i;OVERNMENI

Storage ‘14#

c21.'41°

EXTENDING APPORTIONMENT REQUIREMENT TO

, TEMPORARY SUMMER EMPLOY

.P 04-no

ein 1/6/

/65

HEARING

BEFORE THE

:01VIMITTEE ON CIVIL SERVICE

OF THE

COMMITTEE ON

OFFICE AND CIVIL SERVICE

ISE OF REPRESENTATIVES

EIGHTY-NINTH CONGRESS

FIRST SESSION

ON

H.R. 242

A BILL TO EXTEND THE APPORTIONMENT REQUIREMENT IN

THE CIVIL SERVICE ACT OF JANUARY 16, 1883, TO TEMPORARY SUMMER EMPLOYMENT, AND FOR OTHER PURPOSES

MAY 19, 1965

Printed for the use of the Committee on Post Office and Civil Service

U.S. GOVERNMENT PRINTING OFFICE

48-207 WASHINGTON: 1965
. * trui wire j . NO '

.e.' _: 1

r

"I.' - • .

& ,

COMMITTEE ON POST OFFICE AND CIVIL SERVICE

TOM MURRAY, Tennessee, Chairman

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 O. STAGGERS, West Virginia

ROBERT N. C. NIX, Pennsylvania

JOE R. POOL, Texas

WILLIAM J. GREEN, Pennsylvania

SPARK M. MATSUNAGA, Hawaii

PAUL J. KREBS, New Jersey

RAYMOND F. CLEVENGER, Michigan

JAMES M. HANLEY, New York

JOHN V. TUNNEY, California

ROBERT J. CORBETT, Pennsylvania

H. R. GROSS, Iowa

GLENN CUNNINGHAM, Nebraska

EDWARD J. DERWINSKI, Illinois

ROBERT F. ELLSWORTH, Kamas

ALBERT W. JOHNSON, Pennsylvania

JOHN H. BUCHANAN, JR., Alabama

JAMES T. BROYHILL, North Carolina

CHARLES E. JOHNSON, Staff Director

B. BENTON BRAY, Associate Staff Director

JOHN H. MARTINI', Counsel

WILLIAM A. IltviNE, Assistant Staff Director

SURCOMMITTEE ON CIVIL SERVICE

LINDLEY BECKWORTH, Texas, Chairman

THADDEUS J. DULSKI, New York

ROBERT N. C. NIX, Pennsylvania

WILLIAM J, GREEN, Pennsylvania

SPARK M. MATSITNAGA, Hawaii

RAYMOND F. CLEVENGER, Michigan

Ex Officio Voting Members

TOM MURRAY, Tennessee ROBERT J. CORBETT, Pennsylvania

I i

ALBERT W. JOHNSON, Pennsylvania

ROBERT F. ELLSWORTH, Kansas

JAMES T. BROYHILL, North Carolina
CONTENTS

Statement of Hon. John W. Macy, Jr., Chairman, U.S. Civil Service

Commission; accompanied by Warren B. Irons, Executive Director,

U.S. Civil Service Commission 

Page

3

A
I
EXTENDING APPORTIONMENT REQUIREMENT TO

TEMPORARY SUMMER EMPLOYMENT

WEDNESDAY, MAY 19, 1965

HOUSE OF REPRESENTATIVES,

SUBCOMMITTEE ON CIVIL SERVICE OF THE

COMMITTEE ON POST OFFICE AND CIVIL SERVICE,

Washington, D.C.

The subcommittee met, pursuant to call, in room 219, Cannon

House Office Building, Hon. Lindley Beckworth (chairman of the

subcommittee) presiding.

Mr. BECKWORTH. The subcommittee will come to order.

The subcommittee is meeting this morning to hold public hearings

on H.R. 242, a bill which I introduced to extend the apportionment

requirement in the Civil Service Act of January 16, 1883, to temporary

summer employment, and for other purposes.

(The bill, H.R. 242, follows:)

[H.R. 242, 89th Cong., 1st sess.]

A BILL To extend the apportionment requirement in the Civil Service Act of January 16, 1883, to temporary summer employment, and for other purposes.

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

America in Congress assembled, That the sixth paragraph of section 2 of the Civil

Service Act of January 16, 1883, as amended (5 U.S.C. 633), providing for the

apportionment of appointments in the competitive civil service, is amended by

inserting "(including appointments to temporary employment of more that

thirty days in the period from May 1 through September 30 of each year, except

appointments to the postal field service and appointments of an emergency

nature)" immediately following "appointments to the public service aforesaid".

Mr. BECKWORTH. The purpose of this legislation is to require that

temporary summertime appointments to Government positions in the

Washington, D.C., metropolitan area be subject to the apportionment

requirements of the Civil Service Act of 1883. Apportionment requirements are now applicable to permanent appointments in the

Washington area.

Without entering into a lengthy discussion on the merits of this

bill, the Chair deems it appropriate that the record show, at this point,

some of the more important parts of the rather extensive legislative

history of the legislation.

