. p04)10

Em 1/6 EXTENDING APPORTIONMENT REQUIREMENT

TO GOVERNMEN1 TEMPORARY SUMMER EMPLOYMENT

Storage

HEARING

BEFORE THE

nj COMMITTEE ON

OFFICE AND CIVIL SERVICE

Flo ISE OF REPRESENTATIVES

rq EIGHTY-SEVENTH CONGRESS

FIRST SESSION

ON

H.R. 5698

A BILL TO EXTEND THE APPORTIONMENT REQUIREMENT

IN THE CIVIL SERVICE ACT OF JANUARY 16, 1883, TO

TEMPORARY SUMMER EMPLOYMENT, AND FOR OTHER

PURPOSES

AUGUST 9, 1961

Printed for the use of the

Committee on Post Office and Civil Service

N I VER4,//).

</to,

C.3

OCT 9 196L

141'4.47-TAN,

U.S. GOVERNMENT PRINTING OFFICE

741)1); WASHINGTON : 1961
COMMITTEE ON POST OFFICE AND CIVIL SERVICE

TOM MURRAY,

JAMES II. MORRISON, Louisiana

JAMES C. DAVIS, Georgia

JOHN LESINSK1, Michigan

KATHRYN E. GRANAHAN, Pennsylvania

THADDEUS J. DULSKI, New York

DAVID N. HENDERSON, North Carolina

ARNOLD OLSEN, Montana

JOSEPH P. ADDABBO, New York

RICHARD H. ICHORD, Missouii

G. ELLIOTT HAGAN, Georgia

CATHERINE D. NORRELL, Arkansas

MORRIS K. UDALL, Arizona

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

JOHN H. ROUSSELOT, California

EDWARD J. DERWINSKI, illinois

SUBCOMMITTEE APPOINTED To CONSIDER H.R. 5698

KATHRYN E. GRANAHAN, Pennsylvania, Chairman

THADDETJS Y. DULSKI, New York JOEL T. BROYHILL, Virginia

JOSEPH P. ADDABBO, New York JOHN H. ROUSSELOT, California
CONTENTS

Statement of—

Beckworth, Hon. Lindley, a Representative in Congress from the Page

State of Texas 2

Broyhill, Hon. Joel T., a member of the subcommittee_ 26

Stahl, 0. Glenn, Director, Bureau of Programs and Standards, U.S.

Civil Service Commission 20

in

EXTENDING APPORTIONMENT REQUIREMENT TO

TEMPORARY SUMMER EMPLOYMENT

WEDNESDAY, AUGUST 9, 1961

HOUSE OF REPRESENTATIVES,

SUBCOMMITTEE OF THE COMMITTEE ON

POST OFFICE AND CIVIL SERVICE,

Washington, D.C.

The subcommittee met, pursuant to notice, at 11 a.m., in room

215, House Office Building, Hon. Kathryn E. Granahan (chairman

of the subcommittee) presiding.

Mrs. GRANAHAN. The committee will come to order.

This subcommittee was appointed to consider H.R. 5698, 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 members of the subcommittee are Mr. Dulski, Mr.

Addabbo, Mr. Broyhill, and Mr. Rousselot, and I was designated

chairman.

H.R. 5698 was introduced by our colleague and valued former

member of this committee, Representative Lindley Beckworth, of

Texas. The purpose, as indicated in the title, is to require that

temporary summertime appointments to Government positions in the

Washington area be subject to the apportionment requirements of

the Civil Service Act of 1883, just as such apportionment requirements now are applicable to permanent appointments in the Washington area.

This extension of the apportionment policy to summertime employment would be accomplished, under the language of the bill, by

inserting appropriate language in the pertinent section of the Civil

Service Act, as contained in section 633 of title 5 of the United States

Code.

(H.R. 5698 follows:)

[H.R. 5698, 87th 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 than 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".

Mrs. GRANAHAN. Our first witness is Representative Beckworth,

the author of H.R. 5698.

1
2 EXTENDING APPORTIONMENT REQUIREMENT

Mr. Beckworth, it is a pleasure to have you before this subcommittee

of the committee on which you rendered such valuable service, and I

welcome you.

STATEMENT OF HON. LINDLEY BECKWORTH, REPRESENTATIVE

IN THE CONGRESS OF THE UNITED STATES FROM THE THIRD

DISTRICT OF THE STATE OF TEXAS

Mr. BECKWORTH. Thank you, Chairman Granahan. I appreciate

your very cordial welcome. It goes without saying that I enjoyed

very much my service on this committee beginning first in 1939, and

then I was privileged to return here about 4 years ago and served some

2 more years on this splendid committee. I miss it.

I want to thank you for making possible this hearing, Chairman

Granahan, and Mr. Johnson for helping me to bring it about, and

certainly the distinguished chairman of the committee who cooperated with me to help me get a hearing. Never have I called on

the members of this committee or the personnel for cooperation

without receiving wonderful cooperation. You are indeed a splendid

committee and you have a very wonderful staff.

