MERIT
Al magazine devoted to the civil seruice merit tyslem
in New York State
cL ;
VEZ
| ANNUAL MEETING NUMBER
(Out September 15)
What every bride shouldn# know:
Whar it feels like to be poor...
A hiali foals ltkerghenyour rst bom neste en
expensive docint anil you\can't efforts
What it’s like wanting a home of your own...
and never quite getting it...
What it’s like havi
knowing whether they'll ever get to college...
z your kids grow up not
What it’s like to see your friends able to travel
abroad—but never you. ..
What it’s like to have to keep telling yourself,
“He may not have money, but he’s my Joe.”
There is no cure-all for all these thin;
But the closest thing to it for most of us is some-
thing so simple you almost forget it’s there,
It is the Payroll Savings Plan. Or—for people
not on payrolls—the new Bond-a-Month Plan at
your bank,
Each is a plan for buying U.S. Savings Bonds
automatically.
Either one of these plans helps you—as does no
other system we know of—to save money regularly,
automatically, and surely, for the things you want,
So if you're a newlywed or know one, here’s a
bit of friendly advice to take or give:
Get on the Payroll Savings Plan where you
work or the Bond-a-Month Plan where you bank,
It’s one of the finest things you can do to start
married life right.
Save the easy, automatic way...with U.S. Savings Bonds
Contributed by this magazine
in co-operation with the Magazine Publishers of America as a public service,
The Civil Service Employees Association, Inc.
Vol. 16, Number 5
THE ASSOCIATION
President - - - - Frank L. Tolman
Ist Vice-President - Jesse B. McFarland
2nd Vice-President - - John F. Powers
3rd Vice-President - Clarence W, F, Stott
Treasurer - - - Earl P, Pfanncbecker
Secretary - - - - - Janet Macfarlane
Counsel - - = - - John 'T. DeGraff
Exec, Rep. - - William F. McDonough
Exec. Secretary - - - Joseph D. Lochner
Field Reps. - - - Laurence J. Hollister
Charles R. Culyer
THE MAGAZINE
Editor-in-Chief - - ‘Thomas C. Stowell
Managing Editor - - Joseph D. Lochner
Advertising Mgr. - Patrick P. DeMurio
Art Editors - - - - Roger Stonchouse
Nicolas Apgar
Photographer - - - - W.P. Kennedy
Editorial Board — Mr. Stowell, Cl
Theodore Becker, John Daniels,
ford M. Hodge, Joseph J. Horan,
William Livingston, Wayne W. Soper,
A. Ranger Tyler.
>
‘This Month's Cover
HOW DO YOU LIKE IT?
We earnestly solicit expression of
opinion from our readers as to the
decision of your Editorial Board in
selecting MERIT as the name for
our magazine —just comments on
the name this time — general ideas
later!
Let us have your frank opinion.
Address Editor, MERIT, Room 156,
State Capitol, Albany 1, N. Y.
Let’s hear what you think. Every
letter will be published in MERIT.
MERIT
Official Publication of
July-August
In This Tasue
Articles
Handbook on State Jobs by Personnel Council...
147
Write a Parody —Get a Bond...
Division of Veterans’ Affairs Experiment in Humanitics......
Report on Proposed D.P.ULL. Salary Scales...
Reform Association at Work for Merit System.........c0s0:ssssssseeseeL52
Eddtorials.. 15S
What's Doing in the Chapters ... 156
The Letter Sor....... 159
MERIT is published monthly except with the combination of the May-June and July-August
issues. Publication office, 2 Norton St, Albany, N. Y. Editorial and executive offices,
Room 156, State Capitol, Albany, N. Y. 10c single copy, 1.00 per year. Entered as Second-
class matter, July 19, 1934, at the Post Office at Albany, N. Y., under the act of March 3,
1879. Letters to the Editor, contributions, news items, applications for memberships and
application for advertising rates should be sent to Executive Headquarters, Room 156,
State Capitol, Albany, N. Y.
139
Pe
vy wenn OF
samy
HANDBOOk ON
Enrror’s Nore:
of the book is printed herein.
Of interest to all State employees is the information contained
in a handbook just issued by the State Personnel Council. The
handbook, “You and Your State Job”, interprets the laws and
rules relating to the State worker and his job, It contains in-
formation relative to appointments, changes in civil service
status, employee relations, service record ratings, and all the
other matters of special interest to employees.
The Association is informed that this handbook has been dis-
tributed to all state agencies with the request that the agency
reproduce the material in the handbook and add to it any rules
pertaining to employees established by the agency and distribute
the complete material to employees. Since the handbook itself
will have very limited distribution, and it may be some time
before all State agencies reproduce it for distribution, a portion
INTRODUCTION
When you became a State em-
ployee you enrolled yourself as a
public servant. You work not for
a man nor a company, but for the
people of your State. You are paid
for your work in money which
comes from the people. The objec-
tive toward which you work is the
improvement of the society in which
you live, through better government.
This is true whether you are a file
clerk or a commissoner.
In taking the oath of office, you
have promised your best efforts and
your loyalty to your State and to the
14 million people who live in its
cities, its towns and villages. In
return, certain compensations are
yours.
There is a kind of dignity in your
work which arises from the nature
of its objective. There are satisfac-
tions to be found in it which cannot
be attained through making mouse-
traps, selling dresses or repairing
automobiles. This kind of compen-
sation is not tangible; it does not
fatten your pocketbook and it can-
not be exchanged for shelter and
food and clothing. Nevertheless it
is important. It is valued by those
in public service who see in their
jobs something more than just an-
other way to make a living.
When you entered the State ser-
vice you sought an opportunity to
make a career for yourself in govern-
ment work, a living’ wage with as-
140
surance of increasing your income at
regular intervals, reasonable security
and good working conditions. These
are compensations of a more practi-
cal sort. They have been achieved
+ for you by people like yourself — the
people for whom and with whom
you work—over a long period.
Many of your rights are guaranteed
by law and are not subject to the
whims of any person under whom
you happen to work. They can be
changed only by law.
The State of New York has led
the way as an employer in many
respects. It is written into the laws
of the State that you shall not be
handicapped by discrimination on
account of your race, national origin,
creed or color, your political opin-
ions, or, except where the conditions
of employment or the duties to be
performed require special limita-
tions, by your age, sex or physical
disabilities. Policies relating to hours
of work, vacations and sick leave are
liberal. The Retirement System,
which guarantees security for the
years when you no longer can work,
is one of outstanding merit.
These laws which protect you and
the rules and regulations under
which you work are necessarily com-
plex. You are a member of a large
body of workers —one of the lar-
gest in the nation. It is impossible
to achieve efficiency and harmony
among so large a group without laws
and rules, just as it is impossible to
have order within a city, a state or
a nation without laws.
The object of this handbook is to
interpret for you the more impor-
tant laws and rules which directly
affect you and your job, so that when
you want the answer to a question
you will be able to find it quickly
and easily.
YOUR PLACE IN THE STATE
GOVERNMENT
The functions of State government
has grown steadily more complex
since the July day in 1777 when
George Clinton stood on an up-
turned barrel in front of the Kings-
ton Courthouse to take his oath of
office as the first governor of New
York State. Earlier in the same year
the State Constitution had been
adopted. These events, which took
place between battles in the War of
the Revolution, marked a forward
step in government.
As New York grew into the most
populous, the busiest and wealth-
est State in the Union, its govern-
mental structure expanded corres-
pondingly to embrace the diverse
activities of its citizens. The Legis-
lature and the Judiciary gradually
evolyed without too many growing
pains into the bodies we have today.
Tt was in the administrative arm of
government that expansion was most
notable: by 1925 the work of ad-
ministering the affairs of the State
had been spread over a maze of 187
governmental branches. This cum-
bersome network of departments,
bureaus, and commissions was sim-
plified by a constitutional amend-
ment approved by popular vote,
which consolidated administrative
functions into 18 major departments.
In 1944 a 19th department was
added.
Despite this simplification it is not
easy, if you are a new employee of
the State, to get acquainted with the
many activities of its government,
nor is it easy to understand all phases
of the laws which affect you as a
civil servant. This handbook will
help you by giving you the informa-
tion you need about the organization
within which you work, by outlining
and explaining policies and proced-
Merit
ures which you should be familiar,
and by defining your obligations
and your rights. In short, it will fill
in the background.
Administrative Departments
The 19 State departments are:
Department of Agriculture and
Markets
Department of Audit and Control
Banking Department
Department of Civil Service
Department of Commerce
Department of Conservation
Department of Correction
Department of Education
Executive Department
Department of Health
Insurance Department
Department of Labor
Department of Law
Department of Mental Hygiene
Department of Public Service
Department of Public Works
Department of Social Welfare
Department of State
Department of Taxation and Fi-
nance
All of them have offices in Albany
and district offices elsewhere in the
State.
Three of these departments have
elected exécutives. They are the
Executive Department, headed by
the Governor; the Department of
Audit and Control, headed by the
Comptroller, and the Department of
Law, headed by the Attorney-Gen-
eral. Most other department heads
are appointed by the Goyernor with
the advice and consent of the Senate.
A few are selected by bodies such
as the Board of Regents, which
chooses the Commissioner of Edu-
cation, and the Board of Social Wel-
fare which elects the Commissioner
of Social Welfare.
‘Each department is broken into
separate units or divisions, each with
its own specific functions, and div-
isions are broken into still smaller
units usually known as bureaus. Un-
der the jurisdiction of certain de-
partments are institutions, such as
the hospitals maintained by the De-
partment of Mental Hygiene, staffed
by employees of the State. Each
division, bureau or institution is an
organization within an organization.
It is obviously impractical to at-
July-August
£S uataca Tit
TATE JOBS | BY PERSONNEL COUNCIL
tempt here a description of the
organization and functions of each
of the 19 departments. It may be
helpful, however, to sketch the struc-
ture of one department.*, A good
example for this purpose is the Con-
servation Department, some of
whose work is familiar to everyone.
Its organization is relatively simple.
The work of the Conservation
Department is spread among six
divisions, each of which has its own
executive officer who’ is responsible *
to the Conservation Commissioner,
and lesser officials and other staff
members. These divisions concern
themselves respectively with lands
and forests, fish and game, water
power and control, parks, finance,
and the Saratoga Reservation.
To break things down still fur-
ther, let us see what work is done
by one division. The Division of
Lands and Forests deals with the
improvement and protection of the
forests, administration of all laws
relative to tree culture, reforestation,
and control of pests and diseases. It
has charge of the State’s nurseries
which annually produce millions of
young trees for reforestation projects.
Its work also includes protection
against forest fires and the replant-
ing of abandoned farm lands.
The work of other departments
is similarly distributed among their
divisions and bureaus. No two de-
partments are alike in organization,
because the work of each is different.
The State Civil Service
The diverse activities of the 19
State departments are carried on by
a staff of approximately 55,000 per-
sons working in various parts of the
State. This staff includes men and
women of different races and relig-
ious faiths, of different ages and
different capabilities, There are ex-
perts and novices, permanent em-
ployees and temporary workers.
There are physicians and lawyers,
educators, parole officers, hospital
attendants, statisticians, clerks and
stenographers, writers, engineers, la-
*A handbook of this sort, designed for
use by employees of a particular depart-
ment or division, presumably would in-
clude a description of its own organization
and functions in place of the example given
here.
borers — and workers in many other
categories far too numerous to list
here. Some have international repu-
tations and some are just beginning
their careers. Each one is a part of
the State Civil Service.
The State Civil Service Law,
which contains provisions for the
appointment and promotion of State
employees and many other matters
affecting their work which you will
find described in this handbook, is
administered by the State Depart-
ment of Civil Service. This’ depart-
ment is headed by the Civil Service
Commission which consists of three
members appointed by the Governor.
Tt includes the Examinations Div-
ision, which prepares, conducts and
rates examinations; the Administra-
tion Division which maintains roster
records of Civil Service employees,
certifies eligibles for positions and
approves payrolls; the Classification
and Salary Standardization Boards
whose work is outlined later in this
handbook. There are certain circum-
stances under which the Civil Service
Department acts as the final author-
ity in matters which may directly
concern you as a State employee.
These will be explained fully.
