n i a P h y s i c i a n s S e r v i c e *
Many o f t h e s e
a r r a n g e m e n t s w ere made a t t h e r e q u e s t o f em p lo y e e g r o u p s * Only one c i t y made a c o n t r i b u t i o n t o w a r d p a y i n g t h e c o s t o f the s e r v i c e to the em ployees; the rem a in d er l i m i t e d t h e i r a i d t o d e d u c t i n g t h e d u e s from em ployee pay c h e c k s and f o r w a r d i n g them t o t h e o r g a n i z a t i o n . Sev en c i t i e s p r o v i d e d o t h e r form s o f g r o u p h e a l t h and a c c i d e n t i n s u r a n c e f o r t h e i r em ployees. citie s
A g a i n , i n some
t h e em p lo y ee s h a d r e q u e s t e d t h i s a r r a n g e m e n t . F o u r o f
th e s e c i t i e s , however, c o n t r i b u t e d to p ay in g th e c o s t o f the insurance* One o t h e r c i t y h a d a r r a n g e d , i n b e h a l f o f i t s
em ployees,
f o r a f f i l i a t i o n w i t h t h e R o s s - L o o s M e d i c a l G ro u p , b u t d i d n o t c o n t r i b u t e to the paym ents. Group l i f e i n s u r a n c e p l a n s ,
N in e o f t h e t h i r t y - f o u r
had a r r a n g e d f o r a g r o u p l i f e i n s u r a n c e f o r t h e i r e m p l o y e e s , i n some c a s e s a t t h e r e q u e s t o f t h e e m p l o y e e s .
T hre e o f t h e
n in e c i t i e s p a id a p a r t o f the c o s ts o f i n s u r a n c e . I n c o n n e c t i o n w i t h t h e s e i n s u r a n c e p l a n s , o r an y o t h e r p r o g r a m f o r w h ic h c i t i e s make d e d u c t i o n s f r o m p a y c h e c k s , t h e p r o c e s s c o s t s t h e c i t i e s a c e r t a i n a m o u n t. com pute t h e d e d u c t i o n s a n d e n t e r them i n a l l records*
C l e r k s m u st
the p a y r o ll
V a l u a b l e s p a c e a n d tim e i s r e q u i r e d i n t h e
69 a d m i n i s t r a t i o n of such a p a y r o l l d e d u c tio n ;
therefore,
c i t i e s w h i c h make no d i r e c t c o n t r i b u t i o n s t o t h e s e p l a n s , a c t u a l l y pay a p a r t o f the c o s t i n a d m i n i s t r a t i v e expenses* T r a i n i n g p r o g ra m s *
Not one o f t h e c i t i e s s u r v e y e d
had a g e n e r a l t r a i n i n g p r o g r a m f o r a l l c i t y em plo yees o r f o r new e m p l o y e e s .
Xn f i v e o f t h e c i t i e s
the f i r e , p o l i c e , or
o t h e r d e p a r t m e n t s had s p e c i a l i z e d t r a i n i n g p r o g ra m s f o r e m p lo y e e s o f t h o s e d e p a r t m e n t s * Employee r e c r e a t i o n p l a n s .
I n d u s t r i a l c o n c e r n s and
some p u b l i c a g e n c i e s s p o n s o r a t h l e t i c o f r e c r e a t i o n f o r t h e i r em ployees. c itie s
teams o r o t h e r fo rm s
However, n o t one o f t h e
su rv ey ed had sp o n so red o f f - d u t y r e c r e a t i o n program s.
U n d o u b t e d l y , t h e s e w ere n o t c o n s i d e r e d n e c e s s a r y b e c a u s e o f t h e e m p h a s is p l a c e d on a d u l t r e c r e a t i o n b y p u b l i c s c h o o l s . C red it u nio n s.
These a r e c o o p e r a t i v e s a v i n g s and l o a n
a s s o c i a t i o n s s p o n s o r e d an d managed b y e m p l o y e e s . city a ssists
t h e u n d e r t a k i n g by m aking p a y r o l l d e d u c t i o n s and
by p r o v i d i n g s p a c e f o r r e c o r d s . citie s
U s u a lly the
I n s i x o f the t h i r t y - f o u r
t h e e m p lo y e e s h a d f o rm e d c r e d i t u n i o n s . Employee s u g g e s t i o n p l a n s .
These a r e o r g a n i z e d p r o
c e d u r e s f o r g e t t i n g s u g g e s t i o n s from e m p lo y ee s f o r i m p r o v i n g work m e th o d s o r a n y o t h e r p h a s e o f a d m i n i s t r a t i o n n o t fo rm e d by p o l i c y *
Awards a r e g i v e n to t h o s e em p lo y ee s who make
t h e m o s t w o r k a b l e and v a l u a b l e s u g g e s t i o n s . One c i t y o f t h e t h i r t y - f o u r s u r v e y e d h a d a s u g g e s t i o n
70 plan in o p e ra tio n . Employee s a f e t y p r o g r a m s .
T hroug h t h e u s e o f p o s t e r s ,
c o m m itt e e m e e t i n g s , s u g g e s t i o n s , moving p i c t u r e s , d i s p l a y s , o r v a r i o u s o t h e r m e a n s , an em ployee s a f e t y p r o g ra m i s d e s i g n e d to r e d u c e em ployee a c c i d e n t s . r e s u l t i n low ered com pensation c o s ts c o s ts a r e based upon i t s
to th e c i t y , s in c e the
accid en t experience.
One o f t h e t h i r t y - f o u r c i t i e s s a f e t y com m ittee.
A ccident re d u c tio n s
s u r v e y e d h a d an employee
No o t h e r s had an y form o f a c c i d e n t
p r e v e n tio n program . Handbooks f o r e m p l o y e e s .
Employee h an d b o o k s a r e g i v e n
t o new an d o l d e m p lo y e e s to i n f o r m them o f p e r s o n n e l r u l e s an d t h e a c t i v i t i e s
an d o r g a n i z a t i o n o f t h e i r e m p l o y e r .
The s u b j e c t o f handboo ks was n o t i n t r o d u c e d u n t i l a f t e r a number o f c i t i e s h a d b e e n v i s i t e d ;
c o n s e q u e n tly , a com plete
d e s c r i p t i o n o f t h e i r u s e c a n n o t b e m ade.
However, a q u e s t i o n
a b o u t han d b o o k s was a s k e d i n t w e n t y - s i x c i t i e s . t h e s e d i d n o t i s s u e them t o e m p l o y e e s .
Seventeen o f
F i v e c i t i e s had
m im eographed o r o t h e r w i s e r e p r o d u c e d t h e c i v i l s e r v i c e r u l e s , w h i c h w ere g i v e n t o new e m p l o y e e s .
I n one o f t h e s e c i t i e s ,
new em p lo y ee s w ere r e q u i r e d t o s i g n a s t a t e m e n t t h a t t h e y had r e a d th e c i v i l s e r v i c e r u l e s .
The s t a t e m e n t w e n t i n t o
t h e i r p e r s o n a l r e c o r d , a p p a r e n t l y to p r e v e n t f u t u r e mi s u n d e r s t a n d i ng s • R e c o g n ltio n o f long m e rito rio u s s e r v i c e .
B usiness
71 c o n c e r n s an d p u b l i c a g e n c i e s a c k n o w le d g e t h e l o n g y e a r s o f f a i t h f u l s e r v i c e r e n d e r e d b y em ployees*
Employees o f l o n g
sta n d in g a re given p in s , d in n e r s , badges, o r a d d i t i o n a l p r i v i l e g e s in r e c o g n i tio n o f t h e i r long s e r v i c e . Ten o f t h e t h i r t y - f o u r c i t i e s th e s e tokens o f a p p r e c ia t io n *
s u r v e y e d g a v e e m p lo y e e s
In four c i tie s
the r e c o g n itio n
was i n t h e f o rm o f i n c r e a s e d v a c a t i o n t i m e .
Pour o th e r s
g a v e p i n s t o e m p lo y e e s a t i n t e r v a l s o f f i v e ,
ten , f if t e e n ,
tw en ty , and t w e n t y - f iv e y e a r s .
Two a d d i t i o n a l c i t i e s g a v e
r e t i r e m e n t badges to r e t i r i n g em ployees. Checking of payrolls by the personnel departments.
A c a r e f u l c o m p a r i s o n o f t h e p a y r o l l s a t e a c h pay p e r i o d w i t h the p erso n n e l re c o rd s i s im p o rta n t. i l l e g a l i t y i n appointm ent, actio n .
T h is d e v i c e p r e v e n t s
t r a n s f e r , dem otion, o r s i m i l a r
T hro u g h t h i s p r o c e s s ,
the p e rso n n e l rec o rd s o f the
d e p a r t m e n t and t h e p e r s o n n e l d e p a r t m e n t a r e k e p t u p t o d a t e . S in ce the c i v i l s e r v i c e r e c o r d s a r e o f t e n a s s ig n e d to t h e c i t y c l e r k ’ s o f f i c e , an d s i n c e i t a l s o h a s t h e r e s p o n s i b i l i t y o f making up t h e p a y r o l l , the c i t i e s
the e x a c t p ro ced u re i n
s u r v e y e d was d i f f i c u l t to d e t e r m i n e .
The p a y r o l l s
a r e checked, u s u a l l y , f o r com pleteness o n ly . However, i n f i v e c i v i l s e r v i c e c i t i e s d ep a rtm en t d id n o t check the p a y r o l l s . serv ice c i t i e s
the p e rs o n n e l
In nineteen c i v i l
t h e p a y r o l l s w ere c h e c k e d .
The r e m a i n i n g t e n
c i t i e s d id n o t g iv e adequate in fo rm a tio n about t h i s p ro c e s s .
72 M aternity leav e of absence• personnel a d m in istra tio n is
A m inor problem i n
the q u e s tio n o f g r a n tin g le av es
o f absence to e x p e c ta n t m o th e rs.
A c o n s i d e r a b l e number o f
women w a n t t o r e t u r n t o work a f t e r s p e n d i n g a fe w months a t home w i t h t h e i r new c h i l d r e n . leaves of absence,
I f t h e s e women a r e n o t g r a n t e d
the agency w i l l l o s e c a p a b le em ployees.
On t h e o t h e r h a n d , some a d m i n i s t r a t o r s i n s i s t t h a t t h e e x p e c t a n t m o t h e r s r e s i g n , on t h e g r o u n d s t h a t t h e a g e n c y c a n n o t a f f o r d to w a i t f o r a n i n d e f i n i t e t im e f o r a n employee to r e t u r n . I n t h i s s u r v e y , n i n e c i t i e s w ere f o u n d t o h a v e p o l i c i e s of g ra n tin g m a te rn ity leaves of absence.
The q u e s t i o n a p p a r
e n t l y had n o t a r i s e n i n t h e r e m a i n d e r o f t h e c i t i e s ;
at le ast,
t h e p e r s o n s i n t e r v i e w e d d i d n o t know w h at t h e p o l i c y w a s . R equiring a d o c t o r ^ leav e of absen ce.
c e r t i f i c a t e a f t e r s i c k le a v e or
I t i s so m e tim es r e q u i r e d t h a t a n em ployee
f u r n i s h a d o c t o r * s c e r t i f i c a t e o f good h e a l t h a f t e r s i c k leav e or leav e of absence.