H.R 242 is identical to H.R. 5698 of the 87th Congress and H.R. 10

of the 88th Congress. H.R. 5698 was reported favorably by the

House Post Office and Civil Service Committee with only one opposing

vote, and passed the House of Representatives under suspension of

the rules with a 309 to 19 majority on a rollcall vote. It was reported

reported favorably by the Senate Post Office and Civil Service Committee without, insofar as I have been able to find, a single vote against

it in that committee.

1
2 APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT

H.R. 10 likewise was reported favorably by the House Post Office

and Civil Service Committee in the 88th Congress with an amendment

to which I agreed. There was not a single vote against reporting

the bill. H.R. 10 passed the House under suspension of rules on a

record vote of 301 to 18. The Civil Service Subcommittee of the

Senate Post Office and Civil Service Committee conducted public

hearings on the measure, which were printed, but took no further

action.

In the present Congress, the Subcommittee on Civil Service has

scheduled H.R. 242 for consideration in order that it may be reviewed

and reevaluated on the basis of the rather complete and detailed legislative history already compiled and of present conditions relating to

methods which are used to create temporary summer positions in and

near the Nation's Capital and to make appointments thereto.

In this connection, I would bring to the special attention of the subcommittee members the report of the House Post Office and Civil

Service Committee which accompanied H.R. 10 in the 88th Congress.

It is House Report 897, and a copy is on each member's desk this

morning. That report sets forth very concisely the underlying principles involved in H.R. 242, and in addition, includes highly informative tables on distribution of the temporary summer jobs with which

we are concerned among the 50 States and the District of Columbia.

While the tables have not been brought up to date, I believe that

the relative standings among the various States and the disproportionate number of summer jobs held by residents of neighboring States

and the District of Columbia is a very accurate representation of

current trends.

The main objective of this legislation is simply to give young people

from all over the country a fair opportunity at least to be considered

for the privilege of working for their Government during summer vacation time in or near the Nation's Capital. It is to be emphasized that

patronage is not, and should not be, any controlling factor in this

objective. I personally would be delighted to see all patronage factors eliminated, not only in summer appointments but in all civil

service appointments. It is my further thought that written competitive examinations should be given to just as many students as

possible for such summer jobs as are available.

The ability of the Government to recruit, hire, and retain the best

people in the public service generally is no better than the thoroughness

of the competitive examining procedures used. Certainly, competitive

examinations on balance result in bringing forward the best-qualified

people. That seems to me to be the very foundation of our competitive merit system first written into the law by the Civil Service

Act of 1883.

Chairman John W. Macy, Jr., of the U.S. Civil Service Commission,

will present the views of the administration on H.R. 242 this morning.

He is accompanied by Mr. Warren B. Irons, Executive Director of

the Commission.

We will be pleased to receive your testimony at this time, Mr. Macy.
APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT 3

STATEMENT OF HON. JOHN W. MACY, JR., CHAIRMAN, U.S. CIVIL

SERVICE COMMISSION; ACCOMPANIED BY WARREN B. IRONS,

EXECUTIVE DIRECTOR, U.S. CIVIL SERVICE COMMISSION

Mr. MACY. Mr. Chairman, thank you very much. I am pleased

to be here and pleased to be accompanied by Warren Irons, the

Commission's Executive Director. I welcome this opportunity to

testify on H.R. 242.

As you have indicated, I have testified on bills of the same general

content that were introduced in the previous Congress. Also, I have

during the past 2 years spent a good deal of my own time and the

time of the Commission staff reviewing and examining the entire

program of summer employment and I am pleased to review this

with you at this time.

With your permission, I would like to introduce into the record the

Commission's report on H.R. 242 dated May 18, yesterday.

Mr. BECKWORTH. Without objection it will be entered, Mr.

Chairman.

(The document referred to follows:)

U.S. CIVIL SERVICE COMMISSION,

Washington, D.C., May 18, 1965.

Hon. Tom MURRAY,

Chairman, Committee on Post Office and Civil Service,

House of Representatives, Cannon House Office Building.

DEAR MR. CHAIRMAN: This is in further reply to your request of January 13,

1965, for the views of the Civil Service Commission on H.R. 242, a bill to extend

the apportionment requirement in the Civil Service Act of January 16, 1883, to

temporary summer employment, and for other purposes.

The Commission strongly opposes enactment of this bill.

While the Commission feels that legislation is not appropriate, it shares the

sentiment that opportunities for summer employment should be available on a

merit basis. To this end it issued administrative instructions last year and again

this year requiring agencies to develop summer employment plans which provide

for selection from among those found best qualified and without regard to race,

religion, sex, or political or personal favoritism. As a specific requirement concerning personal favoritism, each plan must prohibit employment in the same

agency of sons and daughters of employees. Agencies having uniformed services

must also apply this restriction to sons and daughters of uniformed personnel of

their uniformed services. Enclosure No. 1 is a copy of the administrative instructions issued by the Commission for the summer of 1965.

Under these administrative instructions, residents of any State who desire to

do so may apply to agencies in the Washington, D.C., area for temporary summer

employment, and if considered best qualified, would receive an offer of employment.