This is a very simple bill concerning which I appear. There is

nothing complex about it. It simply provides that in the filling of

temporary jobs in the summertime, for example, by students, that the

apportionment which now prevails with reference to Federal employees in connection with full-time jobs will prevail.

I have in mind two or three fundamental reasons why I think this

bill should pass.

A great deal of stress is placed today on younger people knowing

something about our Government, our democracy, and we all know

this is a good thing. It will be more necessary in the future, perhaps,

than it has been in the past for our people to be able to judge accurately the functioning of the Government.

It has been said that a person's judgment is no better than his

information. If a youngster has little information about his Government, his ability to render a sound judgment about his Government is

limited. The more information he has, the better judgment he will

have, in my opinion.

Furthermore, it's a very wonderful thing for a child or an adult to

be privileged to be here in Washington, even for a short time. It has

a value that one can't get in other sections of our Nation; we have only

one National Capital. I know when I was a kid living out in the

country I never did even dream of having the privilege of being in

Washington. It was too remote. Washington still is remote to

some of our citizens. And it has been a fulfillment, a very gratifying

one for me, just to be here and see these wonderful historic sites that

are available for people to see, and to observe the operations of our

Government.

I am sure every Member of Congress has, from time to time, a request

to try to help get a person a job here in Washington in the summertime. Perhaps the efforts that each of us has made have had varying

degrees of success; but I would believe that the average Member who

undertakes to help one of his constituents get summer employment has

a rather tough time doing it. The jobs seem always to be gone. This,
EXTENDING APPORTIONMENT REQUIREMENT

in my opinion, is all too true whether a person works through his own

efforts or through the efforts of a Member of Congress.

And, pursuing this, I began to check a few years ago into where the

jobs seem to go. I contacted over 20 agencies of the Government;

incidentally, the information was difficult to obtain. It took a good

deal of perseverance; it wasn't easily obtainable information.

I obtained the names of people and their addresses in over 20

agencies and then began a study of the information. The Library of

Congress gave me help too. I want to pay my respects to those in the

Library who helped me so very much. They helped me analyze where

the people came from who worked here in the District of Columbia in

the summertime, based on the facts that I submitted to the Library.

Incidentally, this is only a suggestion but perhaps you could help

us to bring these figures up to date. The figures I have relate mainly

to 1959. I would like to see them brought up to date. You need this

information, I feel.

The picture may have changed more to the liking of what I feel is a

fair situation.

I have a table which, I repeat, the Library of Congress helped me

prepare. I would like to ask to place this table in the record along

with other information that I have obtained in connection with the

employment of the people in the Government.

(The information follows:)
Summary of temporary employment in selected Government agencies, summer 1959 

4 EXTENDING APPORTIONMENT REQUIREMENT

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General Accounting Office, letter of June 1 1959. The figures given represent applicants who had been chosen or tentatively chosen to 1111 summer jobs in 1959.

2 The Library of Congress, letter of Mar. 1, 1961. The figures given represent temporary

employees hired for varying lengths of time, up to a year, from May 15 to Aug. 15, 1959.

The Library has no special program of summer employment.

3 Department of Agriculture, letter of June 16, 1959. The figures stated represent

temporary jobs in the Washington, D.C., metropolitan area which were to be filled by

students during the summer, 1959.

Department of Commerce, letter of June 18, 1959. The figures given represent student

assistants and student trainees hired for the summer, 1959.

Department of Defense, letter of June 10, 1959. The figures given represent students

selected for summer employment in 1959 by the Office of the Secretary of Defense.

Department of the Air Force, letter of June 23, 1959. The figures given represent

student trainees hired by the Department of the Air Force Headquarters for the summer,

1959.

7 Department of the Army, letter of June 15, 1959. The figures stated here represent

students who had been selected or tentatively selected for temporary appointments for

the summer, 1959, with the Department of the Army.

8 Department of the Navy, letter of May 19, 1959. The figures given represent students

majoring in engineering or the physical sciences who were prospective employees of the

Navy Department for the summer, 1959.

Department of Health, Education, and Welfare, letter of Aug. 19, 1959. The figures

given represent students employed by the Department of Health, Education, and Welfare for the summer, 1959.

10 Department of the Interior, letter of July 21, 1959. The figures stated represent students who were appointed to temporary jobs in the Department of the Interior in the

Washington, D.C., metropolitan area for the summer, 1959.

11 Department of Labor, letter of June 1, 1959. The figures stated include temporary

student assistants who were selected for positions with the Department of Labor for

summer, 1959.

13 Department of State, letter of June 4, 1959. The figures given represent temporary

employees and students whom the Department of State had hired or planned to hire for

typing, stenographic, and student assistant positions for summer, 1959.