T his a s s u r e s t h e a g e n c y and th e
em ployee t h a t he i s r e a d y t o r e t u r n t o w o r k , an d t h a t he w i l l n o t g iv e d is e a s e to o t h e r s . Twelve o f t h e t h i r t y - f o u r c i t i e s s u r v e y e d demanded t h a t e m p lo y e e s p r e s e n t a d o c t o r * s c e r t i f i c a t e .
In e ig h t c i t i e s ,
t h e c h i e f a d m i n i s t r a t o r o r t h e c i v i l s e r v i c e c o m m is s io n c o u l d re q u e s t these c e r t i f i c a t e s a t t h e i r d i s c r e t i o n .
Ten c i t i e s
d i d n o t ask f o r c e r t i f i c a t e s , and f o u r d id n o t g iv e com plete
73 in fo rm a tio n about the use o f t h i s requirem ent#
CHAPTER V III CONCLUSION I.
RESULTS OP THE SURVEY
The e x t e n t o f p e r s o n n e l p r a c t i c e s .
A co m pilation of
v a r i o u s i m p o r t a n t f u n c t i o n s r e v e a l s t h e e x t e n t t o w h ich t h e s m a l l e r s o u t h e r n C a l i f o r n i a c i t i e s h a v e adopted, t h e s e fu n ctio n s• S i x t y - f i v e p e r c e n t o f th e c i t i e s su rv ey e d have cl vi 1 s e r vi c e • T h re e c i t i e s o u t o f t h e t h i r t y - f o u r s u r v e y e d h a v e f u ll- tim e personnel o ffic e rs* F i f t e e n o f the t h i r t y - f o u r c i t i e s m a in ta in e d t h e i r p e rs o n n e l r e c o r d s i n the o f f i c e o f th e c i t y c l e r k . Over o n e - h a l f o f t h e c i t i e s em ployee c l a s s i f i c a t i o n p l a n .
su rv ey ed had a form al The m a j o r i t y o f t h e s e
p l a n s w ere i n s t a l l e d b y o u t s i d e a g e n c i e s . Less th a n f o r t y p e r c e n t o f th e c i t i e s had fo rm al pay p l a n s , a l t h o u g h t h e s e c o v e r e d o v e r o n e - h a l f t h e em p lo y ee s o f a l l t h e c i t i e s s u r v e y e d .
The m a j o r i t y
o f t h e p a y p l a n s w ere d e s i g n e d a n d i n s t a l l e d b y o u t s i d e agen cies• A ll c i v i l se rv ic e c i t i e s ,
e x c e p t o n e , u s e d open
75 c o m p e t i t i v e e x a m i n a t i o n s f o r t h e s e l e c t i o n o f new em ployees• Over s e v e n t y p e r c e n t o f t h e c i t i e s h a d t h e i r t e s t s p r e p a r e d by o t h e r a g e n c i e s . Only t h r e e c i t i e s o u t o f t h e t h i r t y - f o u r s u r v e y e d d i d n o t r e q u i r e a n y em p lo y e e s t o t a k e p h y s i c a l ex am in atio n s• Twenty-tw o o f t h e t w e n t y - s i x c i t i e s g i v i n g e n t r a n c e t e s t s g a v e v e t e r a n s p r e f e r e n c e on t h e s e t e s t s . Twelve c i t i e s h a d p r i o r r e s i d e n c e r e q u i r e m e n t s . A m a jo rity o f the c i t i e s w ith c i v i l s e rv ic e used tests
to d eterm in e th e prom otion o f em ployees.
F o rm a l g r i e v a n c e p r o c e d u r e s w ere f o u n d i n o n l y e i g h t of the t h i r t y - f o u r c i t i e s . S i x o f t h e t h i r t y - f o u r c i t i e s h a d some f o rm o f em ployee r a t i n g * A lm o s t e i g h t y p e r c e n t o f t h e c i t i e s h a d r e t i r e m e n t s y s t e m s w h ic h c o v e r e d o v e r n i n e t y p e r c e n t o f t h e e m p lo y ee s o f a l l t h e c i t i e s .
A ll c i t i e s w ith r e t i r e
m ent s y s t e m s h a d j o i n e d t h e C a l i f o r n i a S t a t e Employees R e t i r e m e n t S y s te m . The o n l y em ployee h a ndbooks g i v e n t o new e m ployee s by a n y o f t h e c i t i e s were c o p i e s o f t h e c i v i l s e r v i c e ru les• None o f t h e c i t i e s h a d s u g g e s t i o n s y s t e m s o r
76 em ployee s a f e t y p r o g r a m s . I n te r p re ta tio n of r e s u l t s .
Perhaps the o u ts ta n d in g
f a c t r e v e a l e d b y t h i s s u r v e y was t h e d e a r t h o f m e r i t s y s t e m s a s o p p o s e d t o t h e number o f c i v i l s e r v i c e p l a n s i n e x i s t e n c e . T h i s i s s u r p r i s i n g , i n v iew o f t h e r e s u l t s o f a s u r v e y among c i t y m a n a g e r s i n t h e U n i t e d S t a t e s w h ic h r e v e a l e d t h a t a m a j o r i t y o f th e managers p o l l e d p r e f e r r e d p e r s o n n e l system s o f t h e i r own devising.-*-
A p p a re n tly t h i s i s n o t tru e o f sm all
so u th e rn C a lif o r n i a c i t i e s covered i n t h i s survey, sin c e many o f t h e c i t i e s h a d t h e c i t y m a n ag er t y p e o f g o v e r n m e n t . In stead ,
t h e c i v i l s e r v i c e c o n c e p t o f p u b l i c p e r s o n n e l manage
ment p r e v a i l e d .
H u b b a r d ’s s t a t e m e n t t h a t ’’t h e t y p i c a l
p e r s o n n e l agency i n the U n ite d S t a t e s i s a c i v i l s e r v i c e c o m m is s io n o r b o a r d ’*^ was f o u n d t o b e a p p l i c a b l e to t h i s a r e a No p e r s o n a l o p i n i o n s were s o l i c i t e d d u r i n g t h i s s u r v e y , b u t th e g e n e r a l a t t i t u d e o f c i t y a d m i n i s t r a t o r s toward c i v i l s e r v i c e was t o c o n s i d e r i t a s s o m e t h i n g s e p a r a t e fro m th e c i t y governm ent, som ething which c o u ld be f i l e d i n a draw er an d f o r g o t t e n u n t i l n e e d e d .
W h e th e r t h i s c a n be a t t r i b u t e d
t o s h e e r i n e r t i a o r t o t h e a t t i t u d e d e s c r i b e d b y Maxwell E. Devoe i s a m a t t e r o f q u e s t i o n .
H© b e l i e v e s t h a t t h e b a s i s
1 H a r o l d A. S t o n e , Don K. P r i c e an d K a t h r y n H. S t o n e , C l t y Manager G overnm ent i n t h e U n i t e d S t a t e s ( C h i c a g o , P u b l i c A d m i n i s t r a t i o n S e r v i c e , 1940) p . 1 0 6 . 2 Hubbard,
o jd .
c i t . . p. 1.
77 fo r th is separatio n is
the b e l i e f th a t
. . . [ c i v i l s e r v i c e ^ m u st b e k e p t a p a r t fro m t h e ’’u n c l e a n ” a d m i n i s t r a t i v e en v iro n m en t i n which i t i s e s t a b l i s h e d ( t h u s f a i l i n g t o become a n i n t e g r a l p a r t o f th e s t r u c t u r e i t i s i n t e n d e d to s e r v e ) . T h is l a t t e r c o n c e p t makes a s much s e n s e a s d o e s s e n d i n g d o c t o r s an d n u r s e s i n t o a p l a g u e - r i d d e n a r e a w i t h i n s t r u c t i o n s t o s t o p ’ t h e p l a g u e , b u t , a t t h e same t i m e , s t a y away from t h e s i c k . 3 No d a r i n g s t r i d e s i n p r o c e d u r e w ere made b y t h e c i t i e s i n a d m in is te rin g the c i v i l s e r v ic e t e s t i n g program s. w h o le t h e y made i n t e n s i v e u s e o f o u t s i d e a g e n c i e s
On t h e
to p rep are
th e ir te s ts . Employee p a r t i c i p a t i o n .
The s m a l l c i t i e s d i d n o t make
o r g a n i z e d e f f o r t s t o h a v e t h e i r em ployee s make s u g g e s t i o n s f o r t h e im p ro v e m e n t o f t h e c i t y s e r v i c e - - t h i s , d e s p i t e t h e f a c t t h a t a l l c i t i e s w a n t t o r e d u c e c o s t s a n d t h e em p lo y e e s re p re s e n t a f e r t i l e source of e x c e lle n t id e a s .
The c i t i e s ,
i n a d d i t i o n , d i d n o t make u s e o f t h e e m p l o y e e s 1 i d e a s i n r e d u c i n g em ployee a c c i d e n t s .
F in a lly , a sense of p a r t i c i p
a t i o n was n o t d e v e l o p e d i n new e m p lo y ee s b y g i v i n g them h an d b o o k s d e s c r i b i n g c i t y o p e r a t i o n s and a d m i n i s t r a t i o n . Growth o f r e t i r e m e n t s y s t e r n s ♦
The p h a s e o f p e r s o n n e l
a d m i n i s t r a t i o n most s t r i k i n g l y d i s p l a y e d by th e s m a l le r c i t i e s was t h e i n s t a l l a t i o n o f r e t i r e m e n t s y s t e m s .
Over
3 ’’A d m i n i s t r a t i v e R e l a t i o n s h i p s o f P u b l i c P e r s o n n e l A g e n c i e s ” i n R e a d in g s i n P u b l i c P e r s o n n e l A d m i n i s t r a t i o n ( C h i c a g o ; C i v i l S e r v i c e A sse m b ly o f t h e U n i t e d S t a t e s and C a n a d a , 1942) p . 1 3 0 .
78 n i n e t y p e r c e n t o f a l l e m ployee s w e re c o v e r e d b y r e t i r e m e n t s y s t e m s , w h i l e i n Los A n g e l e s C o u n ty a l o n e t h e r e was more t h a n a 500 p e r c e n t i n c r e a s e i n r e t i r e m e n t s y s t e m s i n t h e f i v e y e a r p e r i o d fro m 1944 t o 1 9 4 9 .
A sim ple m en tal
p r o j e c t i o n o f t h i s grow th i n t o th e f u t u r e can o n ly l e a d to t h e c o n c l u s i o n t h a t a l l em plo yee s o f t h e s m a l l e r c i t i e s
of
s o u t h e r n C a l i f o r n i a w i l l s o o n be u n d e r r e t i r e m e n t s y s t e m s . Employee r e l a t i o n s »
The s m a l l e r c i t i e s d i d n o t h a v e
v i g o r o u s o r g a n i z e d p l a n s f o r d e a l i n g w i t h em ployee g r i e v ances.
P u b l i c a g e n c i e s and g r o u p s o f i n t e r e s t e d c i t i z e n s
h a v e d e c l a r e d t h a t p u b l i c em p lo y ee s h a v e no r i g h t t o a f f i l i a t e w ith organized la b o r u n io n s.^
Because o f t h i s
p r o h i b i t i o n i t w o u ld seem l o g i c a l f o r c i t y c o u n c i l s a n d c i t y managers to f o r m u l a te d e f i n i t e p la n s f o r th e a l l e v i a t i o n o f em ployee g r i e v a n c e s .
