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OFFICE AND CIVIL SERVICE 0

USE OF REPRESENTATIVES

EIGHTY-EIGHTH CONGRESS

FIRST SESSION

ON

H.R. 5932, H.R. 5775, and H.R. 6349

BILLS TO AMEND THE FEDERAL EMPLOYEES HEALTH BENEFITS ACT OF 1959 SO AS TO AUTHORIZE CERTAIN TEACHERS

EMPLOYED BY THE BOARD OF EDUCATION OF THE DISTRICT

OF COLUMBIA TO PARTICIPATE IN A HEALTH BENEFITS PLAN

ESTABLISHED PURSUANT TO SUCH ACT AND TO AMEND THE

FEDERAL EMPLOYEES' GROUP LIFE INSURANCE ACT OF 1954

SO AS TO EXTEND INSURANCE COVERAGE TO SUCH TEACHERS

MAY 23, 1963

Printed for the use of the

Committee on Post Office and Civil Service

U.S. GOVERNMENT PRINTING OFFICE

WASHINGTON: 1963
ft

COMMITTEE ON POST OFFICE AND CIVIL SERVICE

TOM MURRAY,

JAMES H. MORRISON, Louisiana

THADDEUS J. DULSKI, New York

DAVID N. HENDERSON, North Carolina

ARNOLD OLSEN, Montana

MORRIS K. UDALL, Arizona

DOMINICK V. DANIELS, New Jersey

LINDLEY BECKWORTH, Texas

HARLEY 0. STAGGERS, West Virginia

ROBERT N. C. NIX, Pennsylvania

DON EDWARDS, California

JOE R. POOL, Texas

ALBERT W. WATSON, South Carolina

EDWARD R. ROYBAL, California

Tennessee, Chairman

ROBERT J. CORBETT, Pennsylvania

H. R. GROSS, Iowa

JOEL T. BROYHILL, Virginia

AUGUST E. JOHANSEN, Michigan

GLENN CUNNINGHAM, Nebraska

GEORGE M. WALLHAUSER, New Jersey

ROBERT R. BARRY, New York

KATHARINE ST. GEORGE, New York

EDWARD J. DERWINSKI, Illinois

ROBERT F. ELLSWORTH, Kansas

HOMER E. ABELE, Ohio

SUBCOMMITTEE APPOINTED To CONSIDER H.R. 5932 AND SIMILAR BILLS

ROBERT N. C. NIX, Pennsylvania, Chairman

DOMINICK V. DANIELS, New Jersey JOEL T. BROYHILL, Virginia

EDWARD R. ROYBAL, California EDWARD J. DERWINSKI, Illinois

II
CONTENTS

Statement of— Page

Goodloe, Donald, legislative representative, American Federation of

Teachers, District of Columbia local 10

Moyer, Thomas F., Assistant Corporation Counsel, District of Columbia government, accompanied by Dr. Richard R. Foster, Assistant

Superintendent of Schools, and Barney Farber, Deputy Chief of

Accounting Division, District of Columbia Finance Office 4

Staggers, Hon. Harley 0., Congressman from West Virginia 2

Zevin, Sidney H., principal of Paul Junior High School, representing

the District of Columbia Education Association 9
‘ _
EXTENDING HEALTH AND LIFE INSURANCE BENEFITS

TO TEMPORARY DISTRICT OF COLUMBIA SCHOOLTEACHERS

THURSDAY, MAY 23, 1963

HOUSE OF REPRESENTATIVES,

SUBCOMMITTEE OF THE

COMMITTEE ON POST OFFICE AND CIVIL SERVICE,

Washington, D.C.

The subcommittee met, pursuant to notice, at 9:30 a.m., in room

215, Cannon Building, Hon. Dominick V. Daniels (acting chairman

of the subcommittee) presiding.

Mr. DANIELS. The subcommittee will come to order.

This subcommittee, consisting of Mr. Nix as chairman, Mr. Roybal,

Mr. Broyhill, Mr. Derwinski, and myself was appointed and is

meeting this morning to consider H.R. 5932, H.R. 5775, and H.R.

6349, identical bills introduced by Mr. Staggers, Mr. Corbett, and

Mr. Broyhill, respectively, to amend the Federal Employees Health

Benefits Act of 1959 so as to authorize certain teachers employed by

the Board of Education of the District of Columbia to participate

in a health benefits plan established pursuant to such act and to

amend the Federal Employees Group Life Insurance Act of 1954 so

as to extend insurance coverage to such teachers.