The success which attended the response to our administrative instructions for

the summer of 1964 is shown in enclosure No. 2. This is a chart depicting the

number of residents from each State who received temporary summer appointments in the Washington, D.C., area during the summer of 1964, and the number

from each State who received temporary summer appointments outside the

Washington, D.C., area. A review of the chart indicates that each State shared

in the employment opportunities that were available.

The Commission therefore feels that its administrative actions will tend strongly

to achieve the objectives of the bill while avoiding the administrative burden

that would follow enactment of strict legislative requirements.

The Bureau of the Budget advises that from the standpoint of the administration's program there is no objection to submission of this report.

By direction of the Commission:

Sincerely yours,

JOHN W. MACY, Jr., Chairman.
4 APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT

Temporary summer employment, summer 1964

State

Number of

residents

appointed,

Washington,

D.C.

Number of

residents

appointed

outside

Washington,

D.C.

Total

number of

residents

appointed

Residents

appointed

per 100,000

population

(rounded)

Alabama 29 1,131 1,160 35.5

Alaska _ 0 1,370 1,370 605.8 Arizona 14 1,497 1, 511 116.0

Arkansas 16 711 727 40. 7

California 106 4,767 4,873 31.0

Colorado 17 1,939 1,956 111. 5

Connecticut 33 144 177 7.0

Delaware 22 53 75 16. 8

Florida 57 475 532 10. 7

Georgia 39 1,244 1,283 32.5

Hawai 9 261 270 42. 7

Idaho 11 1,902 1, 913 286. 7

Illinois 82 845 927 9. 2

Indiana 32 422 454 9. 7

Iowa 28 349 377 13. 7

Kansas 22 504 526 24.1

Kentucky 31 646 677 22.3

Louisiana 34 748 782 24. 0

Maine 11 123 134 13.8

Maryland 1,822 884 2,706 87.3

Massachusetts 100 511 611 11.9

Michigan 63 748 811 10.8

Minnesota 42 704 746 21. 9

Mississippi 10 1, 161 1, 171 53.8

Missouri 35 1,087 1, 122 26.0

Montana 7 2, 141 2, 148 318,3

Nebraska 18 253 271 19. 2

Nevada 1 284 285 100.0

New Hampshire_ 16 125 141 23.2

New Jersey 104 625 729 12. 0

New Mexico 10 1,859 1,869 196.5

New York 251 2, 126 2, 377 14. 2

North Carolina 85 667 752 16.5

North Dakota_ 10 328 338 53. 4

Ohio 99 1,224 1,323 13.6

Oklahoma_ 25 710 735 31. 6

Oregon 18 2,189 2, 207 124.8

Pennsylvania 194 1,219 1,413 12.9

Rhode Island 42 56 98 11.4

South Carolina 32 422 454 19.3

South Dakota 10 481 491 72.2

Tennessee 26 775 801 22. 5

Texas 100 2, 276 2, 376 24. 9

Utah 27 1,409 1,436 161.2

Vermont 14 88 102 26. 1

Virginia 1,397 1, 177 2, 574 64.9

Washington 46 2, 684 2, 730 95. 7

West Virginia 83 372 455 24. 5

Wisconsin 34 336 370 9. 4

Wyoming 7 726 733 222. 1

District of Columbia 1, 279 89 1, 368 179. 1

kmerican Samoa 0 2 2 

Guam 1 0 1 

Panama Canal Zone 0 1 1 

Puerto Rico o 10 10 

Virgin Islands 1 2 3 

)ther 16 12 28 

Total 6,618 48,894 55,512 

U.S. CIVIL SERVICE COMMISSION BULLETIN No. 316-5

WASHINGTON, D.C., February I, 1965.

Subject: 1965 summer employment program.

Inquiries: Merit Systems Section, Code 183, Extension 7483.

Code: Temporary and indefinite employment.

Distribution: FPM.

Heads of Departments and Independent Establishments:

This bulletin outlines the conditions under which temporary appointments

may be made to temporary summer positions in agencies subject to the Civil

Service Act.
APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT 5

Appointment procedures

Existing appointment authorities will be continued for 1965 with certain

modifications.

TEMPORARY LIMITED APPOINTMENTS (700 HOURS) IN THE WASHINGTON AREA

In the Washington metropolitan area, the authority to make temporary limited

appointments for not to exceed 700 hours is modified as follows:

700-hour-authority appointments for summer employment between May 1

and September 30, 1965, in the Washington metropolitan area may be made

only under a written plan or plans established by each department or agency

head. Plans must contain, but need not be limited to, the following elements:

1. All appointees shall, as a minimum, meet the qualification standards

prescribed by the Civil Service Commission.

2. Appointments shall be from among those found best qualified and consideration must be given to the qualifications of all applicants.

3. Appointments shall be made without regard to race, religion, sex, or

political or personal favoritism.

4. As a specific requirement concerning personal favoritism, each plan

must prohibit employment in the same department or agency of sons and

daughters of employees. Agencies having uniformed services must also

apply this restriction to sons or daughters of uniformed personnel of their

uniformed services.

5. All plans must state the conditions under which applications will be

received and processed and selections made, including time limits for receipt

of applications.