The l a c k o f s u c h p l a n n i n g i n t h e c i t i e s
s u r v e y e d shov/s t h a t t h e y h a v e n o t m et t h i s c h a l l e n g e .
Indeed,
t h e y h a v e n o t g e n e r a l l y gone e v e n so f a r a s t o p r o v i d e c o p i e s o f t h e c i v i l s e r v i c e r u l e s f o r a l l new e m p l o y e e s . Of c o u r s e , c i t y a d m i n i s t r a t o r s and c i t y c o u n c i l m a n h a v e n o t , a s a g r o u p , a t t e m p t e d t o p a s s on t o t h e c i v i l s e r v i c e c o m m is s io n s t h e i r em ployees* g r i e v a n c e s r e l a t i n g
to p ay .
However, i f t h e y d i d s o , i n m o st c a s e s i t w ould amount t o a
4 F o r a g e n e r a l t r e a t m e n t o f t h i s s u b j e c t s e e Employee O rg a n iz a tio n s in the P u b llc S e r v i c e , N a tio n a l C i v i l S e rv ic e L e a g u e , New Y o rk , 1 9 4 6 .
79 s i m p l e e x c h a n g e o f t h e b e l i e f s o f one p a r t - t i m e g r o u p f o r th o se o f an o th er p a r t- tim e group, n e i th e r s e t of b e l i e f s b e i n g f o u n d e d upo n t h e t e c h n i c a l know ledge o f p a y p r o b le m s o r a c o m p l e t e u n d e r s t a n d i n g o f a l l t h e p r o b le m s i n v o l v e d . T h is s u r v e y h a s r e v e a l e d , on t h e o t h e r h a n d ,
t h a t th e
em p lo y e e s h a v e n o t e x h i b i t e d a s t r o n g t e n d e n c y t o b a n d t o g e t h e r to d e a l c o l l e c t i v e l y w ith the c i t y a d m i n i s t r a t i o n . However,
two g r o u p s o f c i t y em p loyees h a v e a p p a r e n t l y b r u s h e d
a s i d e the outspoken c r i t i c i s m s o f m u n ic ip al a d m i n i s t r a t o r s and a f f i l i a t e d w i t h n a t i o n a l l a b o r u n i o n s . ^ T h is l a c k o f v i g o r o u s a c t i o n b y b o t h e m p lo y e e s an d c i t i e s c a n n o t be s t r o n g l y a s c r i b e d t o one o r a n o t h e r c le a rc u t cause.
P e r h a p s i t i s due t o t h e i n t i m a c y an d
p e r s o n a l know ledge o f one a n o t h e r a r i s i n g from t h e s m a l l n e s s o f t h e c i t i e s and t h e l i m i t e d s c o p e o f t h e i r o p e r a t i o n s . But w hatever th e cause of t h i s la c k of o rg an iz ed d e a lin g , i t i s c e r t a i n t h a t p r o b le m s e x i s t w h ic h n e e d m u t u a l a c t i o n . The s u b s t a n t i a l number o f c l a s s i f i c a t i o n a n d p a y p l a n s i n e x iste n c e in these c i t i e s in d ic a te s
th is.
The u s e o f t h e t e c h n i c a l s e r v i c e s o f o t h e r a g e n c i e s . A c o n s p i c u o u s r e s u l t o f t h i s s u r v e y was t h e d i s c l o s u r e o f t h e d e g r e e t o w h ic h c i t y a d m i n i s t r a t o r s made u s e o f o t h e r agencies fo r te c h n ic a l p ro ced u res.
5 C f ., p. 60.
T h is was e s p e c i a l l y t r u e
80 i n t h e f i e l d s o f t e s t i n g , r e t i r e m e n t a d m i n i s t r a t i o n , an d t h e d e v e l o p m e n t o f c l a s s i f i c a t i o n and p a y p l a n s . I t is in te re stin g
to n o t e t h a t t h i s a c t i v i t y f o l l o w s
t h e p r e d i c t i o n o f L e o n a r d D. W hite made i n 1940 r e g a r d i n g t h e coming t e n y e a r s i n p u b l i c p e r s o n n e l a d m i n i s t r a t i o n . A c c o r d i n g t o h im , 11t h e p r i n c i p a l new t a s k o f c i v i l s e r v i c e s t a t e s m a n s h i p w i l l be t h e c o o r d i n a t i o n o f t h e p u b l i c s e r v i c e system s o f th e f e d e r a l , s t a t e , and l o c a l g o v e rn m e n ts• The l o c a l g o v e r n m e n t s i n t h i s a r e a h a v e d e f i n i t e l y s h o u l d e r e d t h i s new r e s p o n s i b i l i t y an d made o f i t s
execution
a s h i n i n g exam ple f o r t h e o t h e r l e v e l s o f g o v e r n m e n t . II.
WHY THE PERSONNEL PRACTICES VARY
The f o r e g o i n g h a s r e v e a l e d t h e e x t e n t t o w h i c h v a r i o u s p e r s o n n e l p r a c t i c e s have b ee n a c c e p t e d i n th e s m a lle r c i t i e s of southern C a lif o r n ia .
The l a c k o f u n i f o r m i t y i n t h e i r
a c c e p t a n c e i s i n d i c a t i v e o f a d i v e r g e n c e o f o p i n i o n among t h e p o l i c y m a k ers o f t h e s e c i t i e s .
This d i v e r s i t y p r o b a b ly
h a s a number o f s o u r c e s , b u t one l i n e o f r e a s o n i n g c a n b e c i t e d a s o u t s t a n d i n g - - t h e b e l i e f t h a t s m a l l c i t i e s do n o t r e q u ir e p ersonnel program s. H olders of t h i s o p in io n p o i n t to th e f a c t t h a t
® rfP e r s o n n e l A d m i n i s t r a t i o n — S e v e n t h D e c a d e , w I n R e a d i n g s i n P u b lic P erson nel A d m in istra tio n , op • c i t . , p . 2 •
81 d e p a rtm e n t heads i n s m a ll c i t i e s a r e u s u a l l y so w e ll a c q u a i n t e d w i t h t h o s e who a p p l y f o r work t h a t t h e y do n o t h a v e t o r e l y on f o r m a l t e s t s o f t h e a p p l i c a n t s * In add itio n ,
cap acities*
t h e y s a y t h a t t h e s m a l l number o f em p lo y e e s i n
e a c h d e p a r t m e n t e n a b l e s t h e d e p a r t m e n t h e a d s t o know n o t o n l y a l l a b o u t e a c h o f t h e i r e m p lo y ee s b u t a l s o a g r e a t d e a l a b o u t e m p lo y ee s i n o t h e r d e p a r t m e n t s .
P o ssession of th is
i n f o r m a t i o n p r e v e n t s u n f a i r n e s s a n d i n c o n s i s t e n c i e s , an d r i g i d p e r s o n n e l r u l e s w o u ld o n l y h a m s t r i n g t h e o p e r a t i o n s o f the d e p a rtm e n ts and n o t ta k e the p l a c e o f t h i s f a m i l i a r i t y * T his t r a i n o f t h o u g h t i s p r o b a b l y e n c o u r a g e d b y t h e b e l i e f t h a t sm all c i t y a d m i n i s t r a t i o n i s l a r g e l y n o n - te c h n ic a l i n n a t u r e an d d o e s n o t r e q u i r e h i g h l y s k i l l e d a n d h i g h l y p a i d em p lo y e e s t o c a r r y on i t s
fu n ctio n s.
An exa m ple o f t h i s
t y p e o f t h i n k i n g i s e x h i b i t e d i n t h e r e m a r k s made t o J a m i s o n a b o u t em ployee s e r v i c e r a t i n g s . 7 Evidence o f th e im p o rta n c e o f t h i s f a c t o r i s p ro v id e d b y t h e l a c k o f c o m p l e t e p e r s o n n e l p ro g ra m s i n t h o s e c i t i e s w h i c h do n o t have c i v i l s e r v i c e .
I n o t h e r w ords, the c i t y
c o u n c i l s have h e l d b a c k u n t i l t h e em ployee s o r t h e p u b l i c h a v e f o r c e d p e r s o n n e l p r o g r a m s on them by p l a c i n g t h e m e a s u r e s on t h e b a l l o t an d g e t t i n g t h e v o t e r s * a p p r o v a l o f the c i v i l s e r v i c e sy stem s.
7 Jam ison, l o c . c l t . . p. 26-28.
'
82 A n o t h e r a r e a o f a n t a g o n i s m t o p e r s o n n e l p r o g ra m s i s fin a n c ia l in n ature.
No c i t y c o u n c i l w a n t s t o i n c r e a s e a
c i t y ! s b u d g e t b y s e t t i n g up a p r o g r a m w h i c h e x p e c t s e i t h e r i n t a n g i b l e r e s u l t s o r r e s u l t s w h ic h do n o t emerge f o r y e a r s , a s w ould be t h e c a s e o f a good r e c r u i t m e n t p r o g r a m .
In
o th e r w ords, i t i s s a id t h a t a sm a ll c i t y can n o t a f f o r d a p e rso n n e l system .
A v i e w p o i n t w h ic h h a s w id e a c c e p t a n c e i n
th ese c i t i e s i s d e s c r ib e d by P f i f f n e r i n h is book, S u p e rv is io n Q o f P e r s o n n e l ; Human R e l a t i o n s i n t h e Management o f Men. T h is i s a management s t e r e o t y p e w h i c h h o l d s t h a t em p loyee g r i e v a n c e s a r e b e s t s e t t l e d b y r e f u s i n g t o r e c o g n i z e them and t h a t r e c o g n itio n w ill on ly le a d to a m u l t i p l i c i t y of such g riev ances.
T h is a t t i t u d e may a c c o u n t f o r t h e d e c i d e d l a c k
of g riev a n ce procedures i n these c i t i e s . An a n a l y s i s o f r e a s o n s f o r n o t i n s t a l l i n g a p e r s o n n e l system m ight r e v e a l a p r e v a i l i n g f e e l i n g t h a t a l l p u b lic e m p lo y e e s a r e p a r a s i t e s and t a x - e a t e r s .