(The bill H.R. 5932 follows:)

[88th Cong., 1st sess., H.R. 5932]

A BILL To amend the Federal Employees Health Benefits Act of 1959 so as to authorize certain teachers

employed by the Board of Education of the District of Columbia to participate in a health benefits plan

established pursuant to such Act and to amend the Federal Employees' Group Life Insurance Act of

1954 so as to extend insurance coverage to such teachers

Be it enacted by the Senate and House of Representatives of the United States of

America in Congress assembled, That section 3(a) of the Federal Employees Health

Benefits Act of 1959 (73 Stat. 710; 5 U.S.C. 3002(a)) is amended by striking out

the period at the end thereof and inserting in lieu thereof the following: ": Provided, That no teacher in the employ of the Board of Education of the District

of Columbia, whose salary is established by section 1 of the District of Columbia

Teachers' Salary Act of 1955 (69 Stat. 521), as amended (sec. 31-1501, D.C.

Code, 1961 edition), shall be excluded on the basis of the fact that such teacher

is serving under a temporary appointment if such teacher has been so employed

by such Board for a period or periods totaling not less than two school years."

SEC. 2. Section 2(a) of the Federal Employees' Group Life Insurance .Act of

1954 (68 Stat. 736), as amended (5 U.S.C. 2091(a)), is amended by striking out

the period at the end thereof and inserting in lieu thereof the following: "and in

no event shall any teacher in the employ of the Board of Education of the District

of Columbia, whose salary is established by section 1 of the District of Columbia

Teachers' Salary Act of 1955 (69 Stat. 521), as amended (sec. 31-1501, D.C. Code,

1961 edition), be excluded on the basis of the fact that such teacher is serving

under a temporary appointment if such teacher has been so employed by such

Board for a period or periods totaling not less than two school years."

SEC. 3. This Act shall take effect on the first day of the first month which

begins not later than the sixtieth day after the date of its enactment.

1
2 EXTENDING INSURANCE TO TEMPORARY D.C. TEACHERS

Mr. DANIELS. Mr. Nix had a very important engagement out of

the city this morning and rather than delay action on this legislation,

he requested that I serve as acting chairman.

These bills were introduced as a result of an official administration

request submitted to the Congress by Hon. Walter N. Tobriner,

President of the Board of Commissioners, District of Columbia.

In brief, the general purpose of the legislation is to authorize

temporary schoolteachers in the public schools of the District of

Columbia whose service aggregates two or more school years to participate in the Federal employees health benefits program and the

Federal employees group life insurance program on the same basis

that permanent schoolteachers now participate in these two programs.

Since submission of the proposed legislation has been approved by

the Bureau of the Budget it also has the approval of the U.S. Civil

Service Commission. The Commission will not testify • here this

morning but we do have with us Mr. Andrew E. Ruddock, Director

of the Civil Service Commission's Bureau of Retirement and Insurance,

who will be available to answer any questions that might arise.

Our first witness was to be the author of H.R. 5932, our colleague

on the full committee, Representative Harley 0. Staggers. Mr.

Staggers is unavoidably detained this morning and has requested

that he be permitted to file a statement in support of the legislation

at this point and, without objection, his statement will be entered

into the record.

(Statement of Representative Harley 0. Staggers follows:)

STATEMENT OF REPRESENTATIVE HARLEY 0. STAGGERS, OF WEST VIRGINIA

Mr. Chairman, I wish to thank you and the members of your subcommittee

for scheduling this prompt hearing on H.R. 5932, and I also wish to express my

appreciation to our chairman, Tom Murray, for extending to me the privilege of

introducing this most worthwhile legislation.

As you indicated, this measure was introduced as the result of an official

request which we received from the District of Columbia Commissioners and it

is designed to correct a most serious inequity that presently exists with regard to

certain faithful and dedicated schoolteachers serving in the District of Columbia

school system.

These teachers are presently excluded from participating in two very important

"fringe benefits" programs that Congress enacted for the benefit of all Federal

employees—the health and life insurance programs.

There are presently serving in the District of Columbia school system a number

of schoolteachers whose appointments are designated as "temporary," even

though they have been teaching for many years and their duties and assignments

are identical to those of the so-called permanent teachers. The "temporary"

designation of their appointments precludes them under existing law and regulations established by the Civil Service Commission from participating in the

health and life insurance programs.

