Report of the New York City Civil Service Commission on the First Six Months

of its Administration

In its report on the work of the first half year of its existence the Municipal Civil Service Commission of New York City states at the outset that its lines of improvement lay in the following several directions: The use of more advanced methods of examination, the complete revision of the classification and grading of the service and the strengthening of the system of efficiency records, which, in the past, were largely perfunctory and wholly inadequate.

For the purpose of analysis, the Commission divides its work into three main divisions: (1) Office organization; (2) administration; (3) examination.

After three months' independent investigation the Commission undertook a complete reorganization of its office force in order to place it on a more efficient working basis. It established rules for employees after consultation with the bureau heads. It endeavored to eliminate all duplication in the work of the various bureaus and through a method of centralizing and simplifying the organization of various bureaus it eliminated the necessity for the so-called labor bureau. In the abolition of the labor bureau three positions became unnecessary. They are: Labor clerk, $3,500 per annum; assistant labor clerk, $2,400 per annum; clerk, $2,100, making a total saving of $8,000. Other duplication of work was found to exist in the investigating work carried on by the Commission. After a careful study of the duties of the assistant secretary, the Commission was convinced that this position was over-paid, if not unnecessary. The assistant secretary had formerly handled correspondence relating to complaints. This work the Commission has handed over to a new bureau, called "The Bureau of Information and Complaints." This bureau has a head and an assistant, who receive and answer all correspondence relative to information and complaints from aggrieved employees and others.

In the examination division the Commission is developing a policy of seeking the co-operation of experts in the handling of various examinations connected with technical positions. Conferences were held with experts on recreation and the park commissioners; with prison experts and the commissioner of correction; with experts in philanthropy and the commissioner of charities and representatives of the Academy of Medicine. Such conferences have brought about notable improvements in the examinations held for such positions as playground worker, examiner of charitable institutions, etc. It was largely through these conferences that the Commission adopted the policy of issuing a bulletin of information with regard to examinations. The bulletin issued in connection with the examination for the position of examiner of charitable institutions consists of a list of books recommended by experts for the use of candidates, which is intended to "broaden the view of the candidate in the field of public and private philanthropic effort and to better fit them for the work of an examiner of charitable institutions."

In the reorganization of the examining bureau of the Commission the following changes were made in an endeavor to centralize the work: The bureau of physical examinations has been removed from the quarters in an old office building on Lafayette Street and established in the Municipal Building on the same floor with the Civil Service Commission. Applicants for positions in the labor class who formerly took a physical examination by a separate bureau in still another building are now examined by the bureau of physical examinations. A

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complete set of standards of physical requirements is being formulated by the Commission which will show in detail the physical condition required for all positions subject to examination. It is the intention of the Commission that all candidates for entrance in the municipal service and for promotion in the same shall be subjected to a physical examination to determine their physical fitness and to discover the presence of any conditions which might later be a cause of incapacity or of retirement for disability. A woman medical examiner and two women monitors have been assigned to the bureau. In addition to the medical examiners, a physical examiner, having special knowledge of physical examinations, has been employed.

Other matters which the Commission has improved and is continuing to improve in the matter of examinations are the preparation of experience papers of candidates for higher positions; the holding of examinations for one single position all on the same day (that is, not to allow an examination which involves a very large number of candidates to extend over several days and thus allow the possibility of candidates not competing under the same conditions); the inauguration of progress charts whereby the Commission can discover at once the progress or retardation in the giving and rating of examinations and in the certification of eligible lists. The Commission is preparing a civil service manual for the information of the public, which will give the qualifications for positions in the city service and as far as possible the method of rating papers.

The Commission is strengthening the regular examining force and reducing the use of per diem examiners. In some cases per diem examiners have worked 300 days a year at $10 per day on papers which could have been rated by the regular examining force. The report further states that the present examining force is inadequately manned and in some cases poorly compensated. Criticism of candidates certified by the Commission according to the report may often be traced to faults in the examination. The report says: "The need, not only of experts for technical services, but also for examiners with broad education and ideas will be met in large part, at least, by the reduction in the cost of per diem work and by searching examinations for additional examiners of this live type.'