A c o m m itt e e o f t h e
C i v i l S e r v i c e A sse m b ly h as c a l l e d t h i s ,!t h e c h a r i t y c o n c e p t o f the p u b lic p a y r o l l . ”^
S ince they a r e n o n -p ro d u c tiv e
anyw ay, a n y t h i n g done t o b e t t e r t h e i r l o t i s more money w a s t e d .
j u s t t h a t much
T h is a t t i t u d e h a s a n e m o t i o n a l b a s i s ;
8 J o h n M. P f i f f n e r , S u p e r v i s i o n o f P e r s o n n e l : Human R e l a t i o n s i n t h e Management o f Men ( U n i v e r s i t y o f S o u t h e r n C a l i f o r n i a , Los A n g e l e s , 19497 Mimeo. p . 2 3 8 . 9 I n t e r n a t i o n a l C i t y Managers* A s s o c i a t i o n , A C a r e e r S e r v i c e i n L o c a l Government ( C h i c a g o , J u l y 1937) p . 7 .
c o n s e q u e n tly , fo rm al and l o g i c a l p l a n s , su ch as c l a s s i f i c a t i o n an d p a y p l a n s , a r e p a r t i c u l a r l y a b h o r r e n t t o t h o s e holding i t *
That th e v ie w p o in t e x i s t s i s s u p p o r te d by the
f a c t t h a t L e o n a r d D. W h ite f o u n d t h e g e n e r a l p u b l i c t o h a v e little
r e g a r d f o r p u b l i c employment a n d p u b l i c em ployees A s e a r c h o f t h e c i t y g o v e r n m e n t i t s e l f w ould f i n d
opponents to a p e r s o n n e l program . P fif f n e r d escribes
D e p a r t m e n t h e a d s s u c h as
who bla m e t h e i r own s h o r t c o m i n g s on
c i v i l s e r v i c e , c e r t a i n l y cannot be ex p ecte d to g iv e t h e i r w h o le s u p p o r t t o f u r t h e r i n g e i t h e r a c i v i l s e r v i c e o r p e r s o n n e l program .
M e n tio n h a s a l r e a d y b e e n made o f t h e u n f a v o r
a b l e a t t i t u d e o f one c i t y o f f i c i a l who was c h a r g e d w i t h t h e r e s p o n s i b i l i t y o f m a in ta in in g th e c i v i l s e r v i c e system i n h is c i t y . ^ In c o n s id e rin g the b a s ic causes f o r the la c k o f ex ten s i v e p e r s o n n e l programs i n th e s e s m a l l e r c i t i e s
the sta te m e n ts
o f a c i v i l s e r v i c e com m issioner f o r such a c i t y a r e a p ro p o s. The c i t y c o u n c i l s , he s a y s , do n o t w a n t t o h i r e p a r t - t i m e p e r s o n n e l o f f i c e r s b e c a u s e t h e members o f t h e c o u n c i l s b e l i e v e th e y a r e r e s p o n s i b l e to th e people f o r the p erso n n e l
Fu p t h e r C o n t r i b u t i o n s t o t h e P r e s t i g e V a lu e o f P u b l i c Employment ( C h i c a g o ; U n i v e r s i t y o f C h i c a g o P r e s s , 19327 88 p p . 11 P f i f f n e r ,
o jd .
ci
t
. . p. 231.
84 s y s t e m an d no one i s t o be a l l o w e d t o t a k e i t o u t o f t h e i r hands III.
THE IMPORTANCE OP THE PERSONNEL FUNCTIONS
The o b j e c t i o n s s t a t e d i n t h e f o r e g o i n g s e c t i o n a r e n o t o n l y a r g u m e n t s dream ed up b y a n t a g o n i s t i c c o u n c i l m e n ; t h e y a r e r e p r e s e n t a t i v e o f t h e v ie w s o f t h i n k i n g o p p o n e n t s . However, w h e t h e r o p p o r t u n i s t i c o r g e n u i n e ,
these sta tem en ts
a r e i n f l u e n t i a l and r e q u i r e a u t h o r i t a t i v e r e f u t a t i o n .
An
a n a l y s i s o f t h e s t a t e m e n t s b y o r g a n i z a t i o n s w h i c h h a v e made s e r i o u s s t u d i e s o f t h e p r o b l e m o f p e r s o n n e l p r o g ra m s s u p p o r t s the need f o r such program s. S m a l l c i t i e s c a n make u s e o f p e r s o n n e l p r o g r a m s . p e r s o n n e l p r o b le m s do n o t e x i s t ,
If
th en i t i s obvious t h a t
s o l u t i o n s a r e s u p e r f l u o u s and th e assu m p tio n o f any s o r t o f f o r m a l p e r s o n n e l f u n c t i o n i s a w a s t e o f t im e an d money f o r the c i t y .
The I n t e r n a t i o n a l C i t y M a n a g e r s 1 A s s o c i a t i o n h a s
p re p a re d a t e x t co v erin g the f i e l d o f m unicipal p e rso n n e l a d m i n i s t r a t i o n , i n w h ic h o c c u r s t h e f o l l o w i n g s t a t e m e n t s I t s h o u l d be a p p a r e n t . . . t h a t e v e r y c i t y g o v e r n m e n t , r e g a r d l e s s o f I t s s i z e or form al s t r u c t u r e , has i t s p e r s o n n e l p r o b l e m s . I t s h o u l d a l s o be a p p a r e n t t h a t t h e d i m e n s i o n s and c o m p l e x i t y o f t h i s p r o b l e m a r e s u c h t h a t i t c a n n o t b e s o l v e d p r o p e r l y by h a p h a z a r d
13 Fr om a c o n v e r s a t i o n w i t h a c i v i l s e r v i c e c o m m i s s i o n e r o f a s m a l l c i t y i n th e g r o u p s u r v e y e d .
85 poorly organized e f f o rts * I f t h i s p e r s o n n e l problem i s t o be d e a l t w i t h a d e q u a t e l y , t h e r e m u st b e a n a p p r e c i a t i o n o f i t s s c o p e an d i m p l i c a t i o n s , a c l e a r u n d e r s t a n d i n g a s t o who i s r e s p o n s i b l e f o r t h e a d m i n i s t r a t i o n o f p e r s o n n e l a c t i v i t i e s , and a w e l l c o n c e i v e d an d v i g o r o u s l y a d m i n i s t e r e d p e r s o n n e l p r o g r a m * 14 L e s t t h i s ap p e a r to e x p re s s a b i a s e d o p in io n as to the w o r t h o f p e r s o n n e l p r o g r a m s , i t may b e s u p p l e m e n t e d b y t h e sta te m e n t o f an o r g a n iz a tio n devoted to sound, e f f i c i e n t , a n d e c o n o m i c a l g o v e r n m e n t , s u c h a s t h e Tax F o u n d a t i o n , whose p a m p h l e t on t h e p e r s o n n e l f u n c t i o n i n c i t y g o v e r n m e n t b e g i n s w i t h t h e s e w ords
%
The i m p o r t a n c e o f a s o u n d p r o g ra m o f p e r s o n n e l a d m i n i s t r a t i o n t o economy and e f f i c i e n c y i n m u n ic ip a l governm ent can s c a r c e l y be o v e r s t a t e d * Such a p r o g r a m e x e r t s s t r o n g c o n t r o l o v e r th e many f a c t o r s g o v e r n i n g t h e c o m p e t e n c e , m o r a l e , and perform ance of em ployees. I t a s s u r e s t h a t each w orker i s e f f e c t i v e l y engaged, p r e v e n ts the employment o f u n n e e d e d w o r k e r s , a n d p r o v i d e s f o r wage and s a l a r y r a t e s w h ic h a r e co m m en su rate w i t h t h e d u t i e s p e r f o r m e d * 15 T h is s t a t e m e n t i s n o t q u a l i f i e d b y c o n s i d e r a t i o n s o f s i z e o r an y o t h e r v a r i a b l e f a c t o r , b u t may a p p l y t o a l l c i t i e s . As f u r t h e r e v i d e n c e o f t h e p r a c t i c a b i l i t y o f t h e f o r m a l p e r s o n n e l p r o g ra m i n s m a l l c i t i e s
the te stim o n y of e x p e rts
i n t h e p u b l i c p e r s o n n e l f i e l d s h o u l d b e added*
The San D ieg o
14 I n t e r n a t i o n a l C i t y Managers* A s s o c i a t i o n , M u n i c i p a l P e r s o n n e l A d m i n i s t r a t i o n ( C h i c a g o , 1942) p . 2 5 . 15 The Tax F o u n d a t i o n , A C i v i c G u id e t o Economy i n M u n i c i p a l Government Number S i x P e r s o n n e l (New Y o rk , 1946) p . 1*
86
C o u n ty C i v i l S e r v i c e Commission r e c e n t l y i n s t a l l e d a m e r i t s y s t e m i n a s m a l l n e i g h b o r i n g com m unity.
And t h e Commission
a r r i v e d a t t h e c o n c l u s i o n t h a t !,e s t a b l i s h i n g a m e r i t s y s t e m i n a sm a ll j u r i s d i c t i o n i s r e a d i l y p r a c t i c a b l e by t r a i n e d 16
t e c h n i c i a n s , u s i n g p r o p e r t o o l s a n d m ethods •** The c o s t o f p e r s o n n e l p r o g r a m s .
The s t a t e m e n t s a s t o
t h e w o r t h o f p e r s o n n e l p r o g r a m s i n te rm s .of c o s t , made by a n o r g a n i z a t i o n d e v o t e d to t h e r e d u c t i o n o f c o s t s i n g o v e r n m e n t , h av e a l r e a d y b e e n c i t e d . th ese statem en ts is
L en d in g e m p h a s i s t o
t h e one fro m t h e f o r e w o r d o f t h e same .
p u b licatio n : S a l a r i e s and wages u s u a l l y a c c o u n t f o r b e t w e e n 60 and 75 p e r c e n t o f t h e c u r r e n t o p e r a t i n g e x p e n d i t u r e s o f m u n i c i p a l g o v e r n m e n t . A l t h o u g h t h e r e i s no s i n g l e way t o a c h i e v e e c o n o m i c a l g o v e r n m e n t , a p e r s o n n e l p r o g r a m w h ic h p l a c e s a d e q u a t e c o n t r o l s o v e r t h i s one m a j o r i t e m o f c o s t w i l l do much to w a r d s e c u r i n g o v e r a l l economy
.^
Thus, i n s t e a d o f j u s t i f y i n g a p e r s o n n e l program by c itin g in ta n g ib le s,
th e agency em phasizes the d e s i r a b i l i t y
o f su c h a program as an a i d i n c u t t i n g c o s t s . S te r e o ty p e s as f a c t o r s o f o p p o s i t i o n .
T h e r e seems to b e
no one s i n g l e m ethod b y w h i c h t h e o p p o s i t i o n o f e l e c t i v e a n d appoin tiv e o f f ic ia l s
t o p e r s o n n e l p ro g ra m s c a n b e e l i m i n a t e d .
A C om m ittee o f t h e I n t e r n a t i o n a l C i t y M a n a g e r s ’ A s s o c i a t i o n
San D iego C o u n ty C i v i l S e r v i c e Commission A n n u al R e p o r t f o r t h e F i s c a l Y ear 1 9 4 8 - 4 9 . p . 7 . 1*7 The Tax F o u n d a t i o n ,
o jd .
c i t . . Foreword.
87 s t a t e d t h a t t h e f o r m u l a t i o n o f i d e a l s and a d h e r e n c e t o them by p r o f e s s i o n a l o r g a n i z a t i o n s o f a d m i n i s t r a t o r s w i l l b e o f ft g r e a t v a l u e i n c o m b a t t i n g t h i s v i e w p o i n t . ■iLO
A ccording to P r o f e s s o r P f i f f n e r such s t e r e o t y p e s a r e a r e s u l t o f o u r c u l t u r e a n d r e f l e c t o u r b e l i e f t h a t management s h o u l d have a f r e e h an d t o d e a l w i t h i t s e m p lo y e e s a s i t s e e s f i t . 19 Only a s r e p r e s e n t a t i v e s o f e m p lo y e e s and t a x c o n s c i o u s g r o u p s p u t i n c r e a s i n g p r e s s u r e on t h o s e h o l d i n g t h e s e v ie w s w i l l t h e y c h a n g e to p o s i t i o n s more f a v o r a b l e t o adequate p e rso n n e l program s.