13 Department of the Treasury, letter of June 23, 1959. The figures given include all

summer appointments of students, regardless of the temporary or nontemporary nature

of the jobs, themselves, for 1959.

14 Atomic Energy Commission, letter of June 15, 1959. The figures given include all

temporary summer appointments to the entire Atomic Energy Commission for summer,

1959.

15 Civil Service Commission, letter of June 9, 1959. The figures given indicate students

occupying temporary positions with the Civil Service Commission for summer, 1959. 10 Federal Communications Commission, letter of June 5, 1959. The figures given

represent students temporarily employed by the Federal Communications Commission

for summer, 1959.

17 Federal Power Commission, letter of June 1, 1959. The figures given include individuals who were employed on a temporary basis as student assistants for summer,

1959.

18 Federal Trade Commission, letter of May 28, 1959. The figures given indicate students holding temporary summer jobs as of May 28, 1959.

18 Interstate Commerce Commission, letter of June 1, 1959. The figures listed include

tentative selections of individuals made to fill temporary typing and stenographic positions with the Interstate Commerce Commission for summer, 1959.

20 National Aeronautics and Space Administration, letter of June 10, 1959. The figures

given include summer appointments for 1959 with the National Aeronautics and Space

Administration.

21 National Science Foundation, letter of June 3, 1959. The figures given include

temporary stenographic, typing, and student trainee positions that were to be filled

primarily by students during the summer, 1959.

22 Securities and Exchange Commission, letter of June 3, 1959. The figures given include students who were selected for participation in the student assistant program of the

Securities and Exchange Commission for summer, 1959.

23 veterans' Administration, letter of June 17, 1959. The figures given include temporary summer jobs filled by students in the Central Office Headquarters and the Medical

Division of the Veterans Benefits Office for summer, 1959.

Compiled by Sandra D. Worthen, History and Government Division, Legislative

Reference Service, Library of Congress, Mar. 17, 1961.

DNICINaIXa 

C..71
Rank of States according to population: 1960 and 1950-U.S. census

1960 1950 1960 1950

Rank State Population Rank State Popula- tion Rank State Popula- tion Rank State Popula- tion

1 New York 16, 782, 304 1 New York 14, 830,192 27 Oklahoma 2, 328, 284 27 South Carolina 2, 117, 027

2 California 15, 717, 204 2 California 10, 586, 223 28 Kansas 2, 178, 611 28 Connecticut 2,007, 280

3 Pennsylvania 11,319, 366 3 Pennsylvania 10, 498,012 28 Mississippi 2, 178, 141 29 West Virginia 2,005, 552

4 Illinois 10,081, 158 4 Illinois 8. 712, 176 30 West Virginia 1, 860, 421 30 Arkansas 1,909, 511

5 Ohio 9, 706, 397 5 Ohio 7, 946, 627 31 Arkansas 1, 786, 272 31 Kansas 1, 905, 299

6 Texas 9,579, 677 6 Texas 7, 711, 194 32 Oregon 1, 768. 687 32 Oregon 1, 521, 341

7 Michigan 7,823, 194 7 Michigan 6,371, 766 33 Colorado 1, 753, 947 33 Nebraska 1, 325, 510

8 New Jersey 6, 066, 782 8 New Jersey 4, 835, 329 34 Nebraska 1, 411,330 34 Colorado 1, 325, 089

9 Massachusetts 5, 148, 578 9 Massachusetts 4, 690, 514 35 Arizona 1, 302, 161 35 Maine 913, 774 10 Florida 4,951. 560 10 North Carolina 4, 061, 929 36 Maine 969, 265 36 District of Columbia_ _ 802, 178 11 Indiana 4. 662,498 11 Missouri 3,954, 653 37 New Mexico 951,023 37 Rhode Island 791, 896 12 North Carolina 4,556, 155 12 Indiana 3, 934, 224 38 Utah 890, 627 38 Arizona 749, 587 13 Missouri 4, 319, 813 13 Georgia 3, 444, 578 39 Rhode Island 859, 488 39 Utah 688, 862 14 Virginia 3, 966, 949 14 Wisconsin 3, 434, 575 40 District of Columbia_ 763,956 40 New Mexico 681,187 15 Wisconsin 3, 951, 777 15 Virginia 3,318, 680 41 South Dakota _ 680, 514 41 South Dakota 652, 740 16 Georgia 3,943, 116 16 Tennessee ' 3, 291, 718 42 Montana 674, 767 42 North Dakota 619, 636 17 Tennessee 3, 567, 089 17 Alabama 3, 061, 743 43 Idaho 667, 191 43 Montana 591,024 18 Minnesota 3, 413, 864 18 Minnesota 2, 982, 483 44 Hawaii 632, 772 44 Idaho 588, 637 19 Alabama 3, 266, 740 19 Kentucky 2, 944,806 45 North Dakota 632,446 45 New Hampshire 533, 242 20 Louisiana 3, 257,022 20 Florida 2, 771, 305 46 New Hampshire 606, 921 46 Hawaii 499, 794 21 Maryland 3, 100, 689 21 Louisiana 2, 683,516 47 Delaware 446. 292 47 Vermont 377, 747 22 Kentucky 3,038, 156 22 Iowa 2, 621, 073 48 Vermont 389, 881 48 Delaware 318,085 23 Washington 2,853, 214 23 Washington 2,378, 963 49 Wyoming 330,066 49 Wyoming 290, 529 24 Iowa 2,757, 537 24 Maryland 2, 343, 001 50 Nevada 283,278 50 Nevada 160,083 25 Connecticut 2, 535, 234 25 Oklahoma 2, 233,351 51 Alaska 226, 167 51 Alaska 128, 643 26 South Carolina 2, 382, 594 26 Mississippi 2, 178, 914