In regard to the life of eligible lists, the Commission expects to adopt the policy of terminating lists after the expiration of two years, especially lists for the police and fire departments. The Commission is developing a system of anticipating examinations and of holding examinations for such positions as first-grade clerk at regular dates; thus the public will grow accustomed to looking for certain examinations at regular stated intervals.

The Commission is endeavoring to reclassify duties in co-operation with the bureau of standards by establishing titles which are based upon the duties of the position. This will form the basis of rules to govern transfers, reinstatements and promotions. In furtherance of this work a number of conferences have been held with representative appointment clerks in the city service, and the Commission, through its President, is co-operating with the Mayor's committee on employees' relationship to establish a conference for the consideration of such problems of civil service administration as—

Classification of duties
Pension and retirement
Adjustment of grievances.
Employees' welfare

Recreation suggestions
Advice on work methods

Employees' responsibility to the city

Soon after the Commission took office it ascertained that efficiency records in the city departments were kept in a perfunctory manner and that their form should be changed. As a result of a conference of the promotion boards of various city departments, a change in the rules was established, which provides for a board of review, to consist of a civil service commissioner, a civil service examiner and a representative of the department under review. It is hoped that a uniform efficiency record system can be established which will result in a more careful and scientific record and estimate of the work done by city employees. The Commission is establishing an efficiency division, which will be responsible for the creation of a sound efficiency record system and which will make a careful study of actual work performed under existing titles. The report says in this regard:

In this way, the Commission has stimulated interest in the keeping of these records and will communicate to the various departments any experiments made by other departments directed toward their improvement. It is hoped that a uniform efficiency record system can be established which will result in a more careful and a more scientific record and estimate of the work done by city employees. With a fundamental reclassification of the duties and an analysis of the factors of work involved in the various positions, it will be possible to devise a system of recording the efficiency of employees which will be kept upon a fact basis rather than upon the present impressionistic records of the various promotion boards. A reclassification of the titles based upon actual duties will facilitate the establishment of such an efficiency record system and will constitute a sound criterion for promotions. Promotions in the service should be based upon a fair estimate of the employee's efficiency and seniority. Where there are no actual changes in the duties, promotions should be automatic in the form of advancement in salary and should be determined by efficiency and seniority. Where duties change, in addition to record and seniority, promotion examinations should be given. It is evident that such a fundamental reclassification of duties is one of the most important requisites for an efficient administration of the civil service law. Its necessity is evident in every department of the Commission's work and, if your Commission succeeds in establishing such a classification of duties, it will mark an epoch in the administration of the civil service law in the City of New York. The Commission is establishing an efficiency division which will be responsible for the creation of a sound efficiency record system and which will make a careful study of actual work performed under existing titles. Its investigation will enable the board of review effectively to criticise the efficiency records of the various departments and suggest improvements in their contents and form. This division will constitute one of the most important departments in the Civil Service Commission and its fundamental work will contribute to the efficient administration of other divisions in the Commission. The nucleus of such a division has already been established. The Commission hopes to enlist the co-operation of experts in this work. Some of the economies effected by administrative changes will supply the Commission with sufficient funds to make an effective start in this basic work. A record of the duties involved under various titles will enable the examination division to prepare examinations relating to the duties of positions and prevent examiners from preparing questions which are too theoretical and academic. It will supply to the Commission records which will be available to succeeding commissions and will enable them to continue and further any progress which a previous commission has made.

The Commission has seized the opportunity afforded it in the establishment of the new position of director of public health education at a salary of $5,000 per annum in the department of health to institute for the first time in New York City an examination of the non-assembled type. It is hoped that as a result of this examination a man of high caliber will be recruited who is fully equipped by ability and training to fill this important position.

The Commission in 1913 spent $21,731.50 for advertising. This money was spent on eight daily papers, three weekly papers and nine miscellaneous periodicals. Through the employment of a practical advertising man, with a view to n.aking published announcements more efficient, this list of periodicals was abolished. It seemed

to the Commission useless to publish in a paper like School, appealing presumably only to teachers, such advertisements as superintendent of laundries, mechanical draftsman, patrolman, inspector of pipes and casting, dentist, janitor, and other unpedagogical callings. Another step was the discontinuance of advertisements at a high rate in newspapers having very small circulation. list of six newspapers the total circulation was 390,276, which does not equal by one-half the circulation of the Evening Journal, for instance, or the New York Times, both of which were left out of the list. In the Times the Commission would have paid 45 cents per line and in the Journal 60 cents per line; whereas the price paid in the list of 1913 papers was $1.64 per line. A report by the supervisor of the City Record on the cost of advertising is given as follows:

By the old method, 14 examinations were advertised at a total cost of $4,741.41, an average of $338.68 for each advertise

A. buildings, municipal court codors, ferry waiting rooms, recreation piers and centers, political clubs, and other places where people congregate.