This a p p l i e s a l s o to th o se
c i t i z e n s who b e l i e v e t h a t g o v e r n m e n t e m p lo y e e s a r e p a r a s i t e s who h a v e t o o much a l r e a d y .
L eaders o f th e ta x groups have
shown t h i s c o n s c i o u s n e s s o f t h e i m p o r t a n c e o f p e r s o n n e l program s.
I t i s b e l i e v e d t h a t o t h e r s w i l l go a l o n g i n
i n c r e a s i n g numbers i n t h e f u t u r e . The b e l i e f t h a t c i t y c o u n c i l s s h o u l d manage p e r s o n n e l . A c o n f u s i o n h a s e v i d e n t l y grown up i n t h e m inds o f c i t y c o u n c i l m a n as t o t h e i r r o l e i n t h e managem ent o f c i v i l a ffairs.
I t may b e p a r t l y due t o t h e b e l i e f t h a t p e r s o n n e l
f u n c t i o n s a r e a t h i n g a p a r t from t h e g e n e r a l a d m i n i s t r a t i v e program .
The p o i n t was d e m o n s t r a t e d i n t h i s s u r v e y b y a n
a t t i t u d e , on t h e p a r t o f many o f t h o s e r e s p o n s i b l e f o r c i v i l
18 A C a r e e r S e r v i c e , 19 P f i f f n e r ,
o jd
.
c i t . . p. 13.
o jd. c i t , . p . 2 7 .
88 s e r v i c e i n t h e i r c i t i e s , w hich i n d i c a t e d t h a t th e y f e l t i t was s o m e t h i n g t o be p u t i n a d r a w e r and f o r g o t t e n u n t i l needed, lik e a p e n c il or a s l i d e ru le*
The M u n i c i p a l
P e r s o n n e l A d m i n i s t r a t i o n t e x t bo o k s t r o n g l y a r g u e s t h a t t h e c o n v e r s e i s sos I t needs to be em phasized most e m p h a t i c a l l y * •* t h a t p e r s o n n e l a d m i n i s t r a t i o n i s n o t t h e e x c l u s i v e dom ain o f any s i n g l e agency. P e r s o n n e l p r o g ra m s p e r m e a t e v i r t u a l l y e v e r y g o v e r n m e n t a l a c t i v i t y o r p r o g r a m an d t o assume t h a t a c e n t r a l p e r s o n n e l a g e n c y i s c o m p e t e n t b y i t s e l f t o cop e w i t h t h e s e p r o b l e m s i s t o u n d e r e s t i m a t e t h e i r c o m p l e x i t y and to p l a c e an u n b e a ra b ly heavy bu rd en upon the p e r s o n n e l a g e n c y . ^ The r e f e r e n c e h e r e t o t h e c e n t r a l p e r s o n n e l a g e n c y , f a r fro m d e n y i n g t h e v a l i d i t y o f t h e a r g u m e n t , a c t u a l l y proves the p o i n t .
I f d e a l i n g s w i t h e m p lo y e e s a r e n o t t h e
e x c l u s i v e p r o v i n c e o f a d e p a r t m e n t manned b y s k i l l e d p e rs o n n e l p e o p le , th e y c e r t a i n l y a r e n o t to be r e s t r i c t e d t o t h o s e who a r e e l e c t e d t o p a r t - t i m e o f f i c e on t h e b a s i s of lo cal p o p u larity . The e f f o r t s o f c i v i c o r g a n i z a t i o n s p erso n n e l program s.
to p r o m o te m u n i c i p a l
The Tax F o u n d a t i o n s t a t e s
t h a t tfc i v i c
i n t e r e s t i n a m u n i c i p a l p e r s o n n e l p r o g ra m i s v e r y i m p o r t a n t to i t s
21
s u c c e s s . 11
A lthough t h i s r e f e r s to the m a in ta in a n c e
o f a program a f t e r th e i n s t a l l a t i o n , i t i s
j u s t as i m p o r t a n t
20 M u n i c i p a l P e r s o n n e l A d m i n i s t r a t i o n , ojd. c i t . . p . 2 5 . 21 The Tax F o u n d a t i o n , o£ . c i t . . F o r e w o r d .
89 t h a t c i v i c groups a i d th e fo rw a rd -lo o k in g m u n ic ip a l ad m inistrators
to f o rm u la te such a program .
The e f f o r t s o f
22
s u c h g r o u p s a s t h e League o f Women V o t e r s , and b u s i n e s s 23 m e n 's l u n c h e o n c l u b s c a n go a l o n g way to w a r d o v e rc o m in g th e p r e j u d i c e s and o b s t a c l e s p r e v i o u s l y m e n tio n e d .
Even t h e
m o st r e c a l c i t r a n t e l e c t i v e o f f i c i a l w ou ld h e s i t a t e to p e r s i s t i n h i s a n t a g o n i s m when f a c e d b y g r o u p s o f v o t e r s who w ere d e te rm in e d t h a t p e r s o n n e l p o l i c i e s s h o u ld be f o r m u l a te d , IV.
RECOMMENDATIONS
Use o f o t h e r a g e n c i e s .
The f i r s t r e c o m m e n d a tio n c o n c e r n s
new a r e a s o f a c t i v i t y i n w h ic h t h e a g e n c i e s o f l a r g e r c i t i e s can a s s i s t s m a l l e r c i t i e s and i n w hich th e s e s m a l l e r c i t i e s can band t o g e t h e r f o r m utual a s s i s t a n c e .
The way h a s b e e n
p a v e d b y t h e a r r a n g e m e n t s b e t w e e n t h e c i t i e s an d Los A n g e le s C o u n t y , t h e S t a t e P e r s o n n e l B o a r d , and t h e S t a t e Employees R e t i r e m e n t S y s te m ; now s i m i l a r a r r a n g e m e n t s c a n b e e x t e n d e d t o o t h e r f u n c t i o n s o f p e r s o n n e l m anagem ent.
The f i r s t f i e l d
s u g g e s t e d f o r a d d i t i o n a l e f f o r t i s t h a t o f em plo yee s a f e t y , b e c a u s e o f t h e s e r i o u s l a c k o f s a f e t y p r o g ra m s i n t h e s e
22 N a t i o n a l L eag ue o f Women V o t e r s , A Handbook f o r t h e P e r s o n n e l Campaign ( W a s h in g to n D . C . , O c t o b e r 1935) 12 p p . 23 Howard P . J o n e s , flC i t i z e n G r o u p s , Tool o f D e m o c ra c y ," B e t t e r C i t y G o v e r n m e n t. Ray V. P e e l , E d. The A n n a ls o f t h e A m e r ic a n Academy o f P o l i t i c a l a n d S o c i a l S c i e n c e ( P h i l a d e l p h i a , 1938) p . 1 7 8 .
90 sm aller c i t i e s .
The o t h e r f i e l d w h ic h h a s b e e n c o n s i s t e n t l y
n e g l e c t e d , an d w h ic h i s consid eratio n , is
t h a t o f em ployee s u g g e s t i o n s y s t e m s .
A ls o n e e d e d i s S ince a l l
t h e r e f o r e recommended f o r e a r l y
the e s ta b lis h m e n t of c a r e e r s e r v i c e s .
t h e c i t i e s b e l o n g t o one r e t i r e m e n t s y s t e m , one
o b s t a c l e t o t h e t r a n s f e r o f c a p a b l e e x p e r i e n c e d e m p lo y e e s f ro m one c i t y to a n o t h e r i s done away w i t h .
The c i t i e s
s h o u l d now work o u t p l a n s b y w h ic h p r o m i s i n g e m p lo y e e s who a r e b l o c k e d f o r p r o m o t i o n i n one c i t y c a n g e t i n t o h i g h e r p o s i t i o n s b y t r a n s f e r r i n g f r o m one c i t y t o t h e o t h e r . The u s e o f p a r t * t i m e p e r s o n n e l d i r e c t o r s .
I n v ie w o f
t h e l a c k o f t e c h n i c a l l y t r a i n e d e m p lo y ee s i n t h e p e r s o n n e l p r o g ra m s o f t h e s m a l l e r c i t i e s i t i s recommended t h a t g r o u p s o f t h e s m a l l e r c i t i e s b a n d t o g e t h e r an d employ p e r s o n n e l d irecto rs sure,
t o s e r v e e a c h c i t y on a p a r t - t i m e b a s i s .
To b e
th e s e c i t i e s can c o n t r a c t w ith e i t h e r th e C o o p e ra tiv e
P ersonnel S erv ice s u n i t o f the
S t a t e P e r s o n n e l B o a rd o r t h e
c o n t r a c t u n i t o f t h e Los A n g e l e s C o u n t y C i v i l S e r v i c e Com mission f o r s i m i l a r s e r v i c e s .
However, t h e s e a g e n c i e s a r e
l i m i t e d b o th i n the s e r v ic e s th ey can p ro v id e and i n the i n t e n s i t y o f th e s e r v i c e s p ro v id e d ; i n o t h e r w ords, th e y s ta n d r e a d y to be c a l l e d i n t o u se whenever n e c e s s a r y , b u t th e y c a n n o t go i n t o a c i t y i n a d v a n c e o f s u c h a p p l i c a t i o n b y t h e city .
And i t i s p r e c i s e l y i n t h i s way t h a t a p e r s o n n e l
d i r e c t o r who s p e n d s p a r t o f e a c h week i n t h e c i t y c a n be
91
m o st u s e f u l .
He becomes t h o r o u g h l y a c q u a i n t e d w i t h th e
d e p a r t m e n t h e a d s a n d t h e i r p r o b le m s a n d c a n f i n d s o l u t i o n s t o t h e s e p r o b le m s b e f o r e t h e y become m a j o r .
He h a s e n o u g h
tim e t o map o u t a t e s t i n g p r o g r a m w h ic h w i l l n o t o n l y m a i n t a i n t h e w o r k i n g f o r c e b u t a t t r a c t a p p l i c a n t s who s u i t the d e p a rtm e n t h e a d s . The employment o f p a r t - t i m e p e r s o n n e l d i r e c t o r s f o r g roups o f c i t i e s w i l l s o lv e a n o th e r a d m i n i s t r a t i v e problem — t h a t o f r e a c h in g s o l u t i o n s o f p e r s o n n e l problem s by t e l e phone o r b y l e t t e r .
T h e re a r e two a s p e c t s t o t h i s p r o b l e m .
One i s t h a t o f t h e c i t i e s w i t h a d m i n i s t r a t o r s who b e l i e v e t h a t o n l y q u e s t i o n s o f t h e f i r s t m a g n i t u d e s h o u l d be t a k e n up w i t h t h e c o n t r a c t a g e n c y and c o n s e q u e n t l y l e t many p r o b le m s d e v e l o p i n t o i n s o l u b l e t w i s t s b e f o r e c a l l i n g u po n the c o n t r a c t i n g agency.
The o t h e r h a s t o do w i t h th e u n
c e r t a i n m u n i c i p a l a d m i n i s t r a t o r s who c a l l u p o n t h e i r c o n t r a c t a g e n c ie s f o r the answers to a l l ty p es o f q u e s t i o n s .