EXTENDING APPORTIONMENT REQUIREMENT 
EXTENDING APPORTIONMENT REQUIREMENT 7

Hon. LINDLEY BECKWORTH,

House of Representatives,

Washington, D.C.

DEAR MR. BECKWORTH: As requested by your letter of May 26, 1959, here

are the names and addresses of student assistants and student trainees employed

for this summer by the Department of Commerce. These students work and

learn under the guidance of scientific, professional, and technical members of our

permanent staff in a variety of fields such as physics, mathematics, engineering,

statistics, economics, meteorology, etc.

At the present time our needs for this year have been satisfied and we are not

recruiting additional students for these summer assignments.

Sincerely yours,

U.S. DEPARTMENT OF COMMERCE,

OFFICE OF THE SECRETARY,

Washington, D.C., June 18, 1959.

CARLTON HAYWARD,

Director of Personnel.

HOUSE OF REPRESENTATIVES,

COMMIT.TEE ON POST OFFICE AND CIVIL SERVICE,

Washington, D.C., May 17, 1961.

HOD. LINDLEY BECKWORTH,

House of Representatives,

Washington, D.C.

DEAR COLLEAGUE: Reference is made to your recent note concerning the

Civil Service Commission's report on H.R. 5698, a bill to extend the, apportionment requirement in the Civil Service Act of January 16, 1883, to temporary

summer employment, which was introduced by you.

At present, every available committee meeting day is being devoted to consideration of a bill to provide increases in postal rates which was recommended

by the Postmaster General. I anticipate that these hearings will not conclude

for some time and other legislation pending before our committee is being held

in abeyance until these hearings and action on this legislation is concluded.

However, when the postal rate bill has been disposed of, I shall be pleased to

review your request for hearings on H.R. 5698 and if action is scheduled, I shall

advise you.

With kind regards, I am,

Sincerely yours,

Hon. LINDLEY BECKWORTH,

House of Representatives.

DEAR MR. BECKWORTH: This refer-s to-your letter of May 17, 1961, forwarded

from the Post Office Department, requesting information about postmaster examinations at post offices the size of those at Dallas, Mineola, and Tyler Tex.

Applicants for postmaster examinations for first-class offices at Postal Field Service.Levels 10 and above, such as Dallas (Postal Field Service Level 17) and Tyler

(Postal Field Service Level 13), are not required to take a written test but are

rated on a scale of 100 on the basis of an evaluation of their business and professional experience and their general fitness for the position. This is referred to as

an "unassembled" examination. The evaluation of the applicants' experience

and fitness is made from statements by the competitor in his application and on

corroborative evidence secured by a representative of the Civil Service Commission through a field investigation. In the investigation the representative interviews all the applicants under consideration, some of the applicants' references,

their employers or supervisors when necessary, and other persons comprising a

representative cross section of the patrons of the post office.

Postmaster examinations for post offices at Postal Field Service Levels 5 through

9, such as Mineola (a first-class post office at Postal Field Service Level 9) consist

of two parts: (1) a written test and (2) an evaluation of experience and fitness.

These are referred to as "assembled" examination. Competitors are rated on a

scale of 100 on the written test and must attain for eligibility a rating of at least

Tom MURRAY, Chairman.

U.S. CIVIL SERVICE COMMISSION,

Washington, D.C., June 19, 1961.
EXTENDING APPORTIONMENT REQUIREMENT

70, excluding credit for veteran preference. Those who fail to pass the written

test are given no further consideration.

Applicants who pass the written test are then rated on a scale of 100 on ex- perience and fitness and must attain a rating of at least 70 in this part of the ex- amination, excluding credit for veteran preference. The evaluation of an applicant's experience background is made from statements by the competitor in his application and on corroborative evidence secured by the Civil Service Commis- sion through a correspondence inquiry.

Competitors who are rated ineligible on experience and fitness are not assigned final numerical ratings, but are rated ineligible in the examination as a whole. The scores of each competitor who is eligible on both the written test and on ex- perience and fitness are combined. Any additional points for veteran preference

are then added to the competitor's combined (average) rating.