Plans are now taking practical shape so that with the co-operation of a subcommittee of employees courses will be established in one or more of the higher educational institutions for the men and women in the public service.

In an analysis of the expenditures of the Commission under the several budget lines for 1913 and 1914, it is pointed out that a decrease in 1914 has been effected, varying in amounts from $100 to over $6,000 in every budget line except that of salaries of regular employees, that of telephone service and that of general plant service. The increase in the salaries account is due to the fact that the salary for the first assistant chief examiner, whose position was created July 1, 1913, is not included in the 1913 figures of expenditures to June 30, 1914. The salary of the first assistant chief examiner was raised to $4,000 July 1, 1913. The 1913 Commission was unable to pay him out of the salary appropriation and secured a transfer of $2,000 from the funds of the finance department. If this sum were deducted from the 1914 budget, a decrease of $814.10 would result.

In conclusion, the Commission calls attention to many difficulties which have arisen in the administration of the civil service law because the board of estimate and apportionment created new titles without consulting the Civil Service Commission. Early in January, 1914, the Commission sent a letter to the board of estimate and apportionment requesting that all applications made to the board of estimate and apportionment by the heads of various city departments for the establishment of new titles or positions be referred to the Municipal Civil Service Commission in order that before titles are created the Commission may classify them properly according to the duties to be performed under them. No machinery has yet been established by which co-operation can be effected between the Commission and the board of estimate and apportionment. If this is done, it will prevent needless delays in the creation of positions and will greatly facilitate the work of the board of estimate and apportionment, as well as that of the city depart

ments.

NOTES

Hotels conveniently situated to the Headquarters of the League, besides the Hotel LaSalle, are the Sherman, Clark and Randolph Streets, and the New Morrison, Madison and Clark Streets.

The visiting delegates and ladies accompanying them may, upon registering at the Headquarters of the League at the Hotel LaSalle, secure tickets for the dinner on Friday evening at $2.50 each.

Delegates and members who expect to attend this meeting are requested to notify the Secretary in advance, at the office of the League, No. 79 Wall Street, New York.

MONTHLY BULLETIN

The Federal Service

Stone bill failed to become law. After having been called up for consideration twice and immediate consideration having been objected to on each occasion in the Senate, Senator Stone's bill providing for improvements in the foreign service was finally passed by the Senate on October 16. It will be recalled that the committee on foreign relations in the Senate struck from this bill the two sections providing that those seeking entrance to the consular service and secretaryships in the diplomatic service should pass qualifying examinations.

Several efforts were made by Representative Flood, who had introduced a similar bill in the House, to secure consideration of the Stone bill before Congress adjourned, but he failed to obtain action before final adjournment. On October 20, when Mr. Flood asked for unanimous consent to take the bill from the speaker's table, Representative Mann, minority leader of the House, reminded Mr. Flood that Mr. Mapes of Michigan had expected to offer an amendment to the bill reinserting the sections. struck out. Mr. Flood then explained the action of the House committee in agreeing to a new bill in the emasculated form in which the Stone bill appeared by stating that "the bill could not become law with those provisions in it." Mr. Flood's statement was in part as follows:

While the committee on foreign affairs has a number of gentlemen on it who were strongly in favor of the civil service principle, among them Mr. Linthicum, of Maryland, and Mr. Cooper, of Wisconsin, and others, they found that the bill would not become a law in any shape if it was insisted that those provisions be kept in it and so I introduced another bill leaving those provisions out in order that the state department might get the benefit of being able to transfer these secretaries and consuls at this time, when they are particularly needed. And I hope for that reason, in the interest of the public service and the foreign service, the gentleman from Michigan (Mr. Mapes) will not offer his amendments at this time.

A report from the committee on rules intervened, however, and further consideration of the Stone bill was impossible.