Classes of Civil Service. All posi-
tions in the Civil Service of New
York State fall into two groups: (1)
the unclassified service, and (2) the
classified service. The unclassified
service includes all elective officers,
persons appointed by the Governor
(with the exception of those in the
executive offices), election officers,
department heads, superintendents,
principals and teachers in the public
schools, and some others. The clas-
sified service includes all positions
not included in the unclassified ser-
vice. The classified service is divided
into three classes: (1) competitive,
(2) non-competitive, and (3) ex-
empt. Most State employees fall
within one of these categories in the
classified service,
The competitive class includes all
positions for which it is practicable
to hold examinations in which a
number of persons may compete for
a position. Employees in this class
have tenure, promotion rights and
preferred list rights in the event of
abolition of position,
141
4
f
E
‘i
Ne tee ey ne ee eee ee
‘The non-competitive class includes
positions for which examinations on
a competitive basis are not practi-
cable. A candidate for a position in
this class may be given some suitable
test — written or oral or any other
kind which is appropriate — to dem-
onstrate his qualifications.
The exempt class includes posi-
tions for which examinations are
not practicable. In’this group are
deputies and secretaries of principal
executive officers as prescribed by
law (for example, the Governor's
secretary or assistant), certain court
clerks, unskilled laborers and certain
skilled laborers who are not included
in the competitive and non-competi-
tive classes.
The kind of classification described
above is jurisdictional classification.
Positions are also classified according
to duties —for example, as clerks,
supervisors, motor vehicle inspectors,
tax examiners, The latter kind of
classification is explored more fully
later in this book.
HOW CIVIL SERVICE
APPOINTMENTS ARE MADE
You probably understand some-
thing of the procedure by which
you yourself were appointed to your
position, But it is fairly obvious
that appointments to positions in
other classes might be made differ-
ently. For the sake of clarifying
what may otherwise seem to you a
bewildering system, the procedure
in each case is outlined briefly here.
Permanent Competitive Appoint-
ments
An appointment to a competitive
position is made from a list of per-
sons whose eligibility for the position
has been demonstrated by an exam-
ination in which they competed.
The Civil Service Law and Rules
require that one of the persons
among the three standing highest on
the list in question, who have been
canvassed and have indicated they
are willing to accept the appoint-
ment, shall be chosen. When fewer
than three names appear on a list, or
less than three persons indicate wil-
lingness to accept appointment and
there are no veterans on the list, the
appointing authority may either ap-
point from the list or request that
a new examination be conducted.
Veterans’ Preference. An amend-
ment to the constitution, passed by
popular vote in 1945, gives prefer-
142
ential position on eligible lists first
to honorably discharged disabled war
yeterans and next to other honorably
discharged war veterans without re-
gard to their standing on the list.
The names of other candidates fol-
low those of veterans in order of
their rating. All disabled veterans
must be appointed before non-dis-
abled veterans and non-veterans. All
non-disabled veterans -must be ap-
pointed before non-veterans. The
rule of appointment of “one out of
three” applies alike to each of these
categories respectively.
Probationary Period. All appoint-
ments to competitive positions which
are made from open competitive lists
are for a probationary period which
is, in most cases, three months. If
the probationer completes his trial
term satisfactorily and is retained,
his appointment becomes permanent.
If his performance or conduct is not
satisfactory, his employment may
be terminated at the end of the
probationary period. If the appoint-
ing officer wishes to dismiss a pro-
bationer before the end of his trial
period, the regular removal proced-
ure must be followed.
Permanent Non-competitive and
Exempt Appointments
Appointments to non-competitive
positions need not be made from
certified lists. The appointing au-
thority nominates a candidate who
fills out an application blank. The
Civil Service Commission accepts or
rejects the candidate on the basis of
qualifying information contained in
his application and any additional
qualifying test which may be deemed
necessary.
Appointments to exempt positions
may be made by the appointing
officer without approval by the Civil
Service Commission of the qualifi-
cations of the appointee. Certain
forms must be filed with the Com-
mission, however, so that informa-
tion for its official roster may be
complete.
Emergency and Temporary Appoint-
ments
From time to time emergencies
arise which make it necessary to add
temporary personnel, to fill vacan-
cies before eligible lists have been
compiled, or to secure substitutes for
employees on leave. There are defi-
nite rules and procedures to be fol-
lowed in making different types of
temporary appointments.
Provisional appointments are made
when no appropriate eligible list is
available and there are urgent rea-
sons for filling a vacancy in the
competitive class. The appointing
officer may nominate a candidate,
and if he is found qualified by the
Civil Service Commission after non-
competitive examination, the Com-
mission will approve his provisional
appointment.
As soon as an eligible list is avail-
able, a permanent appointment is
made to a position held by a provi-
sional appointee. The regular civil
service procedure of appointing from
one of the three highest on the list,
with due regard for veterans’ pref-
erence, is followed in making the
permanent appointment. The fact
that an employee has held a provi-
sional appointment to the position
does not guarantee that he will be
apointed permanently, even though
he may stand among the three high-
est on the list,
Provisional appointments do not
continue for longer than 20 days
after the establishment of an eligible
list. This 20-day period is allowed
so that work will not be interrupted
while the list is canvassed and the
permanent appointment is made,
Temporary appointments of sev-
eral types may be made to fit varying
circumstances. In some cases a posi-
tion may be filled for as short a time
as 20 days pending the canvass of an
eligible list. Any person may be
selected. by the appointing authority
for such a 20-day appointment. A
one-month appointment may be
made from an appropriate eligible
list without regard to the standing
on the list of the person selected.
Temporary appointments not to ex-
ceed one year in duration may’ be
made to fill the position of an em-
ployee on leave of absence, or for
not more than six months if the
position itself is temporary in nature.
Persons chosen for one-year or six-
month appointments must be among
the highest three on appropriate
eligible lists who are willing to accept
such appointments,
Substitute appointments, known as
Rule VIII-12 appointments, may be
made to fill vacancies left by perman-
ent employees on military leave of
absence. As far as practicable, such
appointments are made from ap-
Merit
propriate eligible lists. When no
suitable list exists, an appointee may
qualify through non-competitive ex-
amination, A substitute appointee
is entitled to the same salary incre-
ments as a permanent employee. If
he has left a permanent position in
the State service to accept a substi-
tute appointment, he is granted a
leave of absence from his permanent
position and he continues to have
the same rights and privileges that
were his in his former position with
reference to promotion, transfer, re-
instatement or retention in the ser-
vice.
Changes in Status
The law provides that employees
in the competitive class have certain
clearly defined rights with respect
to promotion or transfer, and to re-
instatement following resignation
or in case of demotion or layoff be-
cause of curtailment of funds or
activities. Procedures followed in
these events are closely related to
those followed in making original
appointments and are therefore de-
scribed in this section.
Promotion. Vacancies in the com-
petitive class above the lowest grade
are filled as far as possible by pro-
motion. This is a cardinal principle
in the State service and one of its
most attractive features. Appoint-
ments to higher grade positions are
made from an open competitive list
only when the Civil Service Com-
mission finds it impracticable to es-
tablish a promotion list.
You must have certain qualifica-
tions in order to be eligible for a
promotion examination. You must
have filled continuously for at least
six months (in most cases the re-
quirement is one year) a position
which naturally prepares you to per-
form the duties of the higher posi-
tion, For example, a stenographer
is obviously eligible in this respect
for a promotion examination for
senior stenographer. You must also
meet the minimum requirements in
education, previous experience, etc.,
set forth in the announcement of the
promotion examination.
Promotion in a given department
is usually limited to promotion units
within that department. When more
than three persons are eligible for
any promotion, a competitive pro-
motion examination is announced
and notices are posted conspicuously
in the office or institution where the
July-August
a
promotion is to be made. If three or
fewer eligibles file applications, none
of whom are veterans, a competitive
examination is not required when
the person to be promoted has quali-
fied in an examination of equivalent
character, or when the promotion is
merely an increase in salary without
any change in duties, Service record
ratings, seniority, and training and
experience, are usually the other
elements of a promotion examina-
tion.
Appointments from promotion
lists are made in the same manner
as original appointments. In case of
promotion, as well as in. original
appointments, preference is given
first to honorably discharged dis-
abled war veterans, then to other
honorably discharged war veterans.
No probationary period is required
for promoted employees.
Some employees have only a foggy
notion of how promotion units are
set up and how promotions are made
from promotion lists. Since promo-
tion is an event to which all employ-
ees look forward, it is important for
each one to understand the steps
which precede it. Let us, therefore,
try to clarify the points which are
sometimes misunderstood.
When a promotion examination is
given, an entire department may be
the promotion unit, or the depart-
ment may be broken up into several
promotion units. Sometimes a de-
partment-wide examination is given
with the proviso that preference in
promotion is to be given to eligibles
in the promotion units where vacan-
cies occur. This means that a pro-
motion list will be set up in each
promotion unit, and that there will
also be a general promotion list.
Names on these lists, of course, are
arranged in order of their standing,
with due regard for veterans’ pref-
erence. Everyone who passes the
examination will have a place on his
own promotion unit eligible list, and
also on the general promotion list.
A veteran is entitled to veterans
preference on the eligible list for his
own promotion unit, and also on the
general promotion list. He is not
entitled to veterans’ preference on
any other promotion unit eligible
list. Promotions in Unit A must be
made from the Unit A promotion
list, in Unit B from the Unit B
promotion list, and so on, These unit
promotion lists must be used until
they are exhausted. Only when a
promotion unit eligible list is ex-
hausted may the general promotion
list be used. (A list is exhauisted
when it contains fewer than three
eligibles, none of whom are veter-
ans.)
Transfer. It happens occasionally
that an employee wishes to be trans-
ferred to another department or to
another division in his department.
Sometimes this may be arranged.
For example, you may hold a job
in the competitive class in the De-
partment of Health and wish to
transfer to the Department of Edu-
cation because you are more inter-
ested in the work done by ‘that de-
partment. You learn of a vacancy
in a position similar to yours. This
vacancy ordinarily would be filled
by promotion, but in this case we
will assume that there is no promo-
tion list and no promotional field
is available. Only under these cir-
cumstances could your transfer be
considered. If the appointing officers
in both departments consent to the
transfer, your move may be approved
by the Civil: Service Commission.
There are other requirements
which must be met in order for the
transfer to be effected. You must
have completed your probationary
period satisfactorily.. You may not
be transferred to a position for which
the requirements are essentially dif-
ferent from those required for ori-
ginal entrance to the position you
already hold. The position which
you seek must be in the same or a
lower grade.
Reinstatement. If you have held
a competitive position and have re-
signed, you may, at the discretion
of the appointing officer, be rein-
stated to that vacancy within one
year without examination, or to a
position to which you would have
been eligible for transfer.
If you leave a position in the com-
petitive class for appointment to a
position in the exempt or non-com-
petitive class or in the unclassified
service, and have served continuously
in this position since the date of your
separation from the competitive
position, you may be restored to a
position in the competitive class
similar to the one you formerly held,
Demotion. Demotion may result
either from disciplinary action or
from the abolition of a position.
Under the Civil Service Law, an
143
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4
eb aL
employee who is found incompetent
or guilty of misconduct may be de-
moted. ‘The procedure is described
fully under the heading Disciplinary
Action.
When a position is abolished for
reasons of economy or because ac-
tivities have been curtailed, the em-
ployee holding the position may. be
demoted. Such demotions are made
in the inverse order of appointment,
with due regard for veterans’ pref-
erence in retention, The name of
a demoted employee is placed on a
preferred list for appointment to a
position similar to the one he for-
merly held.
Layoffs. When a position is abol-
ished for reasons of economy or be-
cause activities have been curtailed,
it may be necessary to lay off an
employee. The employee laid off
must be the one who has the least
seniority in competitive State ser-
vice among those in his department
occupying a position of the same
title and grade, Disabled veterans
have preference in retention over
non-disabled veterans and non-vet-
erans; non-disabled veterans have
preference in retention over non-vet-
erans. When a veteran must be laid
off, he is entitled by law to be trans-
ferred to another position in the
State service which he is fitted to fill,
or, in other words, a similar position,
if a vacancy in such a position exists,
‘The same provision for transfer ap-
plies to exempt volunteer firemen.
Seniority is calculated from the
date of original appointment to a
competitive class position, and the
service from that date must be con-
tinuous to be counted. Resignation
followed by reinstatement in one
year does not break continuity of
service.
When your employment in a com-
petitive position is terminated
through abolition of your position,
your name is placed on a preferred
list for any similar position. This
list will be used in filling similar
positions before any other list. Your
eligibility for reinstatement from
this list will continue for four years
from the date of your separation
from the service,
PERSONNEL MATTERS
The personnel policies of your
State government are designed to
further your aspirations toward a
successful career in the public ser-
144
vice to promote your progress as
rapidly as opportunity and your
own ability permit, to provide pleas-
ant working conditions, and to ad-
just quickly and satisfactorily any
difficulties which may arise in con-
nection with your job.