H.R. 5932 will correct this inequitable situation by permitting them, if their

service aggregates two or more school years, to enjoy the benefits of the health

and life insurance programs the same as permanent teachers.

Mr. Chairman, in the interest of fairness and equity I sincerely urge your

favorable consideration of H.R. 5932.

Mr. DANIELS. Our first witness this morning will be Mr. Thomas

F. Moyer, Assistant Corporation Counsel of the District of Columbia.

Mr. Moyer, are you accompanied by any other people who may

testify this morning?

Mr. MOYER. Yes, sir, Mr. Chairman. I am accompanied by Dr.

Richard R. Foster, Assistant Superintendent of Schools, and Mr.

Barney Farber, Deputy Chief of the Accounting Division of the District of Columbia Finance Office.
EXTENDING INSURANCE TO TEMPORARY D.C. TEACHERS 3

I ask that the Commissioner's letter of March 27, 1963, to the

Speaker of the House be made a part of the record.

Mr. DANIELS. Without objection, it is so ordered.

(The letter and cost computation referred to later follows:)

BOARD OF COMMISSIONERS, DISTRICT OF COLUMBIA,

March 27, 1963.

Hon. JOHN W. MCCORMACK,

The Speaker, U.S. House of Representatives,

Washington, D.C.

MY DEAR MR. SPEAKER: The Commissioners of the District of Columbia have

the honor to transmit herewith a draft bill to amend the Federal Employees

Health Benefits Act of 1959 so as to authorize certain teachers employed by the

Board of Education of the District of Columbia to participate in a health benefits

plan established pursuant to such act and to amend the Federal Employees Group

Life Insurance Act of 1954 so as to extend insurance coverage to such teachers

The purpose of the bill is to include temporary teachers in the public schools

within the purview of the health and life insurance programs now available to

permanent teachers. As a matter of fair treatment to the many so-called temporary teachers with long periods of service, employed by the Board of Education,

the Commissioners favor the enactment of this proposed legislation extending

the coverage of the health and life insurance laws to temporary teachers whose

service aggregates 2 or more school years.

The estimated annual cost to the District government of this proposed legislation is $61,500.

The Commissioners have been advised by the Bureau of the Budget that, from

the standpoint of the administration's program, there is no objection to the

submission of this legislation to the Congress.

Very sincerely yours,

WALTER N. TOBRINER, President.

Temporary teachers, public schools—Cost estimate; Health benefits and life insurance;

H.R. 5932

COST ESTIMATE—COMPUTATIONS

A. Total number of temporary teachers 1,732

Number of temporary teachers with 2 years or less District

service 1,016

Estimated number of temporary teachers that would be covered_ 716

COMPUTATIONS

Total number of permanent teachers 3,352

Number permanent teachers enrolled in health plan 2,201

Percent of total number 66

Number permanent teachers enrolled in life insurance plan 3,216

Percent of total number 96

Based on above, it is estimated that 473 teachers would enroll in health plan

and 687 would enroll for life insurance.

Summary: 66 percent times 716 equals 473; 96 percent times 716 equals 687.

B. Government contributions for permanent teachers in October 1960:

Health insurance 10,709.84

Life insurance 7, 192. 12

Average Government contribution for permanent teachers in

October 1960 (see sec. A, for number enrollees):

Health insurance 4. 87

Life insurance 2. 24

Average annual Government contribution for permanent teachers:

Health insurance 48. 70

Life insurance 22.40

Based on the above, it is estimated that the additional cost to the District

government would be $38,423.90

Summary: 473 times 48.70 equals 23,035.10; 687 times 22.40 equals 15,388.80;

total, 38,423.90.
4 EXTENDING INSURANCE TO TEMPORARY D.C. TEACHERS

STATEMENT OF THOMAS F. MOYER, ASSISTANT CORPORATION

COUNSEL, DISTRICT OF COLUMBIA GOVERNMENT

Mr. MOYER. I would just like to briefly summarize the contents

of the letter.

The Commissioner has asked that such a bill as this, H.R. 5932, be

introduced, and its purpose is to include under group life insurance

and health benefits teachers in the public schools who are serving

under temporary appointments.

The Commissioner's report here has an estimated cost of this

legislation to be $61,500 a year. We have recomputed this cost and

we now have a figure of $38,000 a year, and that is the most recent

estimate of the cost of this legislation.

I believe that is all I have to say about this bill, Mr. Chairman.