6. All plans must be published and made available to employees and

applicants. Employees and applicants must be informed of the limitation

on employment of sons and daughters.

OTHER SUMMER EMPLOYMENT, INCLUDING SCHEDULE A

In all summer employment in Washington and throughout the United States,

whether under temporary limited appointment or schedule A, agencies shall

observe the following requirements as well as other requirements applicable

under the authority used:

1. Appointments shall be made without regard to race, religion, sex, or political

or personal favoritism.

2. Employment in the same department or agency of sons and daughters of

employees is prohibited. Agencies having uniformed services must also apply

this restriction to sons and daughters of uniformed personnel of their uniformed

services.

3. Employees and applicants must be informed of the limitation on employment of sons and daughters.

Changes in regulations

To carry out the provisions listed above, the Commission has issued the following regulations:

SEC. 338.202 Restriction on sons and daughters. An agency (including a military department) may not appoint the son or daughter of a civilian employee

of that agency, or the son or daughter of a member of its uniformed service,

under a temporary limited appointment made for part-time, seasonal, intermittent, or other temporary employment within the United States between

May 1, 1965, and September 30, 1965; except that this prohibition shall not

apply to the appointment of persons who are eligible for placement assistance

under the Commission's Separated Career Employee (SCE) Program.

SEC. 213.3101(a) * * *.

(b) An agency (including a military department) may not appoint the son or

daughter of a civilian employee of that agency, or the son or daughter of a member

of its uniformed service, to a position listed in Schedule A for part-time, seasonal

intermittent, or other temporary employment within the United States between

May 1, 1965, and September 30, 1965; except that this prohibition shall not

apply to the appointment of persons who are eligible for placement assistance

under the Commission's Separated Career Employee (SCE) Program.

The above regulations apply regardless of where the parent is employed or

where the son or daughter seeks employment in the United States. They also

apply without regard to the age of the children and whether or not they are part

of the parent's household.

48-207-65--2
6 APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT

The term "agency" in the regulations means a department, independent establishment, military department (Army, Navy, Air Force), or Government owned or controlled corporation in the executive, legislative, or judicial branches of the U.S. Go-ernment which has positions subject to Civil Service Commission rules and regulations, and that portion of the government of the District of Columbia subject to the Commission's rules and regulations. The term "uni- formed service" in the regulations means the uniformed services of the Army, Navy, Air Force, Marine Corps, Coast Guard, Public Health Service, and Coast and Geodetic Survey.

Definition of summer employment

Summer employment means any temporary employment which begins (entrance

on duty) during the period from May 1, 1965, through September 30, 1965.

Emergency situations

The summer employment regulations (sec. 338.202 for employment in the competitive service and sec. 213.3101(b) for employment under schedule A) do not apply to appointments made to meet emergency situations that (1) involve

an actual and immediate threat to life or property and (2) cannot be dealt with by employment of persons not prohibited by the regulations. As an example,

an explosion or major fire at an isolated station or depot may require emergency

use of all manpower immediately available.

No-exception policy

The Commission has determined that it will grant no exceptions from the application of the summer employment regulations; unless temporary summer appointments fall within the scope of the above emergency-situation criteria, the regulations apply.

Questions and answers

The following questions and answers provide specific examples of the applica- bility of the summer employment regulations. They are designed to assist agencies to apply these regulations in appointment actions and to answer inquiries they may receive from various sources:

1. Question: Do the summer employment regulations apply to appointments made from the registers as well as to appointments not made from registers?

Answer: Yes.

2. Question: Do the summer employment regulations apply to special needs appointments?

Answer: Yes; unless such appointments are made to meet emergency situa- tions as explained above.

3. Question: Do the summer employment regulations apply to veterans as well as nonveterans?

Answer: Yes.

4. Question: Must appointing officers submit reasons for passing over preference eligibles on certificates issued for temporary limited appointment when these eligibles are affected by the prohibition in the summer employment regulations?

Answer: No. The application of the summer employment regulations dis- qualifies affected eligibles for appointment. Such situations should be handled as objections to eligibles. Boards of examiners are authorized to to sustain these objections.

5. Question: Do the summer employment regulations prohibit the summer employment of a parent of an employee?

Answer: No.

6. Question: Do the summer employment regulations prohibit the 'concurrent employment within an agency of a parent and his son or daughter during the May 1 through September 30 period?

Answer: Not necessarily. Since the regulations do not restrict appointment of parents, concurrent employment is permitted if the son or daughter

enters on duty before the parent is appointed.

7. Question: How do the summer employment regulations apply when a

civilian employee or a member of an agency's uniformed service is on detail

to another agency?

Answer: The regulations apply simultaneously to the agency from which he is detailed and to the agency to which he is detailed.

8. Question: Do the summer employment regulations apply to Reserve

members of an agency's uniformed service while they are on active duty?
APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT 7

Answer: Yes. While a Reserve member of an agency's uniformed service

is on active duty (this excludes annual 2-week training tours of duty) between May 1 and September 30, 1965, his son or daughter may neither be

appointed to nor enter on duty for summer employment in the agency.