You will find administrators and
supervisors ready to listen to your
suggestions and to assist in solving
your work problems. You should
appreciate, however, the complexities
and the legal limitations within
which administrative personnel must
function in so large an organization,
You have every right to expect
justice and consideration; so have
they.
Employee Relations
There is in all divisions of the
State service a genuine desire to
foster cordial employee relations.
Only where a spirit of friendly co-
operation exists can there be the
pleasant atmosphere which leads to
maximum accomplishment, both in-
dividually and collectively. If you
and all of your fellow-workers keep
this in mind, the State service will
move a little farther toward its ob-
jective: to give the highest possible
return to the taxpayer for the money
which he invests in his State govern-
ment.
The Supervisor and the Worker.
An important relationship exists be-
tween the supervisor and the work-
ers under him. It is vital to the
success of the work in which they
are engaged that both should under-
stand fully their obligations and re-
sponsibilities. A flourishing worker-
supervisor relationship is an essential
part of the efficient and productive
organization which should exist in
all State offices. The establishment
and nature of this relationship re-
quires patience, understanding and
good-will from both worker and
supervisor.
If you are a supervisor, you are
responsible for getting a job done
through the collective efforts of the
workers assigned to you. To accom-
plish this, you delegate to each one
the task which will utilize best his
education, training and experience.
The new employee presents a
special responsibility. It is part of
your job to orient him, to acquaint
him with his surroundings, to ex-
plain the job to be done, the method
of doing it and the standards to be
met. You will evaluate his perfor-
mance, point out his mistakes and
help him to improve his work, and
you will try to give him unfailingly
the friendly and objective considera-
tion to which he is entitled. It will
be up to you to decide at the close
of a probationary period whether a
worker is satisfactory and will be
kert on, or unsatisfactory, in which
case he will be reassigned or trans-
ferred, or his employment will be
terminated.
You will serve as a channel of
communication, representing the
worker in dealing with those on a
higher level of authority than your-
self, and representing your superior
officers in dealing with the worker,
You will seek to keep this channel
open for a free flow between both
levels.
Finally, you will make every ef-
fort to establish such a relationship
with the employees who work under
you that they will feel free to come
to you for advice and help about any
phase of their work or, if necessary,
about problems relating to their
health, finances and family affairs.
The worker under the supervisor
has his responsibilities too. You in
this group must recognize your obli-
gation to apply all your training and
experience to the tasks assigned you,
and to cooperate with others who
work with you. You must take the
initiative in calling the attention of
your supervisor to areas where you
need further instruction or lack com-
plete understanding, and you will, of
course, accept his corrections and
help gracefully. You are expected to
do your work willingly and well, in
accordance with prescribed methods
and standards.
Merit Awards. The New York
State Employees’ Merit Award Board
was established in the Department
of Civil Service under a law enacted
in 1946, This board encourages and
rewards unusual and meritorious
suggestions and accomplishments by
State employees for the purpose of
promoting efficiency and economy
in the State government. Awards
may be cash, salary increment, a
medal or insignia, or a certificate.
Any employee or group of employees
of the State is eligible for an award,
and may submit suggestions at any
time. Any person having knowledge
of an unusual accomplishment may
submit recommendations to the
Merit Award Board.
Merit
If you wish to apply for a merit
award, submit your application in
writing to the New York State Em-
ployees’ Merit Award Board, The
Governor Alfred E, Smith State Of-
fice Building, Albany 1, N.Y. Sign
your name, and indicate the depart-
ment or institution in which you are
employed, the title of your position
and your mailing address. If you
are submitting a suggestion, be spe-
cific in explaining the anticipated
results of your suggestion. For ex-
ample, if you suggest a time-saving
procedure, indica‘e how much time
will be saved, by how many employ-
ces, and why your method is more
effective than the existing one; if you
suggest a form revision, submit the
suggested form together with a copy
of the original one.
The Merit Award Board will ac-
knowledge your communication. An
identification number will be substi-
tuted for* your name before your
application is considered. You will be
notified whether or not your appli-
cation has been approved. If it is
not approved, you will be told of the
reasons, If it is approved, your award
will be delivered promptly.
Grievances. A basic pattern for
handling employee grievances has
been established throughout the de-
partments of State government to
facilitate prompt and amicable ad-
justment.” Employee problems, or
grievances, are handled as far as
possible through supervisory chan-
nels; that is, through direct lines
of authority which are designated
within the department by the de-
partment head. When an employee
fails to secure a satisfactory adjust-
ment of his grievance through super-
visory channels, he may present his
case to the State Personnel Council.
The Personnel Council, which op-
erates within the Department of
Civil Service, is composed of three
members appointed by the Governor,
one of whom is recommended by the
Civil Service Commission and an-
other by the Director of the Budget.
An appeal to the Personnel Coun-
cil should be made in writing. The
Council will then undertake a full
and impartial review of all the facts
and recommend suitable action,
Adherence to this basic formula
for dealing with employee problems
will accomplish the following aims:
1. To enhance the efficiency of State
service by the maintenance of a
July-August
ee ee
just and friendly relationship be-
tween employees and administra-
tive officers,
2. To encourage understanding and
appreciation by administrative of-
ficers of the problems and aspira-
tions of employees and, likewise,
by employees, of the administra-
tive, legal and budgetary limita-
tions under which administrative
officers operate, and
. To establish in each department
or agency effective machinery
whereby suggestions, problems,
situations or complaints may be
presented by individual employ-
ees or groups of employees with
proper and. equitable considera-
tion and action to follow.
w
Employee Organizations. You
may want to join an employee or-
ganization and you may not. No-
body has the right to interfere with
your free choice or to discriminate
against you in any way because you
do or do not join such a group. It
is no concern of your supervisor or
any other officer whether or not you
join an organization or if you do so,
which one you join.
Political Activity. The dignity and
integrity of public service would be
‘destroyed if employees were subject
to political pressure in order to ob-
tain or keep their jobs, to win pro-
motions or avoid demotions. For
this reason the law specifically states
restrictions on certain kinds of politi-
cal activity which apply alike to
all employees of the State.
You are expected to comply fully
with the following provision of the
Civil Service Law:
“No person in the civil service of the
State... is under any obligation to con-
tribute to any political fund or to render
any political service, and no person shall be
removed or otherwise prejudiced for refus-
ing to do so. No person in the said civil
service shall discharge or promote or_re-
duce, or in any manner change the official
rank or compensation of anv other person
in said service, or promise or threaten so
to do for giving or withholding or neglect-
ing to make any contribution of money or
ice or any other valuable thing for any
political purpose. No person in said service
shall use his official authority or influence
to coerce the political action of any person
or body, or to interfere with any election.”
Restrictions on political activity
are further stated in the Federal
Hatch Act, which applies to many
State employees. Violation of this
act may be cause for dismissal or
criminal proceedings or both. You
a ee ATT ee
should take particular note’ of the
following section:
“No officer or employee of any State or
local agency whose principal employment
is in connection with any activity which is
financed in whole or in part by loans or
grants made by the United States or by
any Federal agency shall (1) use his official
authority or influence for the purpose of
interfering with an election or a nomina-
tion for office, or affecting the result there-
of, or (2) directly or indirectly coerce, at-
tempt to coerce, command or advise any
other such officer or employee to pay, lend,
or contribute any part of his salary or com-
pensation or anything else of value to any
party, committee, organization, agency or
persons for political purposes. No such
officer or employee shall take any active
part in politcal management or in political
Gratuities. No State employee
may accept gratuities. You are paid
for doing your job, which is to serve
the public by doing your work as
well as you can. If someone wishes
to reward you for some speciai
courtesy or assistance, you must de-
cline to accept any gift as graciously
as possible. No one who under-
stands the provisions of the law in
this respect would wish to jeopardize
your security in your job by pressing
upon you an unwelcome gift. If a
gratuity is sent to you by mail or
messenger or is otherwise inadver-
tently accepted by you, it must be
returned. Failure to do so may cause
embarrassment and the loss of your
position.
Confidential Information. At the
time of your appointment you are
required to take a constitutional oath.
It should be understood that your
oath implies. your willingness to
keep confidential all information
which is entrusted to you as an
employce of the State. You occupy
a position of trust, and you must
not divulge information contained
in the records and files of your office
except to other regular employees
who may reasonably need such in-
formation in connection with their
duties.
Public Information. If you are
approached for information for pub-
lication, don’t be tempted to sound
off yourself. An impulsive statement
from you, particularly if it happens
to be inaccurate or poorly timed,
may cause embarrassment to your
department and will certainly cause
trouble for you. Refer the request
to the bureau or section or person
in your department who is author-
ized to distribute information to the
press.
145
Discipli Action
Until October, 1941, when the
Civil Service Law was amended,
State employees in the permanent
competitive class who were found
guilty of misconduct or incompe-
tence were dismissed from the ser-
vice, The law now provides for dis-
ciplinary measures of varying sever-
ity, in accordance with the serious-
ness of the employee’s offense. Ad-
ditional protection was given to em-
ployees through their right of appeal
either to the courts or to the State
Civil Service Commission. The spe-
cial rights of war veterans and ex-
empt volunteer firemen were left
unchanged.
Naturally you want to have some
idea of what infractions are consid-
ered punishable, what types of dis-
ciplinary action may be taken, and
how the whole matter is handled
from beginning to end,
Punishable Offenses. You may
expect disciplinary action if you can
not or do not do your work satis-
factorily or if you fail to accomplish
a reasonable amount of work. You
may bring trouble on yourself by
insubordination or by failure to co-
operate with fellow-workers or to
take constructive criticism from your
supervisor, by ‘repeatedly asking
other workers for guidance in doing
the tasks assigned to you, or shifting
responsibility for your own errors
to other employees. Reporting for
work under the influence of alcohol
is, of course, taboo. So are excessive
absence or tardiness. Other offenses
are giving out confidential informa-
tion, falsifying reports and records,
accepting gratuities, or handling re-
lations with the public in a manner
which arouses justifiable criticism.
There are still other possible breaches
of conduct which are regarded as
deserving of punishment, but those
enumerated are enough to suggest
to you what kind of behavior is
not acceptable. Where departmental
tules have been established, it is
expected that employees will comply
fully with them. Failure to do so
may result in charges being prefer-
Penalties. Disciplinary action de-
pends on the gravity of the offense.
Anyone of the following penalties,
and only one, may be imposed:
1, Dismissal from the service
2. Demotion in grade and title
3. Suspension without pay for a
146
period not exceeding two
months
4. A fine not to exceed $50 to be
deducted from salary
5. Reprimand
Employees accused of minor offen-
ses usually are given a chance to
explain and warned not to repeat
them. Records of such incidents are
kept, and they are referred to and
considered if it becomes necessary
to take disciplinary measures later.
Charges. Let us suppose that an
imaginary employee, whom we shall
call Mary B, has been troublesome
in a number of ways. She was tardy
in reporting for work nine times
during one month. She habitually
wastes time and seldom finishes an
assignment on time. On one oc-
casion, when numerous errors were
called to her attention and corrected
by her supervisor, she was rude in
replying, flounced out of the office
and remained away from her desk
for an hour. Her supervisor spoke
to her about these incidents when
they occurred and warned her to be
more careful in the future.
Later Miss B commits another
offense. Her supervisor is convinced
that formal disciplinary action is the
only alternative. The supervisor pre-
pares a charge, including accurate
factual accounts of acts of miscon-
duct or incompetence and a state-
ment of the previous warning.
A notice and statement of charges
are delivered to Miss B, by either
registered mail or personal service,
and she is given a reasonable num-
ber of days within which to submit
her answer to the charges in writing.
She may be suspended without pay
for not longer than 30 days pending
the determination of the charges
against her. Following her answer,
there may be an informal conference
or hearing during which the super-
visor and other personnel directly
concerned may be questioned to
determine the truth or falsity of the
charges. This step, however, is not
obligatory. In any case the matter
will be considered carefully before
Miss B is given notice in writing of
the decision of her department head
or whatever officer has the power
of appointment and dismissal. A
complete record of the proceedings
will be filed with the State Civil
Service Commission as well as in
Miss B’s own department.