We would like to ask that our most recent computation of the cost

also be made a part of the record.

Mr. DANIELS. Mr. Moyer, do you care to tell the committee just

exactly what the object and purpose of this bill is?

Mr. MOYER. Its purpose is to include teachers who are in public

schools of the District of Columbia serving under temporary appointments under Federal group life insurance and health benefits

plans. Presently they are not included because they are technically

temporary employees, although in fact, many of these teachers are

reappointed year after year and have been in the school system for a

good many years.

Dr. Foster can explain just what the situation is with these temporary teachers, why they have this designation although they are

in fact long-term public school employees.

Mr. DANIELS. All right, Doctor, do you care to give us the benefit

of your views?

I am particularly interested in why these teachers are appointed on

a temporary basis year after year. I understand that some teachers

in the District have taught for a number of years, as long as 20 years,

and are still considered temporary.

Will you explain the nature of such an appointment?

Dr. FOSTER. Yes, Mr. Chairman.

I think I should say to start with that we have three classes of teachers in the District of Columbia schools: probationary, permanent, and

temporary.

The probationary appointment is for a 2-year period and is designed

to lead to permanent appointment if the teacher is successful during

the 2-year probationary period.

In order to become probationary and subsequently permanent, a

teacher has to have one of a number of different kinds of teaching

licenses that are authorized by the Board of Education. To get one

of these licenses the teacher has to fulfill a set of definite requirements,

including graduation from college, at least a 4-year college program,

and including a number of specific requirements as to semester hours

or credit in various types of college work closely related to the subject

field in which the teacher is to teach.

Now all of the probationary and permanent teachers are covered

not only by the teachers' retirement system, but are included in the

Federal group life insurance and health benefits plans.

Mr. DANIELS. The probationary are?

Dr. FOSTER. The probationary are also; yes, sir.
EXTENDING INSURANCE TO TEMPORARY D.C. TEACHERS 5

The temporary teachers, on the other hand, are a group who for

one reason or another are not quite able to meet all the technical requirements for appointment as probationary or permanent teachers.

Our technical requirements are fairly stiff.

One of the requirements I did not mention is a written examination,

rather exhaustive, written examination for probationary appointment.

This is not required of temporary teachers.

The temporary teachers, however, must have at least a bachelor's

degree. They must, of course, meet the usual requirements of being

citizens of the United States and certified as being of good moral

character, and we make every effort to choose people for these temporary appointments that come as close to the technical requirements

for probationary appointment as possible, and a great many of them

do. That is the reason why we keep them as long as we do.

Mr. DANIELS. In what schools are they usually employed?

Dr. FOSTER. Well, they are in all three schools: elementary, junior

high, and senior high.

At the present time about a third of our elementary teachers are

temporary, about a third of the junior high and about a fourth of the

senior high.

The total number of temporary teachers as of March 15, 1963, I

believe was 1,732, out of a total staff in the neighborhood of 5,000.

I wanted to point out that the proposed bill, of course, would require

a temporary teacher to have been with us at least 2 consecutive years

in order to be eligible for these benefits; and according to our study

that we make every year of the years of service in which these people

are, there are about 45 percent of them that have been with us 2

years or more and about 16 percent have actually been with us more

than 5 years, a few, as you indicated, as long as 15 or 20 years.

I perhaps should say a further word about the nature of the temporary appointment. It can be made at any time during the year, but

it must be for a period extending not beyond June 30 of the current

school year, which is, of course, the same as the fiscal year. The

appointment may not extend beyond June 30. It may be terminated

at any time with or without reason.

So that when we keep these people over a period of years it is

because they are giving very good service as a rule. At any rate, we

are not able to find better people to replace them on a probationary

basis, and this is the reason we do it.

Mr. DANIELS. Briefly then you have three types of teacher?

Dr. FOSTER. Yes, sir.

Mr. DANIELS. Probationary, temporary, and permanent.

Dr. FOSTER. Right.

Mr. DANIELS. The temporary teacher is the one who fails to

possess the qualifications of a probationary teacher?

Dr. FOSTER. That is right.

Mr. DANIELS. But who, in time, is expected to be appointed permanently, is that correct?

Dr. FOSTER. The probationary one is.

Mr. DANIELS. Now the permanent teachers and the probationary

teachers do come under the provisions of the law and are covered and

have the right of obtaining this insurance and to convert it upon the

termination of their employment?