In conducting a correspondence inquiry in examinations for postmaster posi- tions, questionnaires regarding the applicants' qualifications are sent to some of the applicants' references, to their employers or supervisors when necessary, and

to other persons, comprising a representative cross section of the patrons of the

post office.

Your enclosures are returned.

Sincerely yours,

Hon. LINDLEY BECKWORTH,

House of Representatives.

DEAR MR. BECKWORTH: Chairman Jones asked me to reply to your recent letter concerning your interest in unassembled examinations.

During fiscal year 1960 the Commission (central office, regional offices and

boards of U.S. civil service examiners under their jurisdiction) processed 476,016 applications. Of this number 393,939 were for unassembled examinations and

82,077 for assembled examinations. An unassembled examination is one in which

all or a part of the examination requirements are expressed in terms of minimum

amounts of work experience or training pertinent to the class of position for which

the examination is held. Some unassembled examinations include both experience

and training requirements, plus a written examination as well.

New hires authorized by the Commission in fiscal year 1960 totaled 238,926.

However, we do not have available statistics showing the breakdown of new hires by type of examination through which appointed. We hope that this information

will serve your purpose.

Your enclosures are returned.

Sincerely yours,

DONALD R. HARVEY,

Director, Bureau of Recruiting and Examining.

Hon. J. VAUGHAN GARY,

House of Representatives,

Washington, D.C.

DEAR VAUGHAN: I have your letter of May 23 in which you call my attention

to the fact that of the 476,016 applications processed during fiscal year 1960 by the Civil Service Commission and boards of civil service examiners, 393,939 were for unassembled examinations and 82,077 for assembled examinations.

I shall request the Subcommittee on Civil Service of which Congressman James

II. Morrison is chairman to study the situation which you describe to determine

the views of the Civil Service Commission and to suggest whatever improvements

are necessary following a complete investigation.

It should be noted that the Civil Service Commission has advised me that both

assembled and unassembled examinations are part of the competitive civil service

process. Assembled examinations are written examinations while unassembled

examinations consist of filing an application for a particular position which

includes the background, education and experience of the applicant and ratings

U.S. CIVIL SERVICE COMMISSION,

Washington, D.C.

DONALD R. HARVEY, Chief Examining Division.

HOUSE OF REPRESENTATIVES,

COMMITTEE ON POST OFFICE AND CIVIL SERVICE,

Washington, D.C., May 31, 1961.
EXTENDING APPORTIONMENT REQUIREMENT 9

are assigned based upon an evaluation of this information. In both cases civil

service registers are established and selections are made from the three highest

eligibles.

I shall request the Subcommittee on Civil Service to examine this situation

thoroughly and determine among other things, the relationship between the total

number of appointments made in the Federal service and the number of appointments made from Civil Service registers.

Thank you for bringing this matter to my attention.

With kindest regards, I am,

Sincerely yours,

Hon. LINDLEY BECKWORTH,

House of Representatives,

Washington, D.C.

Tom MURRAY, Chairman.

U.S. CIVIL SERVICE COMMISSION,

Washington, D.C., May 18, 1961.

DEAR MR. BECKWORTH: Your communication of May 9, 1961, is returned herewith.

During the calendar year 1960 a total of 465,217 accessions to Federal positions in the United States were reported by Federal agencies. Of these accessions,

43,102 were persons reappointed after having left the service at some earlier date, 21,968 were transfers from one agency to another without a break in service, and

23,596 were restored or returned to duty after suspension, reduction in force, furlough, or extended leave without pay. The remaining 376,551 persons were hired without regard to previous Federal service. How many of these may have had some previous Federal employment we do not know but their employment in 1960 was not based on prior service.

Sincerely yours,

DAVID F. WILLIAMS,

Director, Bureau of Management Services.

Hon. LINDLEY BECKWORTH,

House of Representatives,

Washington, D.C.

DEAR MR. BECKWORTH: This refers to your communication dated January 31,

1961, and our letter dated January 27, 1961, which is returned herewith.

During the fiscal year 1960 a total of 191,674 persons were appointed to Federal positions excepted from competitive civil service examination and appointment procedures. Of this total, 50,713 were to positions outside the United States

and 140,961 were to positions in the 50 States and the District of Columbia.

We have compiled no information on the age of employees at the time of appointment.

Sincerely yours,

Hon. LINDLEY BECKWORTH,

House of Representatives.

DEAR MR. BECKWORTH: This is in further reply to your communication received on May 18, 1961, requesting the number of examinations given annually

for postmaster and other positions for which investigations are made. A copy of your letter was also received from the Post Office Department and our Dallas regional office.

When the qualifications of competitors in postmaster examinations for post offices in postal field service levels 13 and above are the subject of an investigation,

the investigation is made by a representative of the Commission in the community

and is known as a "field" investigation. For postmaster examinations in post

U.S. CIVIL SERVICE COMMISSION,

Washington, D.C., February 6, 1961.