Appeals. If the penalty imposed
on Miss B should be dismissal, de-
motion or suspension without pay
for more than 10 days, and she feels
her punishment is not merited, she
may appeal either to the State Civil
Service Commission within 20 days
after notice of the penalty is re-
ceived, or to the courts, If the pen-
alty is a lesser one she may contest
the disciplinary action in the courts,
but the law says she may not take
her case to the Civil Service Com-
mission. Court appeals must be made
within four months after receiving
notice of the penalty.
Suppose Miss B has been demoted
and elects to appeal to the Civil
Service Commission, Following re-
ceipt of her appeal in writing, this
body will set a time and place for a
hearing and designate someone to
hear the appeal. If Miss B so re-
quests, she may be represented by
counsel. The department is also
represented at the appeal hearing.
Following the hearing, the Civil
Service Commission may affirm or
modify the previous decision of Miss
B’s department head, It may also
permit her transfer to a similar posi-
tion elsewhere if this seems advis-
able,
Veterans and Exempt Volunteer
Firemen. Employees in these groups
may not be dismissed from the ser-
vice without a hearing upon stated
charges, regardless of whether they
are in the competitive class or in
subordinate positions in the exempt
or non-competitive classes, and they
are guaranteed by law the right to a
court review of the entire proceed-
ings and charges.
Preserve the seven
preceding pages -
They give valuable
information on
You AND YOUR
STATE JOB
Merit
al a a il aN a i alee
Write a Parody - Get a Bond
Everyone who has attended one of the annual banquets of the Association knows that there is much poetic
and musical talent in the Association. Adaptation of popular songs to civil service themes, parodies, characterization
of Association people —all set to well known tunes—have been a source of much good fun.
At the Annual Meeting of delegates, it is planned to have a short song fest following the Dinner on October 4
6th. This will not be a show but an Association Sing by the assembled delegates under able leadership of Associ- :
ation Maestros. |
|
_
Ey See ee
We want a number of new and original songs on Association themes.
A $25 Government Savings Bond will be awarded for the best original contribution
submitted to Association Headquarters,‘ Room 156, State Capitol, Albany 1, on or
before September 27. a
(Sample — Remember this?) "
Tune: “Song of the Vagabonds”
We all are working for New York State, i
The State that’s best of the 48. i
- (That’s best of the 48) “|
From top to bottom we're one great team, 7
As public servants we’re on the beam. :
(As servants we're on the beam) 7
We must keep New York State great! }
Added glory bring — the State with everything —
As we keep New York State great!
For our State, our loyalty we'll show —
Onward Civil Service banners go.
We are all one-minded — let’s stick behind it —
And keep old New York State great!
Tune: “Oklahoma” and “Oh, What a Beautiful Morning”
First Chorus
Civil Service,
It’s for this we use our brain and brawn,
Whether Governor or Junior Clerk,
It’s our interest from dawn to dawn.
Civil Service,
We are each a part of government,
Whether great or small we give our all,
That New York State will be magnificent.
You know we all work for the State,
And the State that we work for is great,
And when we say! Excelsior!
We're only saying
We're doing fine, Civil Service, Civil Service,
Hurrah!
Duet:
Oh, what a beautiful ending.
Oh, what a beautiful way;
We've got a glorious feeling
Everything’s going our way.
It’s a bright. golden day for the workers.
It’s a bright golden day for the workers,
The raise is as high as a grasshopper’s eye,
It'll never pay off, folks, in champagne or rye.
Oh, what a beautiful future,
Oh, what a beautiful raise.
We've got a glorious feeling
Everything’s going our way.
July-August 147
Division of Veterans’ Affairs
Experiment in Humanities
This article was prepared
especially for our magazine in
the Division of Veterans’ Af-
fairs, a branch of the Execu-
tive Department. It is an in-
teresting exposition, not only
of accomplishments of the
Division, but also of the mo-
tivating philosophy behind
New York State’s efforts in
behalf of returned veterans.
The New York State Division of
Veterans’ Affairs represents the
greatest experiment in the field of
human relations ever undertaken by
any people to assist in the read-
justment of returning veterans.
The first consideration and goal
of the Division is personal and sym-
pathetic service to returned service-
men and women and their depen-
dents.
Realizing that the welfare of New
York’s veterans, over a million and
a half in number, should not be at
the mercy of the cold and clammy
hand of bureaucracy, our far-sighted
Governor, Thomas E. Dewey, rec-
ommended to the 1945 Legislature
that a separate Division of the
Executive Department be established
to have sole operation of all matters
concerning veterans and to carry its
services to the communities in which
the veterans live. The Legislature,
upon Governor Dewey's recommen-
dation, enacted a law (Chap. 763,
L, 1945) whereby, within a very few
miles of each veteran’s home, there
would be available competent coun-
seling service by men and women
who were really interested in the
welfare of the veteran.
Edward J. Neary of Westbury,
Long Island, former district attorney
of Nassau County, and a disabled
veteran of World War I, was named
to head the Division. Mr. Neary
has demonstrated his interest in
veteran matters for 25 years and is
a Past Commander of the American
Legion, Department of New York.
The Veterans’ Affairs Commis-
sion, named by Governor Dewey to
148
assist Director Neary in the formu-
lation of policies affecting veterans
and in the coordination of all State
departments relating to veterans’
affairs, is composed of the following
members:
The Adjutant General — Brig.
Gen. Ames T. Brown, Chairman
Commissioner of Agriculture and
Markets—C, Chester DuMond
Director of the Budget—John E.
Burton
President, Civil Service Commis-
sion—J. Edward Conway
Commissioner of Commerce —
Martin P. Catherwood
Commissioner of Education—Dr.
Francis T. Spaulding
Commissioner of Health— Dr.
Edward S. Godrey, Jr.
Industrial Commissioner—Edward
Corsi
Commissioner of Mental Hygiene
—Dr. Frederick MacCurdy
Commissioner of Social Welfare
—Robert T. Lansdale
Past Commander of V.F.W.—
Jacob Latona, Buffalo
Past Commander American Legion
—Wnm. N, Lewis, Floral Park
Past Commander D. A. V.—
Thomas Savage, Rome
Federal legislation regarding vet-
erans and rulings by Federal de-
partments related to On-the-Job
Training, education, and ilar
matters have been affected by the
recommendations of this Commis-
sion,
Incorporated into the Division, as
a direct, close-at-home contact with
the veterans are the directors of the
local county and city veterans ser-
vice agencies. There are over eighty
of these agencies. Many of these
directors have, like Mr. Neary, been
active in serving veterans over the
past two decades.
To insure that all parts of the
State would provide competent ser-
vice which would measure up to the
standard demanded by Governor
Dewey and Director Neary, financial
assistance is available to all counties
and cities establishing and operating
veterans service agencies.
Much of the active work of the
Division of Veterans’ Affairs is ac-
complished through these veterans
service agencies, which tie into this
magnificent program the power and
services of the State with the county
and city governments, These vari-
ous agencies are open to service
every problem which the veteran
may bring up for advice and counsel.
Staffed by local people—all veterans
themselves—knowing the industrial,
educational, social and spiritual val-
ues of the community, these local
agencies are effectively assisting the
veteran in his conversion to civilian
status.
As further insurance that all yet-
erans would have available to them
needed information as to their rights,
privileges and benefits available un-
der Federal, State and local laws,
the Division has employed nearly
200 State veteran counselors. After
an intensive schooling these individ-
uals have returned to their home
counties, where they are contacting
the returning servicemen and women
and are assisting them in all ways
possible.
With the exception of where a
few larger counties have a great
territorial expense, the apportion-
ment of counselors has been on a
basis of population. Appointments
have included both sexes,
qualification as to race, reli
political affiliation. Every counselor
appointed has demonstrated interest
in the welfare of veterans. Many of
them have been active members of
veterans organizations; others are
just out of service with outstanding
service records.
Close supervision over the activi-
ties of the local service agencies and
the State veterans counselors is pro-
vided by division of the State into
three areas: The Metropolitan Area
including the counties in Greater
New York and Nassau, Suffolk, and
Westchester; Eastern New York
Area, all counties from New York
City to the Canadian border, east
of the western boundary of Oswego,
Onondaga, Cortland and Broome
Merit
Counties; Western New York Area,
all counties west of the western
boundary of Oswego, Onondaga,
Cortland and Broome Counties.
Since the Division of Veterans’
Affairs has been in operation, more
than a million requests for service
and assistance have been handled by
the local service agencies and the
State counselors. Services rendered
have included setting up of On-the-
Job and Apprentice Training pro-
grams, assisting veterans to enter
educational institutions, helping to
obtain pensions and other benefits
authorized for veterans and their de-
pendents.
Some veterans require only the
answer to a single inquiry; others
present problems entailing consider-
able effort, investigation and corre-
spondence, together with assistance
in making out required reports, se-
curing affidavits, and other details.
The State’s Veterans’ Rest Camp
at Mt. McGregor in Saratoga
County, which was opened in No-
vember, 1945, has to date been util-
ized as a place of rest and recupera-
tion by nearly 1500 veterans. ‘The
camp has, along with other details
of the New York State Division of
Veterans’ Affairs, been extolled by
federal representatives, who have
visited all parts of the nation, as a
model for other states.
The tract on which the Rest
Camp is located consists of 1607
acres. The sanatorium property of
1187 acres is located on the top and
the wooded southerly slopes of
Mount McGregor, with stucco build-
ings designed for use as dining halls,
kitchens, sleeping quarters, admini-
stration, etc. The balance of the
estate, in the valley consists of a
modern dairy and poultry farm of
420 acres with barns and accessory
buildings.
‘The Camp is not a hospital and
cannot accommodate bed patients.
Also, veterans suffering from con-
tageous or communicable, mental or
venereal diseases are not admitted.
For veterans not fully recovered
from battle wounds, experiences as
a prisoner of war, or the effects of
illness or operation since discharge,
a stay at the camp has proven defi-
nitely beneficial, with improvement
in health and a gain in weight.
Veterans are admitted to the camp
on the recommendation of local
veterans counselors and their family
physician, for a period not to exceed
ninety days in a calendar year. The
average veteran stays about sixty
days, and returns to his home com-
munity, following participation in
the restful regular regime, regulated
work and exercise at the camp, to
more successfully participate in nor-
mal civilian activities.
Other State benefits obtainable
through the State veterans counselors
include a four-year war-service schol-
arship of $350 a year, available to
even veterans with less than 90 days
of service; employment service; and
unemployment insurance for vet-
erans who are willing to work, but
for whom no jobs can be found.
Veterans going into business for
themselves are helped with advice
from the State Department of Com-
merce and, if financial success is not
immediate, they are eligible to draw
for 52 weeks the difference between
their net earnings and $100 per
month,
Other State aids include a $500
per year pension to all blinded war
veterans; vocational training in var-
ious subjects, tuition free, at State
operated schools at Elmira and Troy.
To effect the conversion of the
New York State veterans from mili-
tary to civilian status, it is necessary
that the employees of the New York
State Division of Veterans’ Affairs
have special qualifying abil
That they do possess these qualifica-
tions is demonstrated by the ac-
complishments set forth above, by
which the gratitude of the people of
New York State to its veterans is
expressed in concrete fashion.
Si anes a eae aid
REPORTS ON PROPOSED
Christopher J. Fee, member of the State Executive Committee of
the Association, was named delegate of the Association toa
conference called by Milton O. Loysen, Executive Director of
the Division of Placement and Unemployment Insurance of the
State Labor Department. His report to the Executive Committee
is printed herewith in full.
I attended the meeting Thursday night, July 17, at 5:30 p.m. at the office
of the New York Chapter. Present were Michael L, Porta, President of the
New York Chapter, Miss Marie Doyle, and Messrs. Teitelbaum, Muller and
Corum. Also present was Mr. Hopkins from Buffalo, We discussed the var-
ious titles concerning which the Joint Committee protested that the proposed
reallocation did not grant a sufficient increase in salary.
Inasmuch as Mr. Corum was to
speak in behalf of the interviewers
both Mr. Hopkins and I asked him
to explain exactly what he had in
mind. This he did at some length
and the main objection is that the
Division proposes to create a junior
interviewer grade as well as an inter-
viewer grade. At the present time,
there are two grades of interviewers,
limited function and full function,
and the salary in both grades is
$2280 to $2880. Under the Division’s
proposal the junior grade would be
$2400 to $3000 and the interviewer
grade, $3120 to $3780. The junior
interviewer would assume the func-
tions now being handled by the
limited function interviewer and in-
terviewer would be a full function
grade. You will note that in any
event, a raise of at least $120 will be
granted,
However, there was strenuous ob-
jection to this proposal as it was
felt that all those who are now work-
ing as interviewers, either limited
or full function, were qualified for
the full function title. It was felt
that the junior title meant a “de-
motion” for some of these people.