Dr. FOSTER. That is right.
6 EXTENDING INSURANCE TO TEMPORARY D.C. TEACHERS

Mr. DANIELS. This insurance benefit, though, is not shared by the

temporary employee?

Dr. FOSTER. That is right. Neither the insurance nor the health

benefits.

Mr. DANIELS. Now a temporary employee when appointed by the

school board in the District is appointed for what period of time?

Dr. FOSTER. Not longer than 1 year. He normally is appointed as

of July 1. Of course, his actual service begins when school begins in

September. His appointment is made not to extend beyond the following June 30, and if he is to be continued in service beyond that he

has to be reappointed as of July 1 of each year. All these people.

Mr. DANIELS. May I direct a question to Mr. Mayer?

Would the fact that the teacher who receives a temporary appointment and whose term expires on June 30 of the year in which he is

appointed or the following year affect his eligibility to be covered by

this bill in the event they are appointed for a second year?

Mr. MOYER. No; she would have to complete those 2 years before

she would become eligible under the provisions of the bill. She must

have completed 2 years of service, then she becomes eligible for the

health benefits and the life insurance, and then she would continue

to be eligible as long as she was reappointed every year.

Mr. DANIELS. Would the fact that her employment for the first

year terminates on June 30, which is the end of the school year be

considered a break in the service under the terms of this bill?

Mr. MOYER. No; because the bill makes specific amendments to

the Federal Employees Group Life Insurance Act and the Federal

Employees Health Benefits Act making specific provision for this

type of employment. There are two provisos, one added to each

statute, which would permit them being covered under the bills.

Dr. FOSTER. Mr. Chairman, the wording of the legislation reads

that—

no teacher shall be excluded on the basis of the fact that he is serving under a

temporary appointment if such teacher has been so employed by the Board for a

period or periods totaling not less than 2 school years.

I believe that will take care of that. In other words, any other

language notwithstanding, the teacher is not to be excluded on the

basis of a temporary appointment.

Mr. DANIELS. Now, if a teacher is appointed, say, for one term or

a period of about 4 or 4% months—I do not know exactly how long a

term is down here in the District—and is reappointed the following

year, not having served 24 calendar months, she would not qualify,

is that correct?

Dr. FOSTER. Well, this reads 2 school years. Actually the teachers

are paid according to law for 10 months in each year, September

through June, and all their appointments are made, as a rule, effective

July 1 because that is the beginning of the fiscal year. They do not

actually start to teach until September, and the law provides that

they shall be paid their annual salary not in 12 installments, but in

10, according to the approximately 10 months she serves.

Mr. DANIELS. Is the school year divided up into two semesters so

far as teaching is concerned?

Dr. FOSTER. There are two semesters, but this is not related to the

way they are paid. They are paid each month.
EXTENDING INSURANCE TO TEMPORARY D.C. TEACHERS 7

Mr. DANIELS. For what period of time does the first semester run?

Dr. FOSTER. About 5 months.

Mr. DANIELS. That would be from September through January?

Dr. FOSTER. Through January. The second semester begins

approximately February 1.

Mr. DANIELS. Is it possible that a teacher might be appointed

commencing the second semester?

Dr. FOSTER. This could be; yes, sir.

Mr. DANIELS. And where a teacher is employed commencing the

second semester and serving until June 30 and then reappointed for the

following year that teacher would have served 1 full year plus one

semester?

Dr. FOSTER. That is right.

Mr. DANIELS. Would she be qualified?

Dr. FOSTER. She would not be fully qualified under this.

Mr. DANIELS. So it is the intention of this bill that the teacher

serve 2 full school years?

Dr. FOSTER. Yes, sir.

Mr. FARBER. My name is Barney Farber. I am the Deputy Chief

of the Accounting Division, District of Columbia Finance Office.

I would like to have two points clarified. One is we pay the schoolteachers for a year an annual salary, but in 10 installments, so they are

on an annual basis—in reference to this bill, they use the term school

years. In discussion of the intent I would like to clarify so it is

understood. Is it the intent then, that these teachers will not have to

serve 24 months—will just need serve 2 school term years, which

might be 18 months, 9 months a year, or 20 months, as the case may

be?

Dr. FOSTER. Yes; I would say they would need to serve as long as

the regular schools are in session for 2 full school years. In other

words, they would need to earn 20 months of pay, which is 2 full years

of pay for them, 10 months in each year.