Political affiliations of post office inspectors.-There recently appeared in a number of newspapers throughout the country statements to the effect that the post office department was seeking information as to the political affiliations of post office inspectors. The matter was brought to the attention of the National Civil Service Reform League and Chief Inspector Joe P. Johnston replied to an inquiry of the League that "information as to the political records of inspectors was not desired for use in promotions, reductions, or dismissals. It is frequently desirable, when charges of political activity are to be investigated, to have two inspectors of opposite political affiliations assigned to the case, not that we fear bias on the part of an inspector, but to avoid criticism from interested parties who do not know the service as we do

and have not the same confidence in the absolute impartiality of the inspectors which we entertain.'

The officers of the League did not deem the reason suggested by Mr. Johnston as sufficient to warrant any investigation into the political affiliations of employees of the department and so sent a letter to Postmasterletter, which was sent over the signatures of Robert D. General Burleson protesting against this practice. The Jenks, Chairman of the Council, and George T. Keyes, Secretary of the League, was as follows:

The attention of the National Civil Service Reform League has been called to the fact that Chief Inspector Johnston has caused inquiry to be made of all post office inspectors as to their political affiliations. The League is informed by Chief Inspector Johnston that the reason for requiring this information is that "it is frequently desirable when charges of political activity are to be investigated, to have two inspectors of opposite political affiliations assigned to the case, not that we fear bias on the part of an inspector, but to avoid criticism from interested parties who do not know the service as we do and have not the same confidence in the absolute impartiality of the inspectors which we entertain."

It does not seem to this League that the reason suggested by Mr. Johnston is sufficient to warrant any investigation into the political affiliations of any employees of the department. Such action will necessarily, and as a matter of fact already has, caused hostile criticism from citizens "who do not know the service as you do," and who view with apprehension any consideration of political questions in departmental action.

The League desires formally to protest against any action of the department which results in any inquiries as to the political affiliations of post office employees in the classified service. Such a practice, in our opinion, points to a distinct violation of the spirit of the civil service law, in that the information thus obtained will in all probability have some weight in making promotions and demotions.

We trust that this matter will receive your serious consideration and that you will determine to have your department desist from making any further inquiries, either directly or indirectly, as to the political affiliations or opinions of any of its subordinates.

Clerks to commercial attaches to pass non-competitive examination.—In the latter part of September President Wilson issued an Executive order placing in schedule B of the classified service clerks to commercial attaches in the bureau of foreign and domestic commerce. Due to rider legislation the fourteen commercial attaches are already removed from the classified service. Schedule B includes those positions which may be filled upon noncompetitive examination under rule 3, clause 2, of the federal civil service rules. The clerks to commercial attaches are often required to act in the place of the attaches and it is necessary that they be stenographers and typewriters in order to pass the examination. They are also required to speak the language of the country to which they are sent and it is expected that they will have experience in export trade, trade promotion or commercial organization.

The Civil Service Throughout the Country

Colorado

The Colorado civil service law is being threatened with a serious attack at the hands of the Colorado public utilities commission in that the public utilities act has been declared to be an implied repeal of the civil service system in Colorado so far as employees of the public utilities commission are concerned. The public utilities act, which was passed subsequent to the date upon which the civil service law became effective, empowers the public utilities commission "with the approval of the governor to employ during his pleasure such experts, engineers, statisticians, accountants and inspectors as it may deem necessary to carry out the provisions of this act.' When

the public utilities commission was appointed by the governor it refused to comply with the civil service law, claiming that the public utilities act operated as a repeal of the civil service law. On October 10 this question was argued before the lower court and a decision was rendered holding that the public utilities law showed a legislative intent to repeal and constituted an implied repeal of the civil service law. If this construction should prevail it would nullify the operation of the civil service law to practically every commission, board, or department which is governed by similar provisions relating to the tenure of office of employees. The case is to be argued before the higher courts at an early date, and it is hoped by friends of the merit system that a decision favorable to the civil service law will be rendered.

Cook County, Ill.

At a meeting of the Cook County Civil Service Commission held on September 24 W. Francis Corby was elected president of the Commission to succeed Robert Catherwood, who has held the office for the past two years. The commissioners had agreed on a policy of rotating the office of president. The new president gave out a statement of his future policy, which is in part as follows:

Having for a foundation the splendid work of this Commission in the past two years, we will continue on a commonsense basis to develop practical tests; broaden lines of promotion; carefully continue the system of efficiency markings to the end that employees will do a full day's work and receive all credit for it; standardize pay and eliminate politics.