Mr. Hopkins argued that if there
were sufficient items to take care
of all permanent personnel now in
the interviewer class and if the
junior interviewer group is filled by
open competitive examination, there
could be no protest. However, the
feeling of those now in the grade is
that the junior interviewer title is
being placed there so that some of
them will be forced into it rather
than into interviewer.
It was also stated that a promo-
tion examination will be held to fill
150
the new interviewer title. If it is true
that all persons now working under
that title are already qualified, it
is difficult to understand why a pro-
motion examination is required.
This apparently is a question that
must be settled by the Civil Service
Commission. As to the feeling con-
cerning the junior title, I do not
believe it is the intention of the
Division to place persons now qual-
ified for the other title in the lower
grade. I think, on the contrary, that
the Division’s statement that it
wishes to fill the junior grade by
open competitive examination is en-
tirely true.
We then discussed the claims ex-
aminers and about the only argu-
ment there is that they want more
money. This is also true of the pay-
roll examiner group.
At the meeting, we also went into
the question of the Joint Committee.
Tt appears that each one of these
groups in the Joint Committee had
protested the Division’s proposal for
the various groups and that they had
also separately interviewed ‘either the
Executive Director or the Personnel
Director or someone else representing
the Division, It was then decided
that it would be better if they got
together and presented a joint ar-
gument. There may be considerable
truth in this but the fact remains
that the New York City Chapter
of the Association took it upon itself
to represent all the employees of
the Division; whereas, many of
the employees are in Albany and
other Upstate cities. The New York
Chapter did not understand how it
could bring all these different groups
together. I, therefore, suggested that
in the future particularly with re-
gard to D.P.ULI. business, they con-
sult with me and that we can form
a joint committee of D.P.U.I. work-
ers throughout the state.
There was considerable complaint
that the Association Office in Albany
failed to answer inquiries. I am sub-
mitting to you, separately, a copy of
a letter given to me in New York.
It is claimed that Mr. Holt-Harris
has taken no action regarding this
case. While I do not believe that the
Association Office deliberately holds
up any business or fails to answer
letters, it is probably true that in
the rush of other business, some
details may not be acted upon
promptly. I suggested again that it
might be advisable to let me know
about such cases and perhaps I could
be of assistance. I think that closer
cooperation with the New York
Chapter on the part of the Associa-
tion officers and the Executive Sec-
retary and Council would probably
be to the advantage of all concerned.
This group represents such a large
proportion of our membership that
we should not let it proceed without
being informed of its actions and
assisting it in every way.
After hearing all the arguments,
I wasn’t very much impressed by
the Joint Committee, even before I
had seen it in action. For instance,
the American Legion has a post, the
Albert J. Herrin Post, which is made
up exclusively of employees of the
Division. However, it is difficult to
understand why the American
Legion steps into employee affairs.
Then there is a group called the Pay-
roll Examiners’ Association. I found
out that this group has only between
20 to 40 per cent of the examiners
in the Metropolitan Area, Its repre-
sentatives are not very well thought
of by most of the examiners and.
therefore, they will not join the
group. Then we have an Unemploy
ment Insurance Claims Examiners
Association and a Managers’ Associ
ation. I don’t know much about the
Proportion of employees they repre
sent and it is quite possible tha
some good purpose is served by their
existence. However, it does seem to
me that there are too many pressur¢
groups within the Division, all
Merit
SS Ee
D.P.ULI. SALARY SCALES ~
working for their own title. I don’t
think we can do anything about
that, but, if we form a stronger
Association group throughout the
Division, probably we can do away
with some of these other groups.
At this meeting, of course, there
were only Association members and
we had no opportunity to talk with
representatives of any of the other
groups including the United Public
Workers. The meeting broke up
about 8 o'clock and it was decided
that we would meet about 2 o'clock
prior to the conference with Mr.
Loysen which was to take place at
2:30. We also learned that there was
to be a meeting with Mr. Brockway,
who is the Director of the Employ-
ment Service, at 10 o’clock in the
morning. This meeting was with re-
gard to the laying off of the person-
nel of the Employment Service.
Neither Mr. Hopkins nor I attended
the meeting as we had not been
invited by Mr. Brockway and were
entirely unfamiliar with the situa-
tion. In fact, before leaving Albany,
T had noticed on my desk a bulletin
regarding the order in which the
employees would be laid off but,
upon reaching New York, I heard
that the Albert J. Herrin Post had
immediately protested that veterans
must have preference. This seems to
be in accordance with the Law and
the Division should have considered
that before issuing a bulletin. I dis-
cussed this with Mr. Hopkins and
we did not wish to attend the meet-
ing as there did not seem to be very
much we could do. It was just as
well under the circumstances which
developed in the afternoon that we
did not attend the meeting.
MEETING HELD 2:30 p.m., July
18.
Thursday morning, I visited our
office at 2 Park Avenue and learned
that the representative of the Payroll
Examiners’ Association had sent
wires to the Executive Director, the
Civil Service Commission, and, pos-
sibly, to others protesting the fact
that payroll examiners had been
loaned to the Claims Bureau for
several months because of a shortage
of funds, necessitating laying off
temporary employees in’ the Claims
July-August
Bureau. The contention of the Pay-
roll Examiners’ Association was that
this was out of title work and “il-
legal.” I know that this would pre-
judice the payroll examiners’ case in
the eyes of the Executive Director
and everyone else connected with the
Division. While it was true that
payroll examiner did have to do
some out of title work, it was be-
cause of an emergency within the
Division and it seemed far better
that they should do this work then
that they should be furloughed with-
out pay. This was the alternative to
loaning them to the Claims Bureau.
As you will recall, I stated that
the Payroll Examiners’ Association
did not comprise more than 20 to 40
per cent of the examiners in the
Metropolitan Area and no examiners
from the Upstate Area. Therefore,
the sending of such telegrams was
not representative of the sentiment
of the majority of the examiners. We
in Albany, while not pleased with
the reduction in our staff, knew the
circumstances and would cooperate
at any time when such an emergency
existed in the history of the Division.
There have been numerous instances
when we were short of funds and
we have had to do various types of
work rather than sticking strictly to
the duties prescribed under our titles.
As Mr. Loysen stated we were em-
ployed by the Division and if we
were needed in different bureaus, we
would be expected to work in them.
I was asked by other examiners in
the New York Office to sce Mr.
Loysen before the meeting and ex-
plain their attitude,
Before going into Mr. Loysen’s
office, I met the Assistant Director
of the Tax and Wage Records Bu-
reau who told me the same story and
suggested that I explain that this
was only a minority group. I also
wished to see Mr. Loysen as the rep-
resentatives of the United Public
Workers objected to having “out-
siders” at the conference, It seems
that they wished to bring in some
of their organizers or part-time staff
and that the other members of the
Joint Committee refused to have
anybody present except employees
of the Division.
Neither Mr. Hopkins nor I con-
TE las
sidered ouselves “outsiders.” We had
been with the Division practically
since it was formed. I, therefore,
asked Mr. Loysen if he wished me
to be present at the meeting and he
said, “Yes,” and that he was also glad
to have Mr. Hopkins. I explained the
payroll examiner situation and he
was pleased to learn that this group
did not represent all the examiners,
I asked him what the chances were
for the Division’s proposed alloca.
tions to be accepted by the Salary
Board and Budget and he stated he
believed the chances were good.
However, as the Division’s aim was
to make the entrance salary for the
professional and semi-professional
group $2400 to $3000, he did not
think that the Salary Board or the
Budget could permit the next step to
be $3120 to $3780. This was the
salary which the Joint Committee
was asking for interviewers, claims
examiners and _ payroll examiners,
which is the lowest grade in each
Broup at present,
_ Under the proposal of the Diy-
ision, there would be a junior grade
created and the three groups listed
would start at $2880, It did not seem
logical, therefore, that the next step
should be $3120. I stated that while
I felt that the payroll examiner grade,
based on ads in the paper, should
be about $3000, still it would be
wiser to get $2880 than to have our
whole plan destroyed by asking for
an excessive amount of money for
these three grades. The ads that I
refer to were all for compensation
auditors in private firms. They
ranged from $3000 upward. How-
ever, this may be only temporary and
later on, the opening salary for such
jobs may be less. We had already
spmutied ise of these ads our-
ves, showing the job to 800
Bene the 708 to pay $2
The meeting started with Mr,
Loysen presiding and present for the
Division were Mr. Brockway of the
Employment Service, Mr. Smith,
Personnel Director, and Mr. Bass,
Assistant Director of the Tax and
Wage Records Bureau. The Albert
J. Herrin Post representative was the
first speaker and he merely endorsed
whatever action the Joint Committee
(Continued on page 161)
151
LT RT ae
REFORM ASSOCIATION AT
levels of government.
Robert Winternitz.
Sometimes it seems to public employees that they stand alone
in their Association in seeking to promote the merit system. They
know that good civil government is dependent upon the merit
system for its efficiency. They know that public service will
never rise higher than the integrity and ability of the men and
, women who perform the tasks of government. They would like
to have all citizens anxious about government personnel. Despite
a serious degree of indifference to the merit system on the part
of the general public, there is a substantial and forceful group
dedicated to the maintenance and promotion of that system. This
group consists of the members of The Civil Service Reform
Association, organized in 1877. It ts to this-organization that we
owe the early successful efforts to establish the merit system. It
is to this group that we owe the continuance of a healthy and
constructive public criticism of personnel administration on all
The present officers and leaders of The Civil Service Reform
Association include the following prominent citizens:
President: Charles Burlingham
Vice Presidents: Charles C. Burlingham, Richard S. Childs,
Herbert H. Lehman, George McAneny, Mrs. Douglas M. Moffat,
Samuel H. Ordway, Jr., Allen Wardwell.
Executive Committee: Mason H. Bigelow, Chairman; Frances
O. Affeld, Jr., Louis G. Bissell, Adrian P. Burke, Ralph M.
Carson, William C. Chanler, John K. Clark, Charles Whitney
Dall, Lewis L. Delafield, Jr., Albert de Roode, William Dean
Embree, Walter Frank, John T. DeGraff, Albert Hirst, Mrs.
Mary B. Horton, Nicholas Kelley, Howard C. Kelly, John C.
McCook, Robert G. Page, Thomas M. Peters, George H. Rich-
ards, George Roberts, Eustace Seligman, Theodore Skinner,
Kenneth M. Spence, Lyman Beecher Stowe, Samuel Thorne,
Eliot Tuckerman, Bethuel M. Webster, Roger H. Williams, Mrs.
Treasurer: Roger H. Williams.
Executive Secretary: H. Eliot Kaplan.
We are printing herewith the 1947 Annual Report of the
Civil Service Reform Association, indicating its progressive
attitude toward the merit system.
Transition to Peace-time Service
The Association has had an active year of continued vigilance in keeping
the merit system in New York on high standards of effectiveness. Its ac-
complishments have been many and most of them have been made public
during the year. We therefore confine this report to making a number of
specific recommendations for improvement of administration of the civil
service which we think immediately essential.
Unlike the Federal service, the
civil services of the State and its
municipalities have expanded ma-
terially during the past year. Many
of the activities which had to be
curtailed during the war because of
lack of manpower, funds and ma-
terials, have been resumed. Public
payrolls have increased substantially,
approaching more closely than at
any time in the past salary levels in
152
private industry. Transition to a
peacetime footing has been rela-
tively slow, although the civil ser-
vice commissions have lately accel-
erated their pace in replacing war-
duration temporary appointees with
competitively selected permanent
employees. The New York City
Civil Service Commission has sched-
uled over 200 examinations, both
promotion and open competitive, to
be held during 1947. It hopes to
terminate by June 30, 1948, the prac-
tice of authorizing war-duration ap-
pointments. The State Civil Service
Commission, however, appears to
have taken advantage of the tech-
nicality that war has not been offici-
ally declared at an end, and contin-
ues authorization of such temporary
appointments on an indefinite basis.