9. Question: Do the summer employment regulations apply to the sons and

daughters of experts, consultants, advisers, and other special Government

employees?

Answer: Yes; so long as a parent is on the agency's rolls as an employee,

whether or not he is actually performing the duties of his employment, his

son or daughter cannot be appointed to or enter on duty for summer employment.

By direction of the Commission:

WARREN B. IRONS, Executive Director.

Mr. MACY. Thank you, Mr. Chairman. In the interest of providing further information for the consideration of the committee in

its deliberations on this legislation, I would like, if it is agreeable, to

offer some additional views and facts.

You will note, Mr. Chairman, that our report strongly oppose

enactment of this bill. Our opposition is based on the fact that this

legislation would create administrative problems completely out of

proportion to the expected benefits and, in addition, it is unnecessary

because we are taking care of the situation through administrative

action.

Let me say at the outset that the Commission readily appreciates

the difficulties experienced by Members of Congress in the past in

attempting to counsel high school and college students who want

work in Washington during the summer. The Civil Service Commission took vigorous administrative action to solve this problem in

the summer of 1964. Encouraged by the success which attended our

initial efforts, we are repeating the program for this summer. Let me

briefly describe what we did last year.

Early in 1964, we issued instructions outlining the conditions under

which temporary appointments were to be made to temporary summer

positions in agencies subject to the Civil Service Act. Although a

copy of our instructions is included in our report on this bill, I would

like to take a few minutes to review some of the significant features

contained in them. These instructions provided:

(1) Appointments to temporary summer positions had to be

made from among those found to be best qualified; consideration

had to be given to the qualifications of all applicants; and appointments had to be made without regard to race, religion, sex, or political

or personal favoritism. This meant that appointments had to be

made on the basis of merit, subject to veterans' preference, of course.

Any resident of any State desiring to do so could apply directly to

agencies in the Washington, D.C., area for summer employment.

Each agency was required to include i.. its plan a time limit for the

receipt of applications for summer employment.

These instructions assured them that their applications for such

employment would be considered and their qualifications evaluated,

and that any appointments made would be on the basis of merit from

among those considered to be best qualified.

(2) Agencies were prohibited from employing in the same agency

the sons and daughters of employees; the same restriction was extended to the sons and daughters of uniformed personnel in agencies

having uniformed services. This prohibition has had the effect of

placing a block in the way of the exercise of personal favoritism in

making temporary appointments.
8 APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT

These same ground rules were reissued for the summer of 1965.

As an indication of our continuing interest in this area, we requested agencies to furnish us a report on their temporary summer

employment for the summer of 1964.

I make quite a point of this because I recall in some of our earlier

discussions I was not able to be responsive in a quantitative sense

to some of the questions you directed to me concerning the nature

of summer employment.

The statistical chart enclosed with our report indicates the number

of residents of each State who received temporary summer appointments in Washington, D.C., and the number who received such

appointments outside Washington, D.C.

In analyzing these statistics by taking a look at the summer employment picture in its totality, we were gratified to find that the administrative action taken has accomplished its purpose. The chart

clearly shows that every State shared substantially in the employment

opportunities that were available. Obviously some were in excess

and some in arrears of what their quota might have been under apportionment, but this is nothing unusual. Pretty much the same situation has existed for many years under operation of the apportionment

provision of the Civil Service Act.

In our opinion, there would not have been any significantly different

results even if we had been operating under specific legislation. Obviously the convenience of worksite to residence will always be a strong

factor in apportionment. The statistics show clearly that the most

abundant opportunities for Federal summer jobs occur outside of the

Washington, D.C., area and thus students living at some distance

from the Capital naturally seek jobs closer to their homes.

In conclusion, Mr. Chairman, all of the evidence indicates we have

come a long way toward solving the problems that existed prior to

1964, and it is our sincere belief that our continued monitoring of this

program will continue to bring improvement.

I will be happy, of course, to respond to any questions that you or

your colleague may have on this subject.

It is one which I say we have given a great deal of attention to in

recent years and one in which there is high interest throughout the

country.

I will be pleased to discnss it with you in any fashion that you desire.

Mr. BECKWORTH. Do you have any questions, Mr. Matsunaga?

Mr. MATSUNAGA. None right now.

Mr. BECKWORTH. Mr. Chairman, I want to thank you for your

very excellent statement and applaud you for the firmness that you

have shown in doing something about this problem which we all have

understood to exist. I do think you are making some progress and

it gratifies me, as one who tried to point up the situation, that progress

is being made.

I noted not long ago a brief memorandum from the State Department and I want to read it to you. It says:

Summer intern program: The Department has written to about 250 to 300

colleges and universities throughout the United States, requesting that each

school select one junior or senior for our summer intern program. From the

names submitted to the Department, we have selected 35 to 40 interns. Persons

interested in applying for next year's program should apply to their dean.
APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT 9

Now what do you think about that kind of system? It certainly

has a spread when 250 to 300 colleges participate.

Mr. MAcY. Right. This is an effort on the part of the State

Department to provide a broad geographical spread of applications

among the colleges and universities of the country. This is a very

popular program. College students today are very much interested

in international affairs. The result is that the Department tends

to be deluged with applications.