DAVID F. WILLIAMS,

Director, Bureau of Management Services.

CIVIL SERVICE COMMISSION,

BUREAU OF RECRUITING AND EXAMINING,

Washington, D.C., August 10, 1961.
10 EXTENDING APPORTIONMENT REQUIREMENT

offices at postal field service levels 12 and below, the investigation is made by

mailing questionnaires to members of the community relative to the competitors'

qualifications. This type of investigation is known as a "correspondence or

voucher inquiry." The enclosed form E-9 explains in detail the basis for rating

postmaster examinations.

The number of examinations for postmaster and rural carriers in the State of

Texas each year varies. The number of examinations announced depends upon

the rate at which vacancies in these positions occur. In 1960, we announced 60

examinations for the position of postmaster in post offices in Texas. Of these,

11 were for offices of the first class. The number of examinations for such post

offices for rural carrier positions in 1960 was 20.

Examinations for other positions in the Federal service, which are handled

under procedures similar to postmaster examinations, include examinations such

as those for Federal administrative and management positions, personnel positions, employee development officer, accountant and auditor, and guard.

Sincerely yours,

DONALD R. HARVEY, Director.

CIVIL SERVICE COMMISSION,

EIGHTH U.S. CIVIL SERVICE REGION,

OFFICE OF THE DIRECTOR,

Dallas, Tex., June 7, 1961.

Hon. LINDLEY BECKWORTH,

House of Representatives,

Washington, D.C.

DEAR MR. BECKWORTH: Your letter of May 10, 1961, to the regional director

of the post office regional office in Dallas has been referred to this Office for the

purpose of furnishing you information as to the number of civil service examinations announced annually in Texas.

During fiscal year 1960, approximately 490 examinations were announced for

various Federal positions by this regional office and the boards of civil service

examiners in Texas. These did not include examinations for postmasterships or

rural mail carrier which, as you know, are announced by our central office. The

attached file indicates our central office has already been contacted for information

about postmaster examinations.

In case you do not have it, a copy of an informational pamphlet about postmaster positions, including information about the types of examinations given for

the various classes and grade levels of postmaster positions, is enclosed.

Sincerely yours,

SAMUEL M. RAY, Acting Regional Director.

DEPARTMENT OF LABOR,

May 22, 1961.

Congressman LINDLEY BECKWORTH,

House of Representatives, Washington, D.C.

DEAR CONGRESSMAN BECKWORTH: This is in response to your letter of April 28,

1961, to the Secretary of Labor requesting assistance in obtaining statistics relating to the employment of older persons in Government agencies.

We have asked the Civil Service Commission, as the central personnel agency of

the Federal Government, to look into this matter. Copies of pertinent correspondence to Mr. John Macy, Chairman of the Civil Service Commission and

to Congressman John Fogarty are enclosed.

Upon receipt of information from the Commission, we shall notify you and

Congressman Fogarty.

Sincerely yours,

W. WILLARD WIRTZ,

Under Secretary of Labor.
EXTENDING APPORTIONMENT REQUIREMENT

Mr. JOHN MACY,

Chairman, U.S. Civil Service Commission,

Washington, D.C.

11

DEPARTMENT OF LABOR,

April 9, 1961.

DEAR MR. MACY: We have received a request from Congressman John Fogarty

to contact the various agencies of the Government to determine the extent to

which they are following a policy of nondiscrimination in employment with respect

to age.

It is my understanding that this matter has been discussed at various times by

staff members of the Commission with the personnel officers of a number of

Government agencies. Mr. Lindley Beckworth, a Congressman from Texas,

whom Mr. Fogarty mentions in his letter, has made similar inquiries repeatedly,

not only here, but in other Government agencies. While all of the Federal

agencies contacted recognized the value of statistical information of the kind

requested, most agencies did not maintain these statistics and indicated that it

would involve considerable staff time to obtain this information. In most

instances they were unable to comply with this request because of the lack of staff.

In exploring the possible ways of getting the information in which Mr. Fogarty

and Mr. Beckworth are interested, we learned that the Commission, in consultation with Federal personnel officials in the various Departments, recognize the

need for -systematically accumulating data on employment practices, including

that relating to age, which would be useful for management planning and control

purposes. It is my understanding that this need has been expressed in your

current request for appropriations on which hearings have already been held.

I want to assure you that this Department, because of its interest generally in

promoting the welfare of workers and as an employer itself, wholly subscribes to

the adoption of any controls which will insure that the Federal Government's

policy of nondiscrimination, for whatever reason, is being carried out in practice.

At the same time I should like to ask what the prospects are for obtaining information of the kind which Mr. Fogarty requested.

Sincerely yours,

Mr. ANTHONY FANTACI

Director, Branch for Older Workers,

U.S. Department of Labor, Washington, D.C.