Mr. DANIELS. I think we must point out for the record that the

school year runs from September to June 30 following, and that the

salary is based not on a calendar year basis, but on the school year

basis, 10 months, and for the purpose of this act it is intended that the

scholl year shall be the factor that is taken into consideration rather

than the calendar year.

Dr. FOSTER. Yes, sir.

Mr. DANIELS. Doctor, will you repeat once again for me the number of teachers hired on a temporary basis presently engaged in the

elementary schools, the junior high schools and the period of time

that they approximately have been working for the District of Columbia school system?

Dr. FOSTER. Mr. Chairman, I have a table here which I would

like to insert in the record.

Mr. DANIELS. Without objection, it is so ordered.

(The table follows:)
8 EXTENDING INSURANCE TO TEMPORARY D.C. TEACHERS

Temporary teachers by levels and length of service, October 1962

Level

Years of service

2 3 4 5 More

than 5

Total

Elementary schools 297 186 158 107 64 190 1,002

Laboratory schools 1 1 1 3

Total, elementary schools 297 187 158 107 65 101 1,005

Junior high schools_ 177 91 52 18 7 28 376

Senior high schools 73 44 18 13 12 18 178

Boys' junior-senior high school 2 1 1 1 5

Vocational high schools 14 10 6 3 9 43

Americanization school 1 1

Capitol Page School 

Veterans H igh School Center 4 3 2 14 23

Health school:

Orthopedically handicapped 3 3 1 7

Visiting instruction 1 3 4

District of Columbia Teachers College 1 1

Serving all levels 5 3 3 2 2 15

Total, temporary teachers 573 343 242 144 87 269 1,658

Percent 34.6 20. 7 14.6 8. 7 5.2 16.2 100.0

Tenure status of teachers in District of Columbia public schools—School years 1956-57

through 1962-631

School year

Teachers in service in October each year—

Temporary Probationary Permanent Total in service

Number Percent Number Percent Number Percent Number Percent

1956-57 756 19.1 364 9.2 2,830 71.7 3,950 100

1957-58 912 22.2 359 8. 7 2, 838 69. 1 4, 109 100

1958-59 1,092 25.7 323 7.6 2,836 66. 7 4,251 100

1959-60 1,250 28.6 303 6.9 2,815 64. 5 4,368 100

1960-61 1,346 29.4 454 9.9 2,783 60.7 4,583 100

1961-62 1,531 32.1 499 10. 5 2, 732 57.4 4, 762 100

1962-63 1,658 33.3 549 11. 1 2, 767 55. 6 4, 974 100

Includes counselors, librarians, research assistants, school psychologists, and itinerant teachers, as well

as regular classroom teachers.

EXPLANATORY NOTE

Although the total number of full-time teachers in service has increased by

25.9 percent since 1956-57, the number on permanent status is less than it was 6

years ago. The number on probationary status, after declining steadily for 3

years, has turned moderately upward in the last 3 years. On the other hand,

the number of temporary teachers has more than doubled since 1956-57 and

now constitutes 33 percent of the entire teaching staff. More than one-third of

the elementary school teachers, about one-third of the junior high teachers, and

more than one-fourth of the senior high teachers have only temporary status.

Many good teachers are temporary because they fail to meet one or more

technical requirements and therefore have not taken the usual qualifying examinations, or because they do not expect to remain here long and so do not wish to

attain permanent status. Also, some teachers must be employed on a temporary

basis to fill temporary positions and to replace permanent teachers who are on

leave of absence. Nevertheless, the proportion of our teachers on temporary

status is too high for optimum service to the community, and steps should be

taken to attract more teachers who can and will qualify for permanent service

in our schools.

Dr. FOSTER. The years of service are indicated across the top up to

5 and more than 5, and the school level down the left-hand side in the

first column; these years of service are the year of service in which

the teachers are serving this year. And I may point out that the
EXTENDING INSURANCE TO TEMPORARY D.C. TEACHERS 9

grand total of 1,658 down in the lower right-hand corner was the

number of temporary teachers that we had lost October. We

regularly make tabulations of this kind in October at the end of the

first 6 weeks of school. At that time we had only 1,658. Mr.

Farber's calculations, of course, are based on the fact that by March 15

of this year this number had increased to 1,732.

Mr. DANIELS. What is the estimated cost to the Government for

enrolling these temporary teachers in this insurance program?