They have endeavored to spread it out by making selections on

this basis. Under the proposed legislation it would not be possible

for them to do that. They would have to follow an apportionment

under a competitive examination.

I believe that that program is illustrative of the problem that we

have. These are short-term employments, at best 90 days. There

is high interest on the part of youngsters for a variety of motives,

some in order to come to the Nation's Capital and learn more about

their Government, some because of potential career interest they have

in Government service and others just to have a summer job, and consequently there is high interest and it is necessary to make sure that

we have a system where those best qualified have an opportunity to

serve.

I was particularly intrigued, Mr. Chairman, with this census that

we conducted last summer because it showed that there are a total of

55,512 jobs that were filled on a temporary basis during the summer

months and that 48,894 of those jobs are outside of the Washington

area and 6,618 in the Washington area. I was also pleased to see

what a broad distribution this represents across the country. Although there is naturally in Washington employment a heavy concentration of residents from the District, Maryland, and Virginia,

there is nevertheless some representation from virtually every State

here.

Also, out in the field service, you will find that the appointments

tend to follow the general distribution of total appointments for the

Federal service so that you have, just to take a State at random,

without any specific purpose; take Texas, for example, I note here

in the figures that 2,276 summer appointments of residents of the

State of Texas outside of Washington, D.C., and 100 in Washington.

The State of California, 106 in Washington and 4,767 residents outside of Washington.

This reflects the very heavy concentration of Federal activity in

both California and Texas. So that we have here for the first time

an indication as to the very decided geographical distribution of these

employment opportunities.

Mr. BECKWORTH. I would say we have been aware of the fact

all along that there are people employed in other areas of the Nation

but it must be borne in mind, Mr. Chairman, that there is only one

U.S. Capital and it is here in Washington, D.C., where the real opportunity to sense the workings of the Federal Government does

exist. Washington is not the only opportunity to work for the

Government, but there is only one U.S. Capital and it is here, as we

all know.

Mr. MAcY. That is correct.
10 APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT

Mr. BECKWORTH. I want to go into the State Department memorandum a little bit further. This is a clerical program and I think

it is rather important. I quote:

In addition we will appoint a very limited number of persons for clerical positions in Washington. If you are interested in being considered, you must take

the civil service clerk-typist or clerk-stenographer examination. Your eligible

notice of rating from the Civil Service Commission should be attached to your

completed application forms and mailed to the Department of State summer

employment office.

What do you think about the civil service examining methods of

procuring people compared to the term of merit? Which do you

think might come nearly to getting the truly merited person, a competitive examination or merely some other kind of a merit appointment?

Mr. MACY. I think in this instance what the Department is calling:

for is evidence of the individual's qualifications.

Mr. BECKWORTH. This is a true competitive examination, Mr.

Chairman, as I understand it.

Mr. MACY. That is correct. This is a Commission examination:

Mr. BECKWORTH. Then it is a pretty meritorious type of procedure,

wouldn't you say?

Mr. MACY. I would, indeed.

Mr. BECKWORTH. Would you know of any procedure any more

meritorious than that?

Mr. MACY. No; this is the device we use to measure relative ability

and to point up those who are best qualified.

Mr. BECKWORTH. Now of the 6,618 you mentioned, how many do

you feel took the type of examination I have described here or the

State Department has described?

Mr. MACY. Well, certainly, all of the typists took the examination.

That would be 1,768.

Mr. BECKWORTH. HOW many?

Mr. MACY. All of the typists did.

Mr. BECKWORTH. That would be how many?

Mr. MACY. 1,768 last year. All of the clerks did and that would be

949. All of the stenographers did and that would be 322. All of the

student trainees did and that is 266.

I would say that approximately 4,000 of the 6,600 took civil service

competitive tests in connection with their selection for summer

employment.

Mr. BECKWORTH. I think that is commendable because in that

situation, merit no doubt did prevail in the main and I would see

nothing wrong in extending that to all of them. What do you think

about that?

Mr. MACY. The problem on the rest of them, particularly the

college students who come in as interns or come in as aids in a number

of summer jobs, the problem is the cost of operating nationwide

machinery for this.

Mr. BECKWORTH. Mr. Chairman, that brings up the point that I

want to get a little more information about. To what extent do you

make an outstanding effort to make it known to the students throughout the country what they must do and by when?

As I have experienced it in the years gone by, so often students

that need it imply they did not know about a cutoff date. Now for
APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT it

a person, we will say, in Montana that didn't know about it, he is at a

great disadvantage compared to one who knew about it by virtue of

the fact he might be close by here. He doesn't get to read, for

example, Mr. Kluttz' column about the availability of jobs—which

I surely do like, Mr. Kluttz. The only trouble is, the column does not

get to some places where notification is needed.

Mr. MACY. It happens Mr. Kluttz does have a very good and

readable newsletter that goes out. I frequently find his newsletter

is better accepted than some of our official communications that are

distributed.

Mr. BECKWORTH. I think that is a very important aspect of this

whole thing, getting this information out.