Both Commissions have been handi-
capped by lack of sufficient exam-
iners with which to meet fully their
present burdens. Neither. Commis-
sion has sufficient trained and ex-
perienced personnel to meet the
needs of operating departments for
competent personnel. The sooner
the civil service is placed on a per-
manent, stabilized basis, the better
will be the service to the public
through enhanced morale. Retention
of thousands of employees on a tem-
porary basis is unfair to the employ-
ees. Economical administration of
the public service is impossible with
so many temporary employees un-
certain as to their continuance in the
service. Furthermore, the tendency
often is to find some means of con-
tinuing favored incumbents in their
positions even where other more
qualified persons might be available.
Many qualified candidates, particu-
larly for the more responsible posi-
tions, are discouraged from compet-
ing for appointment where they find
temporary incumbents, many of
whom have served a long time. The
assumption is prevalent that the in-
cumbent will somehow be favored
and competition might prove futile.
We urge that sufficient examiners
be made available to the civil ser-
vice commissions so that examina-
tions may be held more expeditious-
ly and the service on a more stable
and permanent basis. This should
not necessitate adding large numbers
of examiners to the permanent staffs
of the commissions. The present
situation can be met by the use of
outside examining experts and
temporary assistants. Judicious ex-
penditure of funds in this direction
will prove a good investment by
the State and its municipalities.
Public Employee Relationships
The Association believes that
strikes by public employees are in-
Merit
WORK FOR MERIT SYSTEM
tolerable in a democracy. However,
denial to public employees of priv-
ileges accorded to employees in pri-
yate enterprise carries with it a col-
jateral duty on the part of the state
to provide adequate procedures for
handling grievances of public em-
ployees. The Condon-Wadlin law,
which we opposed because we feared
the proposal would prove to be
much too harsh, rigid and unwork-
able in its application, makes no
such provision. We suggest that
the Governor appoint a special com-
mittee of highly qualified, disin-
terested citizens to make a study
of the subject and recommend such
supplementary legislation, proced-
ures and practices as will enable
public employees to make full pres-
entation of grievances, with pro-
visions for rectifying unsound or
unfair conditions.
Veteran Preference
As was to be expected, the new
veteran preferences adopted by
amendment to the Constitution in
1945 have already proved a serious
handicap in attracting highly qual-
ified talent to the civil service. They
are already impairing the morale
of the service, particularly because
of their application to promotions.
Both disabled and non-disabled vet-
crans are now granted preference in
promotions over non-veterans re-
gardlesss of higher examination
ratings attained by non-veterans.
Non-veterans find their chances of
promotion slim, if not hopeless, and
are discouraged from competing.
Tt is not the non-veteran alone
who finds himself at a decided dis-
advantage. War veterans have found
ty their dismay that they have had
ty yield opportunities for appoint-
ment and promotion to veteran col-
lagues who have sought priority
preference as “disabled” veterans on
spurious claims of “0% disability.”
Most of these claims are for infirm-
ities which either do not exist or
are so slight as to be patiently non-
cisabling. Because of the poor drafts-
tuanship of the veteran preference
amendment of 1945, veterans who
lave been certified by the U, S. Vet-
crans’ Administration as “0% dis-
abled” because of “flat feet”, “vari-
July-August
cose veins”, “pyorrhea”, “dental
conditions”, “allergic to wearing
wool socks”, and other trivial ail-
ments, have been granted the same
preferences in appointment and pro-
motion as are accorded physically
handicapped veterans. It was clearly
not the intention of the voters of the
State to place really disabled vet-
erans in the disadvantageous posi-
tion of competing with nominally
“disabled” veterans. Nor was it the
intention to give nominally disabled
veterans priority over their fellow
veterans, many of whom made great-
er sacrifices in the war. For these
reasons the Association has insti-
tuted a proceeding in the courts to
exclude from priority preferences
over other veterans alleged “dis-
abled” veterans rated as “0% dis-
abled” by the U. S. Veterans’ Ad-
ministration. In fairness to the Vet-
erans’ Administration we point out
that its disability ratings are not
made for civil service preference pur-
poses, but solely for purposes of
compensating veterans who have
become handicapped in some degree
by war disabilities. Unfortunately,
preferences under the New York law
are based on the certification of dis-
ability by the Veterans’ Administra-
tion, which is not concerned directly
with the granting of civil service
preferences.
Exceptions from Competition
The number of positions in the
State service which have been ex-
cepted from competitive examina-
tion. continues upward. It is now at
the highest point in over twenty
years, totaling approximately 1025,
more than twice the total of such ex-
ceptions in the New York City ser-
vice. The record of the State Com-
mission in authorizing exceptions
from competition is regrettable.
We believe that exception from
competition of positions other than
those required to formulate politi-
cal policies of administration, such
as department heads and their prin-
cipal deputies, if ever defensible, is
so no longer. Experience has demon-
strated that competition on a basis
of proved qualifications for every
position is practicable, in one form
of test or another.
Aside from establishing a real
career service for those in the public
service, the people are entitled to
retain for their own benefit the ex-
perience and training gained by their
civil servants. Most exemptions from
competition are sought on one pre-
text or another primarily for the
advantage of political machine pat-
ronage. The pressure on the civil
service commissions, most of the
members of which are representative
of one or another political party,
has proved too great even for the
best-intentioned commissioners to
resist. Department heads find it dif-
ficult and sometimes impossible to
avoid compromises with political
organization leaders desirous of
building and maintaining their polit-
ical machines through rewarding
their partisan followers. While the
use of public places for patronage
has long been on the wane, the spoils
system is even now far from obso-
lete and at the present time appears
to threaten a revival.
In most jurisdictions operating
under a modernized merit system
exemptions for competitive examin-
ation are relatively rare and are spe-
cifically enumerated in the civil ser-
vice statue, leaving the personnel
agency no authority to exempt posi-
tions from competition. Such author-
ity is the exception, not -the rule.
Yet New York, where the civil ser-
vice merit system was first estab-
lished, has lagged far behind most
other states by permitting unwarran-
ted exceptions from competition. We
recommend that the civil service
commissions be divested of author-
ity to except positions from competi-
tion; that exceptions be restricted by
Statute to policy-determining posi-
tions of the rank of department head
and a principal deputy, and to other
rare classes of positions where com-
petitive examination is manifestly
impracticable.
The adoption of this recommen-
dation will relieve the operating de-
partments and the civil service com-
missions of political pressure and
embarrassment. It will expedite the
transaction of the commissions’ busi-
ness and permit it to give much
needed attention to improving the
methods and practices of the per-
153
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sonnel agencies. It will do much to
enhance confidence in the integrity
of the New York merit system.
Attorney Positions in the Civil
Service
An outstanding example of un-
warranted exception from competi-
tion is the long-continued practice
of wholesale exemption of positions
of legal assistants in the public law
departments. Practically all of the
assistants (97) in the State Law De-
partment, large numbers of them in
the District Attorneys’ offices, and
over 85 such appointees in the office
of the New York City Law Depart-
ment, are selected without competi-
tive examination. Most of the ap-
pointments are made largely for
political considerations, and often the
appointees’ qualifications are inade-
quate, With every change of admin-
istration the public suffers the loss of
those trained by experience gained
at public expense. It is often com-
pelled to waste valuable time and
large sums of the taxpayers’ money
in the training of new appointees.
In many jurisdictions, notably Cali-
fornia, Connecticut, Wisconsin, Mil-
waukee, Los Angeles, Michigan and
Minnesota, practically all legal assis-
tants in the public law departments
are appointed after competitive ex-
amination. With the larger reservoir
of talent available in the State of
New York, there is even less reason
for excepting such positions from
competition, It is hopeless, without
a competitive system of selection
based solely on merit and fitness, to
expect to build up a corps of trained
public law assistants free from poli-
tical influences.
Secretaries to Justices
It is gratifying that the bar associa-
tions have taken a more militant
stand in regard to the appointment
of secretaries to judges in the New
York courts, The lack of qualifica-
tions of many of the judges’ clerks
and secretaries, nearly all of whom
are selected presumably on a politi-
cal basis, is notorious. Many of them
are not lawyers, nor have they ade-
wate qualifications for their posi-
tions. It is common knowledge that
much of the work which should be
done by qualified judges’ secretaries
or clerks is performed by other
court attaches competitively selected.
Requirement that judges’ secretaries
be lawyers, as insisted upon by the
154
bar associations, is not an adequate
solution of the problem. It is not
enough that they be required to be
lawyers. It is imperative, if we are
to be assured of better qualified per-
sonnel, that the appointees’ records
and qualifications at least be approv-
ed by the civil service commissions
after non-competitive tests. This
practice will leave the judges free to
make their own selections, but will
give the public some assurance that
the appointees are reasonably quali-
fied, even if they are not among the
best qualified available talent. Com-
petitive tests would give greater as-
surance that the work of the judges’
secretaries would be more objective
and freer from outside influences.
Modernization of Records
The State Civil Service Commis-
sion has made considerable progress
in modernizing its routine methods
and procedures by installing me-
chanical equipment for more expe-
ditious handling of its clerical opera-
tions. The New York City Commis-
sion is far behind other «personnel
agencies in the use of modernized
equipment for record keeping and
clerical operations. We again urge
upon the City Commission the selec-
tion of a specialist in methods and
procedures to bring the Commis-
sion’s records up to present-day
standards and to install mechanized
processes which will speed up rou-
tine operations. To accomplish this
the Commission must have the sym-
pathetic cooperation of the Budget
Director. Unfortunately, the budget
office has not shown full apprecia-
tion of the Commission’s needs in
this regard.
The physical quarters of the Mu-
nicipal Commission at its present
location are unworthy of the City.
The hundreds of thousands of per-
sons who have occasion to appear at
the Commission’s office are unfavor-
ably impressed with its shabby, over-
crowded appearance, Furniture and
equipment are in poor repair and
much of it needs to be replaced, It
would add to the prestige of the
agency, and improve the efficiency
and morale of its staff, if more suit-
able quarters were found for the
Commission and its physical plant
modernized.
Appeals from Examination Ratings
Errors in rating examination pa-
Pers may sometimes occur, and an
examiner may occasionally act arbi-
trarily or capriciously. In such cases
correction of errors or improper
action of examiners may and should
be a responsibility of the personnel
agency. The best safeguard against
manifest errors or patently capri
cious conduct is the proper selection
of qualified, trained examiners, and
more careful attention to their as.
signments. We deplore the tendency
of the civil service commissions to
substitute their no better considered
judgment or wisdom for the more
expert discretion of qualified examin
ers, Even the substitution of one
expert examiner's judgment for that
of another is of doubtful wisdom
when applied to one candidate’s ex-
amination to the exclusion of all
other competitors in the test. Obvi-
ously, standards of rating may differ
between one examiner and another.
We recommend that no appeals
from examination ratings be granted
unless it is clearly shown that a
manifest error was made in rating
a candidate. Otherwise, the basis of
competition may be materially dis-
torted or actually defeated. Most ex-
amination papers are rated without
disclosure to the examiners of the
candidates’ identity. On appeals can-
didates’ identities are revealed. It will
avoid suspicion of impropriety in re-
ratings if they are permitted only
in cases of clearly shown error.
Adoption of this practice will mate-
rially reduce appeals from ratings,
some of which are sought either in
hope of bringing pressure to bear on
the personnel agency or of deferring
discharge of temporary appointees
anxious to hold on to their positions.
Investigation of Candidates’
Qualifications
The New York City Commission
has long followed the practice of
investigating candidates for appoint
ment to City positions, Many candi-
dates have been excluded from City
employment because of poor charac-
ter records or because of deliberate
falsification of experience records, Ia
the State service, however, little a‘
tention has been given to this phase
of the Commission’s responsibility
in determining the fitness of cand-
dates. Occasional inquiries have
been been made as to candidates for
special positions, such as patrolmen.
correction officers, etc. Generally,
however, the State Commission hes
(Continued on page 162)
Merit
Search for Merit Begins
The Civil Service Employees Association takes a
particular interest in the Harold J. Fisher Awards, in-
stituted in honor of our beloved former President of the
Association.
‘The Committee on Awards consists of prominent
members of the Civil Service Reform Association; Char-
les Burlingham, Chairman; Howard C. Kelly and H.
Eliot Kaplan. Mr, Burlingham is President of the Civil
Service Reform Association, Mr. Kaplan is Executive
Secretary of the organization, and Mr. Kelly is a member
of its Executive Committee.
Mr. Kaplan has started the search for the outstanding
State Employee of 1947 by sending the following letter
to all Department Heads: ‘
“This Committee has been established to choose the
recipient of an annual award made available by The
Civil Service Leader for outstanding service to the State
performed by a State employee.