Mr. FARBER. The cost we have estimated, Mr. Chairman, is

$38,000, which would be $23,000 for health insurance and $15,000 for

life insurance, the total of $38,423.

Dr. FOSTER. May I point out in addition this is a little over 10

percent of the total amount that we are now spending for our regular

probationary and permanent people. The total amount the school

system now pays for group life insurance is about $100,000, and for

group health insurance about $191,000, for a total of $291,000.

Mr. DANIELS. All right, thank you, gentlemen.

Mr. Ruddock is here from the Civil Service Commission. He is

Director of the Bureau of Retirement and Insurance.

For the record, Mr. Ruddock, will you tell us how much it would

cost the District of Columbia for the enrollment of all of the teachers

in these insurance programs as proposed by the bill?

Mr. RUDDOCK. Yes, Mr. Daniels. The contribution of the District

of Columbia government to the life insurance fund would be 27 cents

per month for each $1,000 of insurance in force. For the health benefits the contribution of the District of Columbia government would

be $6.76 a month for each period covered under family coverage; it

would be $2.82 a month for each person enrolled for self only. So

that is the calculation of the cost estimate of the number multiplied

by the contribution with respect to each person. But there would

be no additional cost involved.

Mr. DANIELS. Thank you.

Now we have Mr. Sidney H. Zevin, principal of Paul Junior High

School, representing the District of Columbia Education Association.

Do you have anything further to add to the testimony of the

witnesses who preceded you?

STATEMENT OF SIDNEY H. ZEVIN, REPRESENTING THE DISTRICT

OF COLUMBIA EDUCATION ASSOCIATION

Mr. ZEVIN. Yes, sir; I want to state just two things really: Onethat the DCEA does represent more than 4,000 teachers and ad.

ministrators in the school system, and we do support this legislation,

I want to point out, though, that there are several other reasons

for having so many temporary teachers in the school system that I

think Dr. Foster did not point out.

One is the fact that there is an age limit for appointment of probationary and permanent teachers. This is what, Dr. Foster?

Dr. FOSTER. Fifty.

Mr. ZEVIN. Fifty, and earlier it was 45. So that a teacher who

in past years came back into the school system past the age of 45

after having been out or having been recruited after raising a family,

and so forth, would not have been eligible to become a probationary
10 EXTENDING INSURANCE TO TEMPORARY D.C. TEACHERS

or permanent teacher, and this is why we have many fine teachers

who have never become eligible to become permanent.

Another reason for temporary teachers is the fact that some temporary positions must be kept to provide for people who are out on

leave for such things as maternity, and these positions must be filled

by temporary appointees.

So that a considerable proportion of the temporary teachers in the

District school system are not just because teachers are hard to

get, qualified teachers, but because there are certain extenuating

circumstances. I think that is important.

Mr. DANIELS. Thank you for your contribution, Mr. Zevin. We

will include in the record at this point your letter addressed to the

subcommittee.

(The letter follows:)

DISTRICT OF COLUMBIA EDUCATION ASSOCIATION,

Washington, D.C., May 28, 1963.

Hon. ROBERT N. Nix,

Chairman, Subcommittee to Consider H.R. 5932,

House of Representatives, Washington, D.C.

DEAR SIR: The District of Columbia Education Association, which represents

more than 4,000 members of the teaching and administrative staffs of the District

of Columbia school system, would like to record its endorsement of H.R. 5932,

which would authorize persons who have served as temporary teachers in the

District of Columbia school system for at least 2 years to participate in the

Federal employees health benefits plan of 1959, and to receive insurance coverage

under the terms of the Federal Employees' Group Life Insurance Act of 1954.

The association appreciates the opportunity which you have afforded it to

affirm its support of this legislation.

Respectfully yours,

SIDNEY H. ZEITIN, Legislation Chairman.

Mr. DANIELS. I notice one other witness has also been scheduled

to testify here today, Mr. Donald Goodloe, legislative representative,

American Federation of Teachers of the District of Columbia.

• Mr. Goodloe, do you have anything to add to the testimony of the

previous witnesses?

STATEMENT OF DONALD GOODLOE, LEGISLATIVE REPRESENTATIVE, AMERICAN FEDERATION OF TEACHERS, DISTRICT OF

COLUMBIA LOCAL

Mr. GOODLOE. Yes, sir. First I have a prepared statement which

I request be made a part of the record.

Mr. DANIELS. Without objection, it is so ordered.