Mr. MACY. I agree, Mr. Chairman. Really, this is one of our continuing tasks in the entire civil service system—"How do we get the

word to the people we want to afford an opportunity to compete?"

We are working on this in connection with our recruiting for permanent

employment.

Mr. BECKWORTH. I know • I have been reading about the work you

have been doing here recent along that line which to me shows that

if you mean what you say when you want the best person for a job,

and this wonderful merit system we have, you shouldn't be interested

in confining the notification—I am not talking about summer employment alone—to just a given region, for example, if you want the

best person.

Mr. MACY. Absolutely.

Mr. BECKWORTH. The information should be broadcast so you get

that best person.

Mr. MACY. We don't want to overlook any segment or section of

the country. We want all of the American citizens to have an

opportunity for competition, for entry on merit into the Federal

service.

Now on the matter of summer employment, we have tried to

improve the communications and publications that we put out on

this subject. We put out a pamphlet every year and try to get it

into every college. We indicate in that pamphlet the time schedule

for submitting applications. We indicate the agencies that are the

primary employers of students during the summer.

I am never going to be satisfied, Mr. Chairman, that what we are

doing is enough, because there are always too many people in the

United States that use that time-honored cliche, somebody "just

didn't get the word."

We want more people to get the word and we feel this is one of our

basic responsibilities. We are working on this all the time.

We now have, across the country, some 50 civil service representatives located in the major centers of Federal employment. One of the

functions, one of several functions of those representatives is to work

with the colleges and the universities in that area to make certain that

word about the opportunities for Federal employment are circulated

as fully as possible among those who might have an interest in Federal

employment.

We feel that since the initial days of your high interest in this that

we have been able to reach many more people than we have before.

As I said earlier, we are never going to be satisfied we are reaching

enough, but we are going to keep trying.
12 APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT

Mr. BECKWORTH. Mr. Matsunaga, any questions?

Mr. MATSUNAGA. Thank you, Mr. Chairman.

What is the procedure as applied to applications from the university

students for jobs here in the Capital?

Mr. MACY. Well, the procedure, which is laid out in this we hope lucid and understandable sheet, calls for the individual who is inter- ested to file an application with the individual department and agency where they have an interest.

Our feeling has been that the volume of interest, the number of applications, the variety of jobs is such that if we were to try to do it centrally in the Civil Service Commission it would be an extra step,

extra handling, and therefore a delay.

So what we urge is that the interested person write to the director

of personnel of the specific agency and we list the agencies in the Washington area on the back of the sheet. They file their application.

The agency then communicates with them as to what the specific opportunities are in that particular department or agency and what examinations the individual must take in order to be considered, and it then is a matter of direct discussion between the applicant and the

agency.

Mr. MATSUNAGA. What distribution is made of this circular?

Mr. MACY. We try to get this circular into all of the counseling

and placement offices in the colleges and universities. We distribute this to the high schools. We made quite a point of distributing this

to congressional offices because we know of the volume of mail that the Members of Congress receive.

If it has not been distributed in adequate supply to your office or

any other Member's office we would be happy to supply additional

copies of this, but it is widely circulated and it is in such a form it can be included in a mailing that goes out. We update it each year so that it includes current information about the upcoming summer.

Mr. MATSUNAGA. Does it have a form number to it?

Mr. MACY. Well, it is one of the usual codes down here at the bottom

but entitled, "Summer Employment in the Washington, D.C., Metro- politan Area, 1965." In fact, Mr. Chairman, you may wish to incorporate this in the record of this hearing as an indication of the kind of information that is available.

Mr. BECKWORTH. Yes; all pertinent information will be included

and incorporated without objection.

(The document referred to follows:)
APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT 13

UNITED STATES CIVIL SERVICE COMMISSION

WASHINGTON, D. C.

SUMMER EMPLOYMENT IN THE WASHINGTON, D. C., METROPOLITAN AREA

1965

JOB

OPPORTUNITIES

KINDS OF

JOSS

SALARIES

WHO

MAY

APPLY

HOW

TO

APPLY

REQUIREMENTS

AND

CONSIDERATION

FOR

APPOINTMENT

Most summer job opportunities result from the need for temporary replacements for vacationing employees and temporary project work. Many of these

needs are not known in advance and, therefore, detailed information cannot

be furnished. Inquiries concerning employment opportunities should be

addressed to the agencies.

Agencies may need to employ stenographers, typists, and other clerical help;

student assistants to: work at the subtechnical or subprofessional level in

line with the studies in which the sitidents are engaged;. laborers, mechanics'

helpers, etc.

Salaries depend upon the nature and requirements of the job being filled and

the experience and training of the person being employed.

United States citizens may apply who are high school graduates and who will

be sixteen years of age at the time of appointment, and all other citizens

who have reached their eighteenth birthday.

Applicants should obtain from Commission offices or post office examination

points Standard Form 57, "Application for Federal Employment". Item 1 on

the Form 57 should specify "Summer Employment".

The Civil Service Commission does not maintain a list of job vacancies.