DEAR MR. FANTACI: Please note the enclosure.

It seems to me the officials of the division of the Labor Department which is

trying to help the aged in their efforts to obtain work should be interested in

getting in touch with the Defense Department and ascertaining from the Defense

Department the extent to which this Department follows its policy of hiring older

people. I request you to do this. Mr. Beckworth and I would like to get the

actual figures.

With kindest regards.

Sincerely,

JOHN E. FOGARTY, Member of Congress.

P.S.—It seems to me also you should get in touch with the other departments of

our Government including the Civil Service Commission and ask for this information. We want the actual figures for each department.

W. WILLARD WIRTZ,

Under Secretary of Labor.

Hon. LINDLEY BECKWORTH,

House of Representatives.

DEAR MR. BECKWORTH: Mr. Charles Johnson, staff director, House Committee

on Post Office and Civil Service, has forwarded to me for reply your letter of

August 10, 1961, regarding temporary summer jobs. My response in this letter

also applies to the copy of your same inquiry sent directly to our chairman's office.

HOUSE OF REPRESENTATIVES,

Washington, D.C., April 28, 1961.

CIVIL SERVICE COMMISSION,

Washington, D.C., August 29, 1961.
12 EXTENDING APPORTIONMENT REQUIREMENT

In an attempt to collect this information, we have checked with the departments who employ most of the temporary summer people. Each of these departments informs us that it would be necessary to check with each of their

numerous field installations to obtain this information, and that this would be a

costly and time-consuming endeavor. Each department has also informed us

that it has received a separate inquiry from you asking for this same information.

In these circumstances, there is no additional Government-wide information

that we are in a position to develop which would be of assistance to you. The

Commission itself does not maintain any records which would give us even a

basis of estimation with response to the situation as it relates to all agencies in

Government.

In our own organization, each regional office handles its own summer employment matters. We have no reason to believe that anyone was so employed in

a regional office who had legal residence in the Metropolitan Washington area

(Maryland, District of Columbia, or Virginia) and feel that it would be most

unusual for a resident of this area to seek summer employment outside of the

area. Federal activities in the field would be unable to determine from their

employment records where summer employees have legal residence, as these

records reflect only the employee's home address for the summer. LA.-11

The material accompanying your letter to Mr. Johnson is returned as requested.

Very truly yours,

0. GLENN STAHL,

Director, Bureau of Programs and Standards.

UNITED STATES CIVIL SERVICE COMMISSION

BUREAU OF RECRUITING AND EXAMINING

Washington 25, D.C.

REQUIREMENTS FOR THE POSITIONS OF

First-, Second-, and Third-Class Postmaster

1. EXPERIENCE AND FITNESS REQUIREMENTS

A. FOR FIRST-CLASS OFFICE, POSTAL FIELD SERVICE LEVELS 10 THROUGH 19

Applicants must show—

(a) That they have been engaged for a period of at least 4 years for offices at

Postal Field Service levels 10 through 12, 5 years for offices at levels 13 through 17,

or 6 years for offices at levels 18 and 19, in occupations which by their nature,

extent, and progressive importance have demonstrated the applicants' ability to

conduct and manage the entire postal business for the community which involves

handling numerous cash transactions, the accounting for large sums of money,

and the receipt and prompt dispatch and delivery of numerous items of mail

matter. Applicants must clearly demonstrate by their experience that they have

the required ability to organize, plan, and schedule the work of a large business

organization in order to operate efficiently within a fixed budget, to assure prompt

and accurate service, to apportion employees to handle the workload, and to

develop plans for effectively adapting the organization to handle the unusual loads

and variations in the nature of the mails caused by seasonal activity of the community, special holiday mail, etc. Since the postmaster must do all this through

employees and their supervisors, applicants must show leadership qualities and

ability to direct and manage relatively large groups of people through intermediate

supervisors; and

(b) That they can meet and deal with the public agreeably and effectively so

that the patrons are satisfied with the service and can negotiate with large mailers,

institutions, and businessmen whose use of the mail presents special problems,

such as weekly, monthly, or seasonal peakloads; and

(c) That they have good reputations as to character, habits, morals, honesty,

reliability, and trustworthiness.

Substitution of Education for Experience

Study successfully completed in a resident school above high school level may

be substituted for part of the required experience for offices at levels 10 through 17

as follows: One academic year of study may be substituted for each 6 months of

experience up to a maximum of 4 years of education for 2 years of experience.
EXTENDING APPORTIONMENT REQUIREMENT 13

No substitution of education may be made for the experience required for offices at

levels 18 and 19.

In evaluating an applicant's qualifications the following factors will be considered:

1. Quality, extent of responsibility, and diversity of experience in relation to

qualifications requirements.

2. Demonstrated ability to successfully manage and direct the affairs of a business comparable in size and complexity to the post office (including ability to

effectively supervise employees).