“We ask your cooperation in selecting the person
employed by the State—no matter what class of posi-
tion he may occupy — who appears to have performed
the most outstanding service during the past year. We
are searching for a person who may have achieved an
exceptional record in his position; who may have made
a suggestion which resulted in great benefit to the ser-
vice; who may have performed exceptional service above
and beyond the call of his immediate duties; in short,
one whose record, performance and achievements have
been so unique and outstanding as to be worthy of
special commendation.
“We should appreciate it, therefore, if you would let
us have your suggestions or recommendations at an early
date, and in any event not later than September 15.
Please give us a brief resume of the services performed
by the employee or employees recommended. We will,
of course, hold the information you give us in strict
confidence.”
The trophy is donated by the Civil Service Leader
but the selection is entirely in the hands of the Com-
mittee,
The Next Step Forward
Life is much like a game of chess, consisting of moves
and countermoves. The life of your Association is much
Ike the life of an individual; it consists partly of “moves”
cr working for long-term improvement of the public
service and employee welfare, and partly of counter-
loves or steps required to meet a crisis or new situation
©r a new administrative strategy.
Sometimes one can combine a move and a counter-
tove in one play. Such combinations win the game.
The Association is now planning a combined move-
countermove to meet the challenge of the No-Strike Law
and to establish the conference method of employee
July-August
participation in personnel management firmly in prac-
tuce,
‘The new Special Committee on Labor Relations in
Government is charged with the development of a plan
to secure to all public employees in the State important
natural, economic and political rights, and to make the
Civil Service Employees Association a more potent in-
strument in representing the interests of the public em-
ployees in its contacts with the administration and the
various public agencies.
To achieve in practice these rights and to secure this
position for the Association as the recognized represen-
tative of the public employees, the Committee will out-
line the essential organizational and administrative ma-
chinery and procedure which, in its opinion, must be
created to make collective negotiation work.
It is expected that the Committee will outline and
recommend and that the Association will take all pos-
sible steps to secure for every state and local civil
service employee —
1, Freedom to exercise his constitutional rights of
free speech, free assembly, to organize and to ne-
gotiate with his employers through representatives
of his own choosing;
2. Adequate and recognized machinery for collective
conference and negotiations at all levels and in
all areas of administration. This machinery is
needed to make the conference method work in
actual practice.
3. Procedures and standards of fair public emoloy-
ment practices and employee representation in
all matters relating to personnel.
4. A Board or Court at the highest level of govern-
ment to recommend to administrative bodies to
the executive and to the legislative, standards and
procedures and to resolve problems that cannot be
settled in conference at lower administrative levels,
Such a Board must represent equally the interest
of management and of the employees. The in-
terest of the public must also be represented.
The Labor Relations in Government Committee is
thus entrusted with a difficult task. It must give body
to an idea. It must create in the Civil service new in-
struments of working together by employer and em-
ployee, similar to, but different from those that exist in
private industry. It must find means to give equal
power and authority to both parties, management and
labor. It must provide that the safeguards and authority
required to place the employees firmly and legally in a
position which they now enjoy only occasionally and by
courtesy and not as a right.
We wish the Committee every success.
State Employees Underpaid
The state employee, with no savings and using bor-
rowed money to maintain his standard of living, is not
unusual. Nor does he need to look far to find the reason
(Continued on page 160)
155
On ~ Editorials On
What's Doing
Chapters
ta the
FRONT ROW, (from Loft to right) Ey
Vernon; Chat Outhouse, Peekskill
(from left to 1
Hiodion: Arthur WW MeDenaia,
Row ‘from left to ig nt) —Francis
P. Manning, Pegksill; Charles F. Gallo
iddletown, Vic
Peekskill.
The presentation of the Charter
to Robert H. Outhouse, President of
the Hudson Valley Armory Em-
ployees Chapter, at the Peekskill
‘Armory, on Thursday evening, June
19th, by Francis A. MacDonald,
Chairman of the Southern Confer-
ence, was the achievement of a group
of Armory employees who last Feb-
ruary decided they wanted a Chapter
of their own.
The interested employees circu-
. MacDonald, (Cha
Mt. Vernon; Clifton Bude,
President; Thomos R. Li
Wallace, New York Cily (guests dobn F. “Correll” Newbuigh;
Poughkoepsi
tharles E. Brycnt,
lated a petition for the formation of
a Chapter. This petition bearing
fifty-five signatures was presented to
the Association on February Ist. The
petition was referred to the Chair-
man of the Southern N. Y. Confer-
ence by the Board of Directors at
the March meeting for approval and
recommendation. On April 2nd,
1947 a meeting was held at the New-
burgh Armory at which time a Con-
stitution was adopted and Officers
SS.
John G. McGuigan, Yonkers; Joseph J. McCul
“Newburgh; ‘Arthur S. ‘Allen, Newburgh; James
Newburgh; Vernon Budd, Mt.
i, a Andrews,
Pows
irving €. Conklin,
ctor H. Plagott, Middletown
lough, Yonkers: ‘Frank E,
McLaughlin,
Raymo:
elected as follows: President, Charles
H. Outhouse, Peekskill; Vice Presi
dent, Wilfred S. Bennett, Middle
town; Arthur W. McDonald, Treas
urer, Mt. Vernon; Secretary, Robert
H, Wolters, Peekskill; Delegate, Ro:
bert B. Minerly, Newburgh. The
Board of Directors voted favorably
on the petition for a Charter at its
May meeting and the presentation
was made on June 19th, 1947,
The Hudson Valley Armory En:
ployee’s will never have a lary:
group but what they lack in numbir
they make up for in enthusiasm. ©
Charter night there was a kitty 0!
$50.00 made up to start off wit)
something in the Treasury. Muc'
credit for the success of the orgar
zation of this Chapter must go
Secretary Robert H. Wolters of Pee! -
kill Armory. Affectionately call}
Bob. His efforts were untiring.
The Association is happy to we
come its newest chapter to membe
ship in its ranks and to offer eve’)
assistance towards its success.
Geneva Chapter Host to Western Conference
On June 28, at Cayuga Lake Park, the Geneva Chapter acted
as host to the Western Conference at its annual meeting.
Below, at the right, are Chapter presidents who were present;
DR. HEINICKE
at the left is one of the guests, Dr. A. J. Heinicke, Director of
the State Agricultural Experiment Station at Geneva,
The Chapter Presidents (left to right): Norman Schlant, Buffalo; Robert Soper, Newark; Gerald Zugelder, Rochester; Lawrence
Lew, AHica; Alice Wagner, Albioi
Gertrude Hallett, Batavia; Raymond Monroe, Rochester; Michael Brennan, Iroquois; Harry
Schwartz, Buffalo; Alvin Hofer, Geneva; William Sullivan, Ithaca; Vito Ferre, Gowanda; Emmett Durr, Ray Brook.
Utica State Hospital Has Annual Field Day
Virginia McDonough pitching a fast one
to batter Lloyd Doyle. Bill Sultenfuss is
catching.
COMMITTEE FOR FIELD DAY, JULY 12
Left to right: Virginio McDonough, Har-
old Bessee, Ruby Wrona, John Kauth,
Margaret Fenk, Chapter President, and
Edward Prendergast, Committee Chair-
man.
Pitcher Rosemary Schuff taking a quick
look ot runner on 2nd before pitching
to Virginia McDonough.
Game ended in a tie when Umpire Larry
Hollister of the Association Staff walked
off to get his clambake.
Public Service
Motor Vehicle
Inspectors Meet
Counsel John T. DeGraff addresses the delegates at annual
meeting and election in Albany on May 5.
President Willam B. Fikin (now past president]
<—a ss Mokes @ presentation to John S. Frawley for
outstanding service to the Chapter.
Chapter members respond to invitation to visit
some of the beneficiaries of the Albany Com-
munity Chest. At # left President Frank
Conley of the Audit and Control Chapter and
Helen McGraw and Sara Degnan of the James
E. Christian Memorial Health Department
Chapter, visit the Brady Maternity Hospital.
(Look also on page 160)
158
TRIP &
sid Bib ais
Whe Letter Sox
Albany, N.Y.
July 17, 1947.
Dear Sir:
Congratulations on your “Merit” publication. It ap-
pears to be a good presentation of interesting facts and,
as such, shows much work and skill on your part.
In perusing the current issue of Barron’s Weekly,
Volume XXVII, No. 28, July 14, 1947, I was interested
in an article by F, A. Pearson entitled “High Prices
Howl Based on Wrong Premise.” It occurred to me that
the item might be of possible interest to you and to the
publication for its presentation of facts about the salary
conditions of white-collar workers. I am thinking of
course of the Civil Service Association’s campaign for
salary increases for State personnel.
Paraphrasing the article broadly and briefly, Mr. Pear-
son’s thesis amounts to this. Industrial and agricultural
prices are actually in line: the apparent disequilibrium
is actually an equilibrium insofar as the rank and file
of farmers, business men and laborers are concerned.
However there is a large group in the United States,
representing approximately one-fifth of the entire popu-
lation, for whom the price structure is out of kilter—the
white-collar worker whose salary has not risen in pro-
portion to prices. Experience has proven that in a period
of inflation the farmer, processor, wholesaler, retailer
and labor are reasonably contented: the salaried worker
is discontented. In a period of deflation, generally speak-
ing, the white-collar worker’s purchasing power rises.
For the nation as a whole, then, inflation is to be pre-
ferred over deflation. Rather than upsetting the apple
cart at this juncture by deflation (when most groups
would suffer) the obvious answer is to maintain an
equilibrium by advancing white-collar salaries. General
deflation would create merely another disequilibrium
in the price structure and throw the nation into a
depression.
‘As you can see, this approach is somewhat unortho-
dox but the argument is, I think, very telling.
Sincerely yours,
Gordon H. Stedman.
Because of lack of space we were forced regret-
fully to hold the following letter over from previous
issues.—Ep.
Albany, New York,
March 20, 1947.
Dear Sir:
I just read the attached newspaper article in New
York Times relative to “Hobbies” of Chase Bank em-
loyees of New York City.
Tt has occurred to me that it would be a splendid
idea to create good spirit if a similar project could be
started among our State employees, Surely, we have men
July-August
_
and women in State service who have similar avocations
who would be very glad and happy to formally enter a
Hobby Show for State employees. It would, I am fully
convinced, spread good feeling among the various work-
ers throughout the State, and at the same time afford
all of us a glance at the other person’s outside interests,
and in addition, would draw many “recruits.”
Respectfully submitted,
Bettina K. Ellis.
The clipping enclosed was the following article
which appeared in the N. Y. Times of March 19,
1947, under the heading “Hobby Show Revived”:
After an eight-year lapse, the hobby show of the
Chase Bank has been revived.
One hundred ninety employees of the bank have en-
tered specimens of their avocations ranging from large
oil paintings to tiny dolls. Even Winthrop W. Aldrich,
chairman of the board, had an entry—a hand-made
model of the clipper ship Flying Cloud.
Neatly arranged on the second floor of the bank
building at 46 Cedar Street are ancient sewing machines,
a one-inch dictionary, earliest examples of the gramo-
phone, ancient razors, tapestries, hand carved chessmen
and merschaum pipes, and model electric trains. Also
on display at the show, which opened Monday, are
stamp and coin collections, and lamps fashioned from
bowling pins. The exhibit will continue through
Saturday,
FURNITURE AND GIFTS
American Informal
Rooms
HARRY SIMMONS
CoO., INC.
59-61 STATE ST. 7-9 JAMES ST.
Dial 4-2159
Albany, N. Y.
OPEN THURSDAYS TILL 9 O'CLOCK
159
Edttortals
(Continued from page 155)
for his sorry state. The cost of living is going up and
state salaries are standing still. Let’s review the story.