Applications should be sent directly to the Federal agency in which employment is desired. After completing the Form 57, it should be addressed as

follows:

Director of Personnel

Name of Agency

Washington, D. C.

On the reverse of this leaflet is a list of agencies in the Washington

area to •which these instructions apply. Since some agencies may establish

a cut-off date for receipt of applications, applicants should file at the

earliest opportunity. If applications are not being accepted in a ,particular agency, the application may be returned with appropriate explanation.

Agencies are required by the Civil Service Commission to apply appropriate

experience and training requirements in the filling of summer positions.

They are guided by standards and instructions issued by the Commission. For

some positions, passing a written test is required. Agencies will schedule

applicants for the necessary written tests.

Regulations require that appointments be made without regard to race, religion, sex, or political or personal favoritism. The son or daughter of a_

Federal employee, including those in the uniformed services, may not be appointed in the same department or agency in which the mother or father

works, unless the son or daughter is eligible for placement assistance

under the Commission's Separated Career Employee Program.
14 APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT

Department

Department

--/Department

Department

Department

Department

Department

Welfare

Department

Department

Department

LIST OF AGENCIES IN THE WASHINGTON AREA

of Agriculture

of Commerce

of Defense

of the Air Force

of the Army

of the Navy

of Health, Education, and

of the Interior

of Justice

of Labor

Post Office Department

'Department of State

Department of the Treasury

Agency for International Development

Bureau of the Budget

Civil Aeronautics Board

Civil Service Commission

District of Columbia Government

Export-Import Bank of Washington

Federal Aviation Agency

Federal Communications Commission

Federal Deposit Insurance Corporation

Federal HomeLoan Bank Board

Federal Mediation and Conciliation

Service

Federal Power Commission

Federal Trade Commission

General Accounting Office

'General ServiCes Administration

Government Printing Office

Housing and Home Finance Agency

Interstate Commerce Commission

National Aeronautics and Space

Administration

National Labor Relations Board

,Office of Emergency Planning

Peace Corps

Securities and Exchange Commission

Small Business Administration

Smithsonian Institution

Tariff Commission

United States Information Agency

Veterans Administration

Office of Economic Opportunity

Mr. MATSUNAGA. What is the percentage of applications honored

in the present number of applications received? Do you have any

idea?

Mr. MACY. Here in Washingtcn last year there were 6,618 appointments and that would be the number of individuals of all levels who

received summer appointments. These would not be the college

student group exclusively. I would say the college group would

number about 5,000. This would be my estimate.

As to the number of applications, I just don't have the figure.

Would you hazard a guess, Mr. Irons?

Mr. IRONS. It would be at least 10 to 1.

Mr. MACY. I think it is modest. It is probably even higher.

Mr. BECKWORTH. If you will pardon me, could you make a compilation of that without too much trouble, so we have it for the record?

I think it is a very pertinent figure.

Mr. IRONS. The agencies, I am sure, have not had that up in their

records last year or retained it in their records or retained their applications.

Mr. BECKWORTH. Would you mind asking some of them?

Mr. IRoNs. I would be glad to.

Mr. BECKWORTH. I would appreciate it, to see what they say, and

if you can get it in the record we would be happy.

Mr. MACY. May we do it for the current year? This may be easier

to obtain.

Mr. IRoNs. They may also have some information about last year.

Mr. BECKWORTH. If not last year, this year.

Mr. MACY. We will give you a sample anyway.

Mr. IRONS. We had 32 applications in the Civil Service Commission and appointed nobody. I happen to know my own agency.

Mr. MATSUNAGA. This will give some indication as to how much

information is getting out because the number of applications would

be some indication of how much information applicants are receiving.

Mr. MACY. It would be a good measure.

Mr. MATSUNAGA. Now I have one other question. Have you any

idea as to the performance of these summer applicants—that is, upon
APPORTIONMENT FOR TEMPORARY SUMMER EMPLOYMENT 15

being given jobs—and I am asking this question with reference to

the short period they will be employed. Is this a service handicap

when they serve only a short time or has the performance been

creditable?

Mr. MACY. The reports I have heard have been very favorable

about the performance of the employees who are hired for the summer.

Many of them are what they call in TV "summer replacements."

They come in and perform during a vacation period for those who are

off the job and make a substantial contribution whether performing

typing or clerical work.

Many times the agency would like to be able to hold onto them for

permanent employment. Most of them go back to school. Among

the college students, some of the performances have been really outstanding.

The chairman mentioned this State Department intern program.

Secretary Rusk was telling me after last year's program that some of

the analytical papers done by these students were really first rate and

could be used as supplementary material of decided value in the

various offices of the State Department.

Mr. BECKWORTH. Anything further, Mr. Matsunaga?

Mr. MATSUNAGA. No, thank you.

Mr. BECKWORTH. That is all. Thank you, Mr. Chairman. We

appreciate your interest in this and your efforts to upgrade this situation constantly as you undertake to upgrade other divisions of our

Federal employment situation. I think you are doing a fine job.

Mr. MACY. Thank you very much, sir. I appreciate it.

(Whereupon, at 10:40 a.m. the hearing was adjourned.)

0
JUL