As a
r e s u l t of t h i s m u l t i p l i c i t y o f d e t a i l e d q u e s tio n s the t e c h n i c i a n s o f t h e c o n t r a c t a g e n c i e s may n o t u n d e r s t a n d t h e v a r i a t i o n s i n th e s i t u a t i o n s w hich c a u se th e q u e s t i o n s , and g iv e v e r b a l o r w r i t t e n answ ers w hich a r e n ’ t p r e c i s e l y a p p l i c a b l e to th e case a t hand.
On t h e o t h e r h a n d , t h e p a r t - t i m e p e r s o n n e l
d i r e c t o r w ould n o t o n l y know t h e l o c a l s i t u a t i o n , b u t w ould b e on t h e s p o t t o n o t e s i g n i f i c a n t f a c t o r s w h i c h m i g h t a f f e c t the d e c i s i o n s .
In ad d itio n ,
t h e a d m i n i s t r a t o r s who w ould
92 h esitate
t o b r i n g s e e m i n g l y m i n o r p r o b le m s to t h e a t t e n t i o n
o f t h e l a r g e r c o n t r a c t i n g a g e n c i e s would n o t b e so h e s i t a n t t o do so w i t h a p e r s o n h i r e d f o r t h e p u r p o s e o f s o l v i n g p e rso n n e l problem s.
I n t h i s way, many i n c i p i e n t s e r i o u s
p r o b le m s c o u l d b e d e a l t w i t h w h i l e t h e y w e re s t i l l in sig n ifica n t. B u t a s i d e fro m t h e a d v a n t a g e s o f h a v i n g a man r e a d i l y a v a i l a b l e who knows t h e l o c a l s i t u a t i o n ,
there i s
the o v e r
a l l a d v a n t a g e o f s e c u r i n g th e s e r v i c e s o f a t r a i n e d man a t a p r i c e the c i t i e s can i n d i v i d u a l l y a f f o r d to p ay.
T h is
a d v a n t a g e h as l o n g b e e n s t r e s s e d b y t h e L eag ue o f C a l i f o r n i a C i t i e s , n o t only i n the p e rs o n n e l f i e l d b u t i n o th e rs of s i m i l a r t e c h n i c a l n a t u r e . 24 The d e v e l o p m e n t o f em ployee p a r t i c i p a t l o n i n p e r s o n n e l p o lic y fo rm u latio n . means o f b r i n g i n g t h e
A n o t h e r r e c o m m e n d a tio n d e a l s w i t h t h e r a n k - a n d - f i l e w orkers i n t o th e c l o s e d
c i r c l e o f a d m i n i s t r a t i o n w here p e r s o n n e l p o l i c y i s s e t . T h i s t y p e o f a c t i v i t y was n o t a b l y l a c k i n g i n t h e c i t i e s surveyed; yet i f
there i s
to be democracy a t th e g r a s s r o o t s , 25 t h i s i s one o f t h e e s s e n t i a l s . That t h i s co n cep t of p a r t i c i p a t i o n can be p u t i n t o a c t io n
24 Prom a n i n t e r v i e w w i t h R i c h a r d G r a v e s , E x e c u t i v e S e c r e t a r y , League o f C a l i f o r n i a C i t i e s . 25 P f i f f n e r , S u p e r v i s i o n o f P e r s o n n e l ,
o jd .
c i t . , p . 64.
95 i s shown by t h e e x p e r i e n c e o f a s m a l l m i d w e s t e r n c i t y .
pc
I n t h i s c i t y t h e e m p lo y e e s e l e c t e d r e p r e s e n t a t i v e s t o a n em p lo y ee s c o u n c i l w h ic h met m o n t h l y .
The f u n c t i o n s o f t h e
c o u n c i l w eres . . . ( 1 ) t o i n v e s t i g a t e , c o n s i d e r , an d r e p o r t , o r make r e c o m m e n d a tio n s on m a t t e r s p e r t a i n i n g to t h e e n e r a l w e l f a r e o f t h e em p lo y e e s o f t h e c i t y ; 2) u p o n r e q u e s t o f an y a p p o i n t i n g a u t h o r i t y t o ad v ise the a p p o in tin g a u t h o r i t y concerning p e r s o n n e l p ro b lem s; (3) to c o n s i d e r p e r s o n n e l p o l i c i e s an d p r o b le m s s u b m i t t e d t o i t f o r the p e r s o n n e l d i r e c t o r ; and (4) to e l e c t a r e p r e s e n t a t i v e t o t h e p e r s o n n e l a d v i s o r y b o a r d . 27
?
The c o u n c i l d i d n o t c o n s i d e r employee g r i e v a n c e s ; n o r d i d i t a c t as a c o l l e c t i v e b a r g a i n in g agency, s in c e o th e r ch an n els w ere p r o v i d e d f o r t h e s e a c t i v i t i e s . I t seems p o s s i b l e t h a t s i m i l a r c o u n c i l s c o u l d be a c t i v a t e d i n o th e r c i t i e s even i f
t h e r e was no p e r s o n n e l
d i r e c t o r to a c t a s l i a i s o n b e t w e e n t h e e m p lo y e e s and th e ad m in istratio n . E lim in a te the p r e p a r a tio n o f t e s t s by u n tr a in e d p e rs o n s ♦ I t c a n n o t be to o s t r o n g l y recommended t h a t t h e c i t i e s p r o h i b i t t h e p a r t i c i p a t i o n o f c l e r i c a l h e l p an d c i v i l s e r v i c e c o m m is s io n members i n t h e d e v e l o p m e n t o f c i v i l s e r v i c e t e s t s . To b e e f f e c t i v e t h i s w ork c a l l s f o r h i g h l y t r a i n e d
26 R u s s e l l E . McClure a n d E l d e r G u n t e r , nAn E x p e r i m e n t i n E m p lo y e r-E m p lo y e e R e l a t i o n s ” . P u b l i c Management. J u l y 1944. p. 194-7. 27 I b i d . ,
p. 195.
94 t e c h n i c i a n s an d c a n n o t b e done b y someone whose o n l y e x p e r i e n c e w i t h t e s t s h a s b e e n t h o s e he t o o k y e a r s b e f o r e i n school.
The money s a v e d by u s i n g u n t r a i n e d h e l p c a n n o t
com pensate f o r th e l o s s i n v a l i d i t y o f the t e s t s as i n s t r u m ents t o d i s t i n g u i s h b e t w e e n q u a l i f i e d an d u n q u a l i f i e d ap p lican ts• Take t h e a d m i n i s t r a t i o n o f c i v i l s e r v i c e fro m e l e c t e d o ffic ia ls.
Of e q u a l d e s t r u c t i v e n e s s t o t h e m e r i t s y s t e m i s
the p r a c t i c e of p la c in g the r e s p o n s i b i l i t y f o r c a r r y in g o u t c i v i l s e r v i c e p ro ced u res i n the o f f i c e o f an e l e c t e d o ffic ial.
Many p o l i t i c a l l y e l e c t e d p e r s o n s h av e m a rk e d
a n t i p a t h y t o w a r d c i v i l s e r v i c e an d t h o s e who do n o t h a v e th is
t r a d i t i o n a l v i e w p o i n t may b e r e p l a c e d i n an y e l e c t i o n .
O bviously,
the b e s t p e r s o n n e l p ro c e d u re s i n the w orld can n o t
be e f f e c t i v e i f an tag o n istic.
t h e p e r s o n c h a r g e d w i t h c a r r y i n g them o u t i s I t i s recommended, t h e r e f o r e ,
t h a t w herever
p o s s i b l e the c i t i e s a rra n g e f o r d ep artm en ts headed by appoin tiv e o f f ic ia l s
to a d m i n i s t e r th e c i v i l s e r v i c e program . IV .
SUMMATION
I n su m m a tio n , t h e a n s w e r s t o t h e q u e s t i o n s a s k e d a t t h e b e g i n n i n g o f t h e t h e s i s ca n b e d e v e l o p e d .
S u ch s t a n d a r d
p r a c t i c e s a s t e s t i n g , p o s i t i o n c l a s s i f i c a t i o n an d p a y p l a n s w ere i n g e n e r a l u s e i n t h e s m a l l e r c i t i e s o f s o u t h e r n C alifo rn ia.
A m a j o r i t y o f t h e p e r s o n s e m ployed i n t h e s e
95 c i t i e s w ere u n d e r c i v i l s e r v i c e and a n e v e n g r e a t e r m a j o r i t y w ere u n d e r r e t i r e m e n t s y s t e m s *
Those c i t i e s w h i c h h a d n o t
i n s t a l l e d c i v i l s e r v i c e had n o t e x t e n s i v e l y d ev elo p ed a l t e r n a t e p e r s o n n e l p r o g ra m s*
Many o f t h e r e f i n e m e n t s o f
p u b l i c p e r s o n n e l a d m i n i s t r a t i o n , s u c h as g r i e v a n c e p r o c e d u r e s , em ployee s a f e t y p r o g r a m s an d em ployee h a n d b o o k s h a d n o t been adopted by th e se c i t i e s * In g en eral,
t h e c i t i e s hav e n o t em ployed t e c h n i c i a n s
t o p e r f o r m t h e t e c h n i c a l t a s k s i n v o l v e d b u t h a v e r e l i e d up o n t h e a s s i s t a n c e o f t h e l a r g e r a g e n c i e s an d p r i v a t e f i r m s f o r the accom plishm ent o f th e t e c h n i c a l f u n c tio n s * in stan ces,
I n a few
t h e s e c i t i e s h a v e u s e d u n t r a i n e d p e r s o n s t o make
up t h e i r t e s t s ; h o w e v e r , t h i s p r a c t i c e was n o t g e n e r a l and w i l l p ro b a b ly d ie o u t as the c i t i e s a r e f o r c e d to c o n s t r u c t more a n d more t e c h n i c a l t e s t s * I t a p p e a r s f ro m t h e r e s u l t s o f t h e s u r v e y t h a t some o f th e s m a lle r c i t i e s o f s o u th e rn C a l i f o r n i a have been a b le t o s o l v e th e p r o b l e m o f b r i n g i n g e x p e n s i v e p e r s o n n e l s e r v i c e s I n t o the c i t i e s .