The last substantial increase in pay for state employ-
ees was in April 1946. At that time the cost of living
adjustments for the lower paid employees just about
balanced the increase in the cost of living. Higher paid
employees even then were suffering a large cut in the
purchasing power of their salaries. Adequate adjust-
ments were put off with the promise that the Salary
Standardization Board would study the relative salaries
of State and other employees and a suitable adjustment
would then be made,
Everyone now knows the sorry history of that prom-
ise. First, the salary study was inadequate and inaccurate
and second, such adjustments as have been made have
been small and ineffective. The costs of the adjustment
are estimated at $300,000. Meanwhile, the cost of living
has gone up so that the value of the dollar has decreased
by over one-sixth to 64 real cents in prewar pennies. The
state employees have, therefore, thru last year lost about
20 million dollars in purchasing power while the Salary
Standardization Board has begun to make adjustments
estimated to cost $300.000,
A review of what has been happening to pay rates in
other occupations in recent months will make the case
even clearer,
The electrical industry is important in New York
State. In July 1945, wage fates in this industry were
$1.02. By July 1947, the rate has advanced to $1.33, an
increase of about 30 per cent. This was not an isolated
increase, Other major industries in the country were
getting similar increases. The hourly rate for the steel
industry increased from $1.14 to $1.44 and for the coal
industry, from $1.00 to $1.63. This. period, from July
1945 to July 1947, is a period in which state employees
received no substantial increases,
Few figures are available concerning pay changes for
professional and white collar workers but the United
States News for July 25, 1947 carried some interesting,
even though rough, figures on these. According to thesc
figures, the median income of professional workers rosc
from $3300 a year in 1945 to $4000 in 1946, the median
income of business managers, including the self-em
ployed, rose from $3300 to $3700 and the corresponding
increase for clerks and salespersons was from $2200 to
$2600.
Moreover, the cost of living is still going up so that
the plight of the state worker is growing still worse. In
January, when the state program for 1947 was announced,
the cost of living index was 153.1. By May, it was up
to 155.8 and food prices have been advancing since then
and many people are starting to pay 15 per cent higher
rents. Coal prices and steel prices are also advancing
The state pay scale will in all probability be even more
inadequate before the Legislature reconvenes in January,
CONSULT AN OCCULIST
FOR YOUR EYES
FREDETTE’S
Dispensing
Opticians
Complete Optical Service
DIAL 4-2754
63-A Columbia St., Albany, N. Y.
At the head table for
the breakfast on May 4
were (left to right) —
Sullivan County Sheriff
Harry M. Borden, Lieut.
William Steeley, Troop
C, State Troopers; Mrs.
Lloyd E. Whipple, Su-
perintendent Lloyd &
Whipple, City Judce
Edmund C. Faulkner of
Middletown, principal
speaker; Rev. Williom
F. Wilkins, Chaplain;
Assistant Superintendent
Edward M. Fay, M:s
Edward M. Fay, Suli
ven County Judge Geo.
L. Cooke, Sullivan Coun
ty Clerk Emil Motl.
Merit
D. P. U. I. SCALES
(Continued from page 151)
took. As I remarked before, I do not
quite understand what an American
Legion Post is doing in employee
relations. ‘The speaker for the post
made that statement, saying that it
was odd that the American Legion
should take part in such negotia-
tions. I agree.
Al Corum, a member of the As-
sociation, spoke for the employment
interviewers. He said practically the
same thing that we had discussed the
previous night. There was a long
argument about the method to be
used in filling the proposed inter-
viewer grade, In the end, it was
decided that this would have to be
left to the Civil Service Commission,
As far as I could see that was the
only thing that could be done in any
event.
‘There were various other speakers
who spoke for the claims examiners.
The representative of the Managers
did not speak as he felt that the
ground had been covered by the
other speakers. However, there is
one point that should be raised re-
garding managers. The Division
proposes that a number of new items
be added for senior manager. At
present, there is but’one item which
is now filled. However, the require-
ments for both jobs are practically
the same and it was felt that in the
event these new titles were added,
it would be merely a reclassification
FOR ALL
YOUR
LIFE INSURANCE NEEDS
AND
RETIREMENT INCOME
PLANS
SEE
HAROLD J. FISHER, JR.
NOW WITH THE
PENN MUTUAL
LIFE INSURANCE CO.
80 STATE ST, Tel. 4.6148
ALBANY, N. Y. 2-5927
of some of the managers’ jobs. The
question was raised as to whether
or not it would be necessary for a
manager to take a promotion exam-
ination to become a senior manager.
Tt was agreed that this would be
referred to the Civil Service Com-
mission.
However, the representative of
the Payroll Examiners’ Association
did speak even though he stated
he knew Mr. Loysen was well aware
of what the examiners want and
especially as we had filed a lengthy
brief with the Salary Board and Mr.
Loysen had been present at the hear-
ing and had spoken twice himself.
The net result of the meeting was
“that regarding the employment of
interviewers, the Civil Service Com-
mission would have to decide
whether a new promotion examina-
tion would be required. Regarding
the allocation of more money to the
various titles, Mr. Loysen explained
the reluctance of the Salary Board
and the Budget to go along with
any plan of reallocation until they
know whether of not money would
be granted by the Social Security
Board. As you probably understand,
we must submit our budget to the
Social Security Board which then
makes a grant, usually less than the
amount requested. We have felt for
a long time that New York State
was not receiving a proportionate
amount of the tax paid by New
York State employers. We felt that
we have fully justified our budget
and that we were entitled to a larger
sum than we were getting. After
considerable discussion both in Con-
gress and with the Board, it appears
at last that we are to be treated bet-
ter regarding the grants made to us.
However, we have not yet received
our grant for the six months’ period
from July 1, to December 31. We are
receiving a monthly allocation based
on the previous year. It is expected
that somewhere around September
1, we will know the extent of the
grant for this period. If it is favor-
able, as is expected, then the Salary
ESTABLISHED 1898
“Our Business Is Growing”
UNUSUAL FLORAL ARRANGEMENTS
We Grow Our Own
a PS ee
Board and the Budget may do some-
thing about the entire reallocation
plan. ‘
The meeting, therefore, closed
with the promise of the Division’s
representatives that they would in-
form the Joint Committee of any
action taken.
I recommend immediate forma-
tion of a statewide D.P.U.I. Com-
mittee on a permanent basis. This
committee should deal with the Ex-
ecutive Director, and Division of
Employment Service and Personnel
in all issues involving D.P.U.L. per-
sonnel. A meeting should be held
in Albany as soon as possible in-
viting representatives from New
York and from the Upstate Area to
attend. Meetings thereafter should be
held as required. As soon as a final
determination is made of the present
issues, I believe we should drop out
of the Joint Committee. The Albert
Herron Post, American Legion, in
my opinion has no part in employee
relations. The Payroll Examiners’
Association represents a minority in
the Metropolitan Area. The UPW
—CIO methods are abhorrent to
most Association members. The
other groups are made up of those
in the same title and can work with
the Association framework.
IS THE TIME TO MAKE
RESERVATIONS FOR YOUR
SUMMER VACATION
LANSING’S TRAVEL
BUREAU
507 BROADWAY, ALBANY 7, N, Y.
Tel. 3-1253 Tel. 3-1411
H. J. CURTIS W. J. HACKER
FLORIST
161
REFORM ASSOCIATION
(Continued from page 154)
neglected to investigate the claims
of candidates in examinations, often
misleading or exaggerated, and to
check on the character records of ap-
pointees to the State service. The
Commission, aware of this short-
coming, made a start in establishing
an. investigation division in 1944,
but appears to have soon virtually
abandoned it for unaccountable rea-
sons. We believe it essential that the
Commission immediately establish
adequate facilities with competent
personnel to check on the character
and qualification records of candi-
dates for state positions.
Reclassification of New York City
Service
The salary structure of the New
York City service needs to be re-
studied with a view to establishing
proper relative pay levels on the
principle of equal pay for equal
work. Classification of positions in
the New York City service is still
haphazard and outmoded. No com-
prehensive, scientific survey of the
pay schedules or of the duties, func-
tions and responsibilities of positions
has ever been made, New York City
THE CAPITOL
RESTAURANT
IN THE STATE CAPITOL
Splendid Food
Pleasant Atmosphere
Open Daily from 7 A.M. to 7 P.M.
Saturdays from 7 A.M. to 3 P.M.
Under the management of
PETER GIFTOS
James G. Tebbutt
Ta Pee
is far behind other merit system
jurisdictions in its failure to provide
for an up-to-date position classifica-
tion and pay plan. The city admin-
istration could make no better in-
vestment than by appropriating suf-
ficient funds for an objective survey
of the whole salary structure of the
City with the object of placing the
service on a sound position classifi-
cation basis. Without such a coor-
dinated plan the work of the Civil
Service Commission is seriously
handicapped in determining proper
qualifications and requirements for
appointments and in regulating
transfers and promotions. Such a
plan would enhance the morale of
employees in the service, by assuring
them of equitable salary treatment.
Salary Standardization in State
Service
Salaries of positions in the com-
petitive and noncompetitive classes
in the state service have been stand-
ardized and regraded in accordance
with new schedules embracing 50
salary grades. It is hoped that this
new salary grading plan sponsored
by the State Budget Director and
approved by the legislature will
permit more flexibility in the alloca-
tion of positions to their proper
salary grades, Supplemental legisla-
tion authorizes the Salary Standard-
ization Board to restudy the state
salary schedules and to make adjust-
ments therein to bring salaries of
state positions substantially up to
the levels paid for similar positions
in private employment and other
public jurisdictions. Unfortunately,
Positions in the exempt class have
not been placed under the jurisdic-
tion of the Salary Standardization
Board, so that there is no control by
the Board over many positions which
are similar to, if not identical with
Marshall W. Tebbutt, Jr.
Cebhutt
Buneral Service
Since 1850
176 STATE ST., ALBANY
Opp. State Capitol
162
aa ee ae
he eal z
other positions in the competitive
and noncompetitive classes. Often
the salary differentials between ex-
empt and other class positions are
unwarrantedly wide and violate the
fundamental principle underlying
the state salary classification law re-
quiring equal pay standards for
equal work performed, Heads of de-
partments often seek exemptions
from examination in order to obtain
for the incumbent a salary higher
than might be permissible under the
general salary schedules fixed by the
State Board. We recommend as a
matter of sound administration of
the salary structure in the state ser-
vice that all classes of positions
other than those in the: unclassified
service be placed under the jurisdic-
tion of the State Salary Standardiza-
tion Board. - This will insure equi-
table treatment to all employees in
the service and avoid disparity in
salary schedules. to the disadvantage
of the taxpayers.
Merit
SIGHNESS AND ACCIDENT
INSURANCE
LOW COST BROAD COVERAGE FAST CLAIM SERVICE
ak whe ee need. it most
Look at these low Semi - Monthly Rates
PRINCIPAL SUM $500.00
Classification
Employees with Annual Monthly Regular Coverage
Salary of Fomales
Less than $600.
$ 600. but less than $1,000,
$1,000. but less than $1,200
$1,200. but less than $1,600
$1,600. but less than $3,500.
$3,500. but less than $5,000.
$5,000. ond over
IMPORTANT NOTICE Group Plan Accident and Sickness Insurance
}) If you are not a member of The Civil Service Employees Association, Inc., join now by paying your dues to a representa-
five or by sending it to the Association, Room 156, State Capitol, Albany, N. Y. Membership is necessary for the con-
finvance of this insurance and dues must be paid within 60 days from the effective date of your policy or it will of
) necessity be automatically terminated,
A MILLION AND A HALF ALREADY PAID TO STATE
EMPLOYEES
WE GIVE YOU THE BEST FOR LESS
NO MEDICAL EXAMINATION - JUST COMPLETE A
SHORT FORM APPLICATION
2 ae Now — AT PRESENT LOW RATES - WRITE
TER BUSH & POWELL, INC.
C. A. CARLISLE, JR. 423 stote st., Schenectady 5, N.Y.
Note To All State Employees: Whether or not you are insured - if you want any infor-
{| mation regarding this insurance - write today for complete data and personal attention
YOu
Should Know About
R, FEATURES OF THE ASSOCIATION'S
IFE INSURANCE
e Insurance, with a minimum of $250 is issued each
State Division member.
Free Insurance:
Low Cost: ber under 40 years can secure $1,000 protection
2mi-monthly. Older members are charged pro-
y low rates. The insurance is paid by deductions
salary.
Easy Payment:
you apply within the first three months of State employ-
ment NO MEDICAL EXAM is necessary.
New Employees:
Broad Coverage: Pays for death due to any cause. Claims are usually paid
Claims Paid within 24 hours. Over $2,000,000.00 paid to beneficiaries
Promptly: of deceased members.
The Association used the tremendous purchasing power of
Take Advantage: its 36,000 members to make this valuable protection avail-
9° able. TAKE ADVANTAGE OF IT TO PROTECT YOUR
DEPENDENTS AND LOVED ONES.
from your Local Association Chapter or from Association ected TS, a
Room 156, State Capitol, Albany, N. Y. FILL IT OUT AND RETURN} I
PROMPTLY. |
CC BY-NC-SA 4.0