(The prepared statement of Mr. Goodloe follows:)

STATEMENT OF DONALD GOODLOE

Mr. Chairman and members of the subcommittee, local 6 of the American

Federation of Teachers (AFL—CIO) has the honor of submitting the following

testimony in support of H.R. 5932, a bill to include certain temporary teachers

in the public school system of the District of Columbia in the benefits of the

Health Insurance Act approved September 28, 1959, as well as to provide for

coverage under the Life Insurance Act of 1954.

Many temporary teachers in the school system of the District of Columbia are

well qualified people. In fact, the word temporary scarcely describes their actual

status or accomplishments. Some of these men and women have actually taught

in the public schools of the Capital of the Nation many years. To be sure, one

may ask why these individuals have not qualified for permanent appointment.
EXTENDING INSURANCE TO TEMPORARY D.C. TEACHERS 11

Eventually, many of them probably will do so. It is nevertheless, true that standards in the District public school system are very high. It is, moreover, to the

credit of our school administration that it has kept these standards high, in spite

of the difficulty of securing teachers who measure up to them. This explains a

situation in which we have many teachers who are very competent, although

they have not yet been able to secure permanent licenses to teach in the public

schools of the District ot Columbia.

The necessity for this legislation goes beyond the facts that we have cited.

There is little need to tell you gentlemen that it is difficult to get capable and

efficient teachers these days. That has been true in Washington as well as in

other American cities. To be sure, salaries were raised considerably by the

87th Congress and that Will help recruit qualified personnel for our school system.

Still, that will take some time.

At present, we have more than 1,000 temporary teachers and we need them.

Many of them, as we have said, are excellent teachers and we would like to retain

them.

That cannot be done, unless we offer some inducements in addition to the salaries which are now available to them. Public and private employees throughout

our Nation are being included under health insurance plans to make employment

attractive to them. These so-called fringe benefits are coming to be regarded as

part of the compensation to be expected in any field of employment.

A teacher who has devoted 5 or 10 years of service to our public school system

cannot be expected to remain here indefinitely without protection against possible

accident or illness. Despite our progress in many fields, we are still having difficulty in giving any considerable part of our citizens adequate protection against

prolonged Hitless or incapacity to engage in profitable work. Certainly, the Government of the United States and the District of Columbia should not be derelict

in this matter.

It should be emphasized that this bill does not include everyone who sets foot

in District of Columbia classrooms under this bill. To share in its benefits, an

employee must be employed in the District public schools for 2 years. That will

be a guarantee against unreasonable cost to the taxpayers of the Nation and of

Washington, D.C. We regard this bill as being in the public interest and, accordingly, ask that this subcommittee favorably consider it and do all that is possible

to have it enacted into law.

Very respectfully,

DON GOODLOE,

Legislative Representative.

Mr. GOODLOE. I represent the Teachers' Union which is affiliated

with the national American Federation of Teachers and with the

Central Labor Council of the metropolitan area, having altogether

more than 100,000 members.

There is no need for me to read this brief statement. The main

thing I have to say is stated on the second page, that it is general

practice in public employment and private employment—that is, industry—to give fringe benefits, to have life and health insurance.

That is getting to be more and more one of what is called the fringe

benefits in industry, and these teachers are without it.

In other words, even if these people have been in 5 or 10 years—

and as has been pointed out by Dr. Foster, there are quite a few of

them—just anybody would not be able to come in the District system

and get it. That is one inducement.

We think that the Board of Education deserves credit for keeping

standards for regular employment very high, and the temporary teachers, as it has been stated, are the best we can get, and we must offer

them some inducement besides the salaries.

It is true now that the 87th Congress raised the regular salaries

that would enable the system to get better teachers, but all that cannot be done right away, as you appreciate.
12 EXTENDING INSURANCE TO TEMPORARY D.C. TEACHERS

We think that participation in the life and health insurance programs set up by the Life Insurance Act of 1954 and the Health Insurance Act set up under Public Law 382, 86th Congress I believe, that

those would be things that would help us not only retain the very

competent temporary teachers, but get others.

Well, Congressman, that is my contribution as a representative of

organized labor in support of this bill.

Mr. DANIELS. Mr. Goodloe, your point has been well made.

Thank you for coming.

Mr. GOODLOE. I am glad of the privilege for being allowed to give

this testimony.

Mr. DANIELS. Well, that concludes the hearing.

(Whereupon, at 10 a.m., the hearing was concluded.)

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