The o t h e r s a r e l o o k i n g a t t h e s e r e s u l t s
a n d t h e f u t u r e s h o u l d show a n i n c r e a s e d u s e o f s p e c i a l i z e d p e r s o n n e l te c h n iq u e s i n most o f the s m a lle r c i t i e s *
96 APPENDIX A CITIES OP BETWEEN 1 0 , 0 0 0 AND 1 0 0 , 0 0 0 POPULATION WITHIN 60 MILES OP LOS ANGELES
C ity A lham bra Anaheim A rcadia B ell B everly H ills B u rb an k C olton Compton C ulver C ity F u llerto n H aw thorne Hermosa Beach H untington Park Inglew ood Lynwood Maywood M onrovia M ontebello M o n te r e y P a r k Newport Beach O ntario Pomona Redondo B each R iv ersid e San B e r n a r d i n o San F e r n a n d o San G a b r i e l San M arino S a n t a Ana S a n t a Monica S o u t h G a te South Pasadena T orrance W h ittier
Number o f Employees 350 140 125 68 356 759 112 180 190 120 100 44 168 285 88 41 84 ‘ 190 80 163 200 300 86 500 569 87 82 110 384 800 200 135 125 303
P opulation 44,013 13,000 18,331 13,500 28,217 7 2 ,5 8 8 12,717 32,254 1 7 ,1 4 6 12,173 14,131 11,172 29,892 42,964 20,650 13,000 18,011 18,144 13,909 1 0 ,9 9 4 20,000 31,329 2 0 ,0 0 0 43,393 56,193 1 1 ,2 8 6 18,500 10,500 45,000 67,473 45,820 16,811 12,200 20,113
Di s t a 8 29 18 6 10 12 55 11 10 26 12 18 6 11 10 8 18 9 8 39 36 30 21 53 57 22 8 8 35 18 8 8 20 14
97 APPENDIX B INCORPORATED CITIES NOT INCLUDED IN THE SURVEY WITHIN THE COUNTIES OP LOS ANGELES, RIVERSIDE, SAN BERNARDINO AND ORANGE
C ity A v a lo n A zusa Banni ng B a r s tow Beaumont B lythe Brea Ch ino Clarem ont C oachella Corona C o v in a E l Monte E l Segundo E lsin o re G ard en a G lendale G lendora Heme t H u n t i n g t o n Beach Indio Laguna B each La H abra La V erne Long Beach Los A n g e le s M a n h a t t a n B each N eedles Orange Palm S p r i n g s P a l o s V erdes E s t a t e s Pasadena P erris P lacen tia Redlands R ialto S an C le m e n te San J a c i n t o S e a l Beach S i e r r a Madre S ignal H ill Tus t i n Vernon W e st C o v in a
E s t i m a t e d 1948 P opulation 2,037 6,000 3,874 5,073 3 ,0 1 6 3,813 2,567 4,700 3 ,9 8 6 1,575 9 ,1 4 6 4,000 7,153 7,800 200 9,319 110,000 2,822 3,321 6,000 4,0 0 0 6,524 2,900 309 241,109 2,008,500 9,290 5,015 9 ,2 8 6 9,000 1,200 110,000 1,400 1,772 16,718 2,500 1,188 1,718 2,913 6,669 3,963 1,300 850 2,475
D i s t a n c e fro m Los A n g e le s 45 22 83 132 78 223 24 36 30 127 49 23 8 18 72 18 8 24 85 34 127 49 21 30 21 00 20 283 33 106 22 10 71 30 63 55 65 83 26 12 19 37 6 22
98 BIBLIOGRAPHY A.
BOOKS
x C r o u c h ,-Wins t o n W. an d McHenry, D ean, C a l i f o r n i a G o v e r n m e n t* B e r k e l e y a n d Los A n g e l e s ; U n i v e r s i t y o f C a l i f o r n i a P r e s s , 1 9 4 9 . 407 p p . D evo e, Maxwell E . , " A d m i n i s t r a t i v e R e l a t i o n s h i p s o f P u b l i c P e rs o n n e l A g e n c ie s" , i n R eadings i n P u b lic P e r s o n n e l A d m i n i s t r a t i o n . C i v i l S e r v i c e A ssem bly o f t h e U n i t e d S t a t e s and Canada ( C h i c a g o , 1942) 156 p p . I m p ro v e d P e r s o n n e l i n Governm ent S e r v i c e * L u t h e r G u l i c k , Ed. The A n n a l s o f t h e A m e r ic a n Academy o f P o l i t i c a l and S o c i a l S c i e n c e ( P h i l a d e l p h i a , 1937) 277 p p . J o n e s , Howard P . , " C i t i z e n G r o u p s , T oo l o f D e m o c ra c y ", B e t t e r C i t y G o v e r n m e n t* Ray V, P e e l , Ed* The A n n a ls o f t h e A m e r ic a n Academy o f P o l i t i c a l and S o c i a l S c i e n c e ( P h i l a d e l p h i a , 1938) 268 p p . K i n g s l e y , J . D o n a ld and W i l l i a m E* M o sh e r, P u b l i c P e r s o n n e l Admini s t r a t i on * New York and London; H a r p e r an d B r o t h e r s , 1 9 4 1 . 671 p p . M an d ell, M ilto n , " P e r s o n n e l S t a n d a r d s " , Elem ents o f P u b lic Admini s t r a t i on * F r i t z M o r s t e i n Marx, E d. New Y orks P r e n t i c e H a l l , 1 9 4 6 . 637 p p . I n t e r n a t i o n a l C i t y Managers* A s s o c i a t i o n , M u n i c i p a l P e r s o n n e l Admi n i s t r a t i o n ♦ P u b l i s h e d f o r t h e I n s t i t u t e f o r T r a i n i n g i n M u n i c i p a l A d m i n i s t r a t i o n ( C h i c a g o , 1942) 429 p p . P f i f f n e r , J o h n M., P u b l i c Admi n i s t r a t i o n . New Y o rk ; R o n a ld P r e s s Company, 1 9 4 6 . 621 p p .
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S t o n e , H a r o l d A . , Don K. P r i c e , a n d K a t h r y n H* S t o n e , Ci t y Manager G overnment i n t h e Uni t e d S t a t e s . C h i c a g o ; P u b l i c A d m i n i s t r a t i o n S e r v i c e , 1 9 4 0 . 279 p p . W h i t e , L e o n a r d D*, F u r t h e r C o n t r i b u t i o n s t o t h e P r e s t i g e V a lu e o f P u b l i c E m ploym ent. C h i c a g o ; U n i v e r s i t y o f C h i c a g o P r e s s , 1 9 3 2 . 88 p p .
99 BOOKS
(c o n tin u e d )
W h i t e , L e o n a r d D . , G overnm ent C a r e e r S e r v i c e * C h i c a g o : U n i v e r s i t y o f C h i c a g o P r e s s , 1935* 99 p p . W h i t e , L e o n a r d D . , The P r e s t i g e V a lu e o f P u b l i c Employment i n C h i c a g o . C h i c a g o : U n i v e r s i t y o f C h i c a g o P r e s s , 1929, 183 p p . B.
PERIODICAL ARTICLES
ffA C e n t r a l P e r s o n n e l R e c o r d o f a l l C i t y E m p l o y e e s 11, M anagem ent, 2 4 : 2 7 2 - 3 , S e p t e m b e r , 1 9 4 2 .
P ublic
Adams, C. A . , ffEmployee S e r v i c e R e p o r t s i n S m a l l e r C i t i e s 11, P u b l i c Managem ent, 2 2 : 6 7 - 7 0 , M arch, 1 9 4 0 . A r o n s o n , A l b e r t H . , ’’S e r v i c e R a t i n g P l a n s ” , P u b l i c P e r s o n n e l R e v ie w , 2 : 2 9 8 - 3 0 5 , O c t o b e r , 1 9 4 1 . B e r t r a m , C a r l G . , ”P e r s o n n e l E v a l u a t i o n f o r P o l i c e an d F i r e D e p a r t m e n t s ” , The M u n i c i p a l i t y . 4 4 : 1 2 5 - 6 , J u n e , 1949 . Chapman, E a r l W., ’’R e t i r e m e n t f o r P u b l i c E m p l o y e e s ” , W e s t e r n Ci t y , 2 0 : 2 0 - 2 , November, 19 4 4 . C h e s t e r , A r t h u r V . , ’’What P r i c e t h e C i v i l S e r v a n t ? ” Wes t e r n C l t y , 2 2 :2 1 -2 , J a n u a r y , 1946. ’’C i t i e s S h o u l d Have W r i t t e n P e r s o n n e l P o l i c i e s ” , A m e r ic a n Ci t y . 0 : 1 0 8 , November, 1 9 4 6 . C l a r k , L i n c o l n , ”A C r e d i t U n io n a s P a r t o f a P e r s o n n e l P ro g r a m ” , P u b l i c P e r s o n n e l R e v ie w , 4 : 2 1 9 - 2 9 , O c t o b e r , 19 4 3 . C o l l e t t , M. J . , ’’The P r e s e n t a t i o n o f Wage P r o p o s a l s f o r L e g i s l a t i v e R e v ie w ” , P u b l i c P e r s o n n e l R e v i e w . 3 :2 7 2 -9 , O ctober, 1942. D ee g an, W. J . J r . , ’’A c c i d e n t s Are Too E x p e n s i v e ” , A m e r ic a n Ci t y , 0 : 1 4 0 - 1 , S e p t e m b e r , 1 9 4 9 . Devoe, M. A . , ’’P e r s o n n e l P rogram s i n Two Manager C i t i e s ” , P u b l i c Managem ent. 1 8 : 1 9 5 - 2 0 0 , J u l y , 1 9 3 6 . E d y , J o h n N. and C l i f f o r d N. Amsden, ’’P e r s o n n e l A d m i n i s t r a t i o n i n C o u n c i1 - M a n a g e r C i t i e s ” , P u b l i c M anagem ent. 1 3 : 6 6 - 6 8 , F e b ru a ry , 1931.
100
PERIODICAL ARTICLES (c o n tin u e d ) G a l l a s , N e s t a M., " C o o p e r a t i v e P e r f o r m a n c e T e s t s f o r C l e r i c a l C l a s s e s ” , P u b lic P e rs o n n e l Review . 5 :1 5 5 -6 3 , O cto b er, 1944* Hansen, A r th u r S . , " R e tir e m e n t P la n s f o r Sm all C i t i e s ” , P u b l i c Managem ent. 2 5 . ;3 7 - 4 1 , F e b r u a r y , 1943* H u b b a r d , H e n r y F . , lfThe E le m e n ts o f a C o m p re h e n s iv e P e r s o n n e l P r o g r a m ” , P u b l i c P e r s o n n e l R e v ie w . l j l - 1 7 , J u l y , 1 9 4 0 . J a m i s o n , J* N . , " P e r s o n n e l A d m i n i s t r a t i o n ; C o o p e r a t i o n i n t h e Los A n g e l e s A r e a ” , Tax D ig e s t , 2 3 : 2 0 4 - 5 , J u n e , 1 9 4 5 . L a n d , H. R. J r . , "How C i t i e s Can Use A p p r e n t i c e s ” , P u b l i c M anagement. 2 2 : 1 4 4 - 6 , May, 1 9 4 0 . " L e a v e s o f A b sen c e f o r M u n i c i p a l E m p lo y e e s ” , P u b l i c Management. 2 0 : 1 4 0 - 2 , May, 1 9 3 8 . M c C lu re, R u s s e l l E, and E l d e r G u n t e r , ”An E x p e r i m e n t i n E m p lo y e r-E m p lo y e e R e l a t i o n s ” , P u b l i c Management, 2 6 :1 9 4 -7 , J u l y , 1944. M c C lu re, R u s s e l l E . , an d Hugo W a l l , " H a n d l i n g Employee G r i e v a n c e s i n W i c h i t a ” , P u b l i c P e r s o n n e l Review . 8 :1 2 7 -3 1 , J u l y , 1947. M c F a r l a n d , H. J . , "Community R e s o u r c e s o f P e r s o n n e l A g e n c i e s ” , P u b l i c P e r s o n n e l R e v ie w , 5 : 1 - 1 7 , J a n u a r y , 1 9 4 4 . M c F a r l a n d , H. J . , " P e r s o n n e l P r o c e d u r e s i n S m a ll C i t i e s , ” P u b l i c Management. 2 6 : 2 9 0 - 5 , O c t o b e r , 1 9 4 4 . P e i t z c h , F r e d e r i c k E . , " M u n i c i p a l P e r s o n n e l T re nds i n 1 9 4 8 ” , P u b l i c Management. May, 1 9 4 9 . P o i s , J o s e p h , " P r e p a r a t i o n an d I n s t a l l a t i o n o f S a l a r y P l a n s ” , P u b l i c Management. 2 0 : 9 9 - 1 0 2 , A p r i l , 1 9 3 8 . R e y n o l d s , L . B . , "So You Want A C i t y J o b ; Have You L i v e d H e r e a Y e a r ? " W e s t e r n Ci t y . 1 5 : 3 6 - 7 , D ecember, 1 9 3 9 . R i d l e y , C. E . , "The P e r s o n n e l F u n c t i o n s i n M u n i c i p a l Management” , P u b l i c P e r s o n n e l R e v ie w . 6 : 1 6 1 - 5 , J u l y , 1945.