According to late newspaper reports, a change in the political complexion of the county administration makes it possible that the personnel of the present Civil Service Commission (which has done splendid work) will be changed.

Minnesota

As the result of a conference on October 27 between the Minneapolis civil service commission and the economy and efficiency commission of Minnesota some desirable changes in the draft of a civil service law for the State service which will probably be introduced in the next session of the legislature were made. The original report of the commission, which was reviewed in the August issue of GOOD GOVERNMENT, contained the draft of a civil service law with certain undesirable features. The

changes in this draft were largely the result of formal recommendations made by R. E. Wright, Secretary of the Minneapolis Commission, and were strongly urged upon the economy and efficiency commission by the Minneapolis civil service commission.

Among the changes effected by the conference are the following:

The section relating to the appointment of commissioners was so amended as to require that not more than two commissioners should be of the same political party.

The sections which required the approval of the governor to permit the civil service commission to secure the assistance of state employees as special examiners, waiving local residence and citizenship, making and approving rules and classification, was amended so as to place the power in the hands of the commission without the intervention of or participation by the gov

ernor.

The section which limited the commission to the giving of oral and written tests was amended so as to allow the com mission to give any tests necessary to secure proper eligibles.

The section requiring that a weight of fifty per cent. be given for education and experience in high technical positions was amended so as to leave the weighting to the discretion of the commission.

The proposed draft provided that "for positions commanding a salary of $2,500 or more open competitive examinations shall not be required by the civil service commission without the

consent of the appointing officer." This provision was entirely struck out, thus leaving to the discretion of the civil service commission what positions should be filled by examinations.

The section which provided for the certification of the three highest names in limited competitive tests and the five highest names in open competitive tests was amended to provide for the certification of the highest name in all cases. This change has undergone a second revision and the draft now provides for the certification of the three highest names in all cases.

The section providing for the employment of common laborers in the order of applications filed was amended so as to enable the commission to employ physical tests when deemed advisable.

The provision requiring that the legislature act on the rules of the commission before they become effective was eliminated. An amendment was inserted which gave the commission power to effect the removal as well as the demotion of inefficient employees, and the commission was empowered to certify payrolls before they are handed to the auditor and treasurer.

New Jersey

Custodian of the state house exempted.-On October 21 the New Jersey State Civil Service Commission by a unanimous vote exempted the position of custodian of the state capitol after having considered the question for many weeks. The Civil Service Commission informally agreed with Governor Fielder that they would abide by an opinion of the Attorney-General as to what the status of this office was and it is said that owing to this agreement Commissioners Wright and Fordyce, who had maintained that the office should be kept in the competitive class, finally gave their consent to the classification of the position in the exempt class. These two commissioners consistently maintained, however, that the stand taken by the Attorney-General in his opinion, as noted in the last issue of GOOD GOVERNMENT, was not well taken. It will be recalled that the Attorney-General held that the custodian was in the classified service and came under the judisdiction of the Civil Service Commission and that the Civil Service Commission should take action to place the position in the exempt class.

The effect of the action of the Civil Service Commission is to validate the appointment of John A. Smith, whom the state house commission had appointed as custodian following the resignation of John W. Wiseman who had held the position for many years.

Attitude of candidates for legislature toward the merit system. The New Jersey Civil Service Reform Association conducted a successful canvass during the pre-election weeks to secure pledges and statements of candidates for the legislature on the extension and en

forcement of the civil service law. On October 5, 164 letters were sent to the principal candidates asking answers to the following specific questions:

1. We favor retaining the present civil service law. Do you?

2. We favor a single state commission for the civil service law rather than local commissions. Do you?

3. The present state law permits counties and municipalities to accept its provisions by referendum. Do you favor this provision?

4. Will you vote for an adequate appropriation for the state civil service commission?

Eighty-five candidates answered the questions favorably and not one unfavorable letter was received. New York State

On October 21 the Civil Service Reform Association released to the newspapers the defense made by the State Civil Service Commission against the charges of the Association and the Association's reply to this defense. The Association's position as given in the