101
PERIODICAL ARTICLES (c o n tin u e d ) R i d l e y , C l a r e n c e E . an d O r i n P. N o l t i n g , "Economies i n P e r s o n n e l A d m i n i s t r a t i o n " , P u b l i c M anagement. 1 4 : 3 1 2 - 1 6 , O c t o b e r , 19 3 2 . R i d l e y , C l a r e n c e E. a n d H e r b e r t A. Sim on, " M e a s u r i n g t h e P u b l i c Employment S i t u a t i o n and P e r s o n n e l A g e n c y " , P u b l i c M anagement. 1 9 : 2 9 6 - 3 0 0 , O c t o b e r , 1937* R i f k i n d , I s r a e l , "A R e t i r e m e n t P rogram f o r S m a l l C i t i e s o f C a l i f o r n i a , " Wes t e r n Ci t y . 1 4 : 2 3 - 2 5 , A p r i l , 1 9 3 8 . R i f k i n d , I s r a e l , "How t o D e v e lo p a Sound R e t i r e m e n t S y s t e m " , P u b l i c Managem ent. 2 0 : 4 1 - 6 , F e b r u a r y , 1 9 3 9 . S a t t e r f i e l d , M. H . , " C o o p e r a t i o n Pays D i v i d e n d s " , N a t i o n a l M u n i c i p a l R e v i e w . 3 1 : 4 3 1 - 3 5 , S e p t e m b e r , 1942. S m i t h , W i l l i a m 0 . , an d Jo h n H. E n g l a n d , "A P ro g r a m o f C ooperative P ersonnel S e r v ic e s " , P u b lic P ersonnel R e v ie w . 4 : 1 - 9 , J a n u a r y , 1943. "Some P e r s o n n e l P r a c t i c e s i n 106 C i t i e s " , 1 7 :1 4 -1 6 , J a n u a r y , 1935.
P u b l i c Management.
"Some P e r s o n n e l P r o b le m s o f C i t y M a n a g e r s " , P u b l i c M anagement. 1 9 :1 8 -2 3 , J a n u a ry , 1937. S t a a t s , E lm e r B. an d R o b e r t C. Sampson, " A t t e n d a n c e an d Leave I n th e P u b lic S e r v i c e " , P u b lic P e r s o n n e l Review . 5 :1 4 6 -5 5 , O cto b e r, 1944. S t a l l e y , M a r s h a l l , "Employee R e c r e a t i o n a s a P e r s o n n e l F u n c t i o n " , P u b l i c P e r s o n n e l R e v ie w . 6 : 1 7 4 - 8 , J u l y , 1 9 4 5 . S t o n e , D o n ald C . , "How Can C i t i e s S e t Up R e t i r e m e n t S y s t e m s ? " , P u b l i c Managem ent. 2 4 : 3 5 7 - 6 1 , D ecem ber, 1 9 3 7 . S t o n e , D o n a ld C . , "What i s a C l a s s i f i c a t i o n o f P o s i t i o n s ? " , P u b l i c M anagem ent. 2 0 : 7 0 - 7 3 , March, 1 9 3 8 . V a n d e r l i p , L. C . , " C o o p e r a t i v e P e r s o n n e l S e r v i c e s : S tate P rogram P r o v e s B e n e f i c i a l " , Tax D i g e s t . 2 3 : 1 6 4 - 5 . May, 1 9 4 5 .
102
C.
PAMPHLETS
A m e r ic a n M e d i c a l A s s o c i a t i o n , P e r i o d i c H e a l t h S x a m i n a t i o n s . A Manual f o r P h y s i c i a n s . C h i c a g o , 1 9 4 0 . A n n u a l R e p o r t o f t h e C i v i l S e r v i c e Commission o f San P i e g o C o u n ty f o r t h e F i s c a l Y e a r 1 9 4 8 - 4 9 , A s s o c i a t i o n o f W ashington C i t i e s , A nalyses o f S e l e c t e d S t a t e w id e R e t i r e m e n t S ystem s f o r M u n i c i p a l E m p l o y e e s , C alifo rn ia I n s titu te of P r a c t i c e s i n Los B u l l e t i n No, 1 4 , Pasadena, 1947,
T e c h n o lo g y , S u r v e y o f P e r s o n n e l A n g e le s C o u n t y as o f Angus t 1947, I n d u s tr ia l R elations S ectio n , 45 p p .
1,
C i v i l S e r v i c e A sse m b ly o f t h e U n i t e d S t a t e s and C a n a d a , C i v i l S e r v i c e A g e n c i e s i n t h e Uni t e d S t a t e s — A 1940 Census , C h i c a g o , 1 9 4 0 , 59 p p . C i v i l S e r v i c e A sse m b ly o f t h e U n i t e d S t a t e s and C a n a d a , The Employment o f V e t e r a n s i n t h e P u b l i c S e r v i c e i n t h e U n ite d ^ t a t e 3 , A r e p o r t s u b m itte d to the E x ec u tiv e C o u n c i l b y t h e C om m ittee on V e t e r a n Employment P o l i c i e s , A ugust, 1944, 8 pp. I n t e r n a t i o n a l C i t y Managers A s s o c i a t i o n , A C a r e e r S e r v i c e i n L o c a l G o v e r n m e n t, C h i c a g o , 1 9 3 7 , 13 p p , Jam ison, J u d i t h N o rv e ll, In te rg o v e rn m e n ta l C o o p e ra tio n i n P u b l i c P e r s o n n e l A d m i n i s t r a t i o n i n t h e Los A n g e l e s A r e a . S t u d i e s i n L o c a l G o v e r n m e n t, No, 8 , B u r e a u o f G overnm ental R e s e a rc h , U n i v e r s i t y o f C a l i f o r n i a a t Los A n g e l e s , A u g u s t , 1 9 4 4 , 107 p p . J o r d a n , F r a n k M,, Ros t e r o f S t a t e , C o u n t y . Ci t y and Township O f f i c i a l s i n the S t a t e o f C a l i f o r n i a . Sacram ento S t a t e P r i n t i n g O f f i c e , 1948,
t
L eague o f C a l i f o r n i a C i t i e s , C l t y P a r t i c i p a t i o n i n t h e S t a t e E m p l o y e e s 1 R e t i r e m e n t Sys tern. B e r k e l e y , 1 9 4 0 , 15 p p . M unicipal F inance O ff ic e r s A s s o c ia ti o n , R e tirem en t P lan n in g f o r S m a l l M u n i c i p a l l t i e s . C h i c a g o ^ 193SV* 12 p p . N a t i o n a l L ea gue o f Women V o t e r s , A Handbook f o r t h e P e r s o n n e l C a m p aig n . O c t o b e r , 1 9 3 5 , 12 p p .
103 PAMPHLETS (c o n tin u e d ) P u b l i c A d m i n i s t r a t i o n S e r v i c e , P e r s o n n e l P ro g ram s f o r S m a l l e r Ci t i e s . P u b l i c a t i o n No. 7 3 , C h i c a g o , 1 9 4 0 . 46 p p . P u b l i c A d m i n i s t r a t i o n S e r v i c e , Meri t Sys tern. I n s t a l l a t i o n . P u b l i c a t i o n No. 7 7 , C h i c a g o , 1 9 4 1 , 58 pp*;
i
R a t h e r t , A. A . , P u b l i c Employee C r e d i t U n i o n s A Review o f O r g a n i z e d C o o p e r a t i v e C r e d i t Among T e a c h e r s and O th e r G overnment E m p l o y e e s . M i n n e s o t a F e d e r a t i o n o f T e a c h e r s , M i n n e a p o l i s , 1 9 4 0 . 18 p p . Tax F o u n d a t i o n , A C i v i c G u id e t o Economy i n M u n i c i p a l G ov ern m e n t . Number 6 , P e r s o n n e l . New Y o rk , 1 9 4 6 , 110 p p . Town H a l l , Los A n g e l e s , How Can C i v i l S e r v i c e Methods Be Im proved? A r e p o r t by th e M u n ic ip al and County G overnm ent S e c t i o n , Los A n g e l e s , 1 9 4 5 . 26 p p . U n i t e d S t a t e s C i v i l S e r v i c e C om m ission, S u g g e s t i o n S y s t e m s ; A S e l e c t e d L i s t o f R e f e r e n c e s . W ashington 25, D .C ., 1 9 4 4 . 24 p p . U n i t e d S t a t e s O f f i c e o f E d u c a t i o n , D e t e r m i n i n g T r a i n i n g Needs i n L o c a l C o m m u n i t i e s . W a s h i n g t o n , D . C . , 1 9 4 1 . 61 p p . D.
UNPUBLISHED MATERIALS
C a l i f o r n i a L eague o f C i t y S n p l o y e e s A s s o c i a t i o n s , S u r v e y o f B e n e f i t s a n d Working Condi t i o n s . P a s a d e n a , Ap'ri 1 , 1949, 4 p p . Mimeo. M e rc h a n ts * an d M a n u f a c t u r e r s * A s s o c i a t i o n , Los A n g e l e s , S p e c ia l Survey o f S e le c te d P e rs o n n e l P o l i c i e s i n the Los A n g e le s A r e a . Los A n g e l e s , May, 1 9 4 9 . U npage d. Mimeo. M e r c h a n t s * a n d M a n u f a c t u r e r s * A s s o c i a t i o n , Los A n g e l e s , Communi t y S u r v e y o f S e l e c t e d P e r s o n n e l P r a c t i c e s i n t h e Los A n g e l e s A re a"^ Los A n g e l e s , O c t o b e r , 1 948. U n p ag e d . Mimeo. W h i t e , F r e d G. J r . , The C o n t r a c t Method o f F u r n i s h i n g P e r s o n ' n e l S e r v i c e t o S m a l l Ci t i e s i n Hos A n g e l e s C o u n t y . T C n p u b l i s h e d Mas t e r r s T h e s i s , U n i v e r s i t y o f S o u t h e r n C a l i f o r n i a ) , Los A n g e l e s , 1 941, 94 p p .
E.
LAWS AND RULES
S t a t e o f C a l i f o r n i a , P o l i t i c a l an d Governm ent Code, am ended, 1947.