3. Ability to deal effectively with associates and the general public.

4. General reputation as to character, morals, habits, honesty, reliability, and

trustworthiness.

B. FOR FIRST- AND SECOND-CLASS OFFICES, POSTAL FIELD SERVICE LEVELS 8 AND 9

Applicants must show—

(a) That they have been engaged for a period of at least 3 years in progressively responsible occupations which by their nature, extent, and importance have

demonstrated the applicants' ability to conduct and manage the entire postal

business for the community which involves handling numerous cash transactions,

the accounting for large sums of money, and the receipt and prompt shipment and

delivery of numerous letters and packages; and

(b) That they can meet and deal with customers and employees agreeably and

effectively so that customers are satisfied with the service and employees are

properly supervised; and

(c) That they have good reputations as to character, habits, morals, honesty,

reliability, and trustworthiness.

Substitution of Education for Experience

Study successfully completed in a resident school above high school level may

be substituted for part of the required experience at the rate of 1 academic year

of study for each 9 months of experience up to a maximum of 2 years of education

for 1% years of experience.

C. FOR SECOND- AND THIRD-CLASS OFFICES, POSTAL FIELD SERVICE LEVEL 7

Applicants must show—

(a) That they have been engaged for a period of at least P4 years in responsible

occupations which by their nature, extent, and importance have demonstrated

the applicants' ability to conduct and manage the entire postal business for the

community which involves accounting for receipt and disbursement of funds,

preparation of required reports, and the receipt and prompt shipment and delivery

of numerous letters and packages; and

(b) That they can meet and deal with customers and employees agreeably and

effectively so that customers are satisfied with the service and employees are

properly supervised; and

(c) That they have good reputations as to character, habits, morals, honesty,

reliability, and trustworthiness.

Substitution of Education for Experience

Study successfully completed in a resident school above high school level may

be substituted for part of the required experience on a month-for-month basis

up to a maximum of 1 academic year of study for 9 months of experience.

D. FOR THIRD-CLASS OFFICES, POSTAL FIELD SERVICE LEVELS 5 AND 6

Applicants must show—

(a) That they have been engaged for a period of at least 1 year in occupations

in which they have demonstrated the ability to maintain simple records of accounts (or records of comparable difficulty), or in which they have gained a

knowledge of postal procedures; and

(b) That they can meet and deal with customers and employees agreeably and

effectively so that customers are satisfied with the service and employees are

properly supervised; and

(c) That they have good reputations as to character, habits, morals, honesty,

reliability, and trustworthiness.

749o-61 S

u NI Ytiej

4 /ix

" 6 1
14 EXTENDING APPORTIONMENT REQUIREMENT

Substitution of Education for Experience

• Study successfully completed in a resident school above high school level may

be substituted for part of the required experience on a month-for-month basis

up to a maximum of 6 months of experience.

2. WRITTEN TEST

Applicants for postmaster at all offices, except for first-class offices at PFS

Levels 10 and above, will be required to take a written test which consists of two

parts. One part includes questions on general abilities such as reading comprehension and vocabulary. The second part includes questions on business and

office management. In this part of the test, applicants are given an opportunity

to show ability to perform or supervise tasks when given proper instructions. No experience in managing a post office is necessary to pass this test. All instructions

and information needed to answer the questions are given in the test booklet.

3. BASIS OF RATING

A. In examinations for offices of the first class at PFS Levels 10 and above,

candidates are not required to take a written examination but are rated on a

scale of 100 on the basis of an evaluation of their business or professional experience and their general fitness for the postion of postmaster. The evaluation is

made from statements made by the competitor in his application and on corroborative evidence secured by the Civil Service Commission.

B. In examinations where written test is required, PFS Levels 5 through 9.

Competitors are rated on a scale of 100 on the written test. To be eligible,

competitors must attain a rating of at least 70 in the written test, excluding credit

for veteran preference. ,Those who fail to pass the written test are given no

further consideration.

Competitors who pass the written test are then rated on a scale of 100 on experience and fitness and must attain a rating of at least 70 in this subject,

excluding credit for veteran preference. The evaluation is made from statements

by the competitor in his application and on corroborative evidence secured by the

Civil Service Commission.

Competitors who are rated ineligible on experience and fitness are not assigned

final numerical ratings, but are rated ineligible in the examination.

The scores of each competitor who is eligible on both the written test and on experience and fitness are combined. Any additional points for veteran preference are then added to the competitor's combined (average) rating in order to

obtain the final numerical rating in the examination.

Mr. BECKWORTH. When I analyzed these figures, I found that we

had about 2,321 temporary employees in the summer of 1959 in the

20 some agencies for which I have the figures.

I say again I would like to see these brought up to date. We need

the 1960 and 1961 figures. I think it would be worthwhile information.

When I began to break down by States and the District of Columbia—now bear in mind the figure 2,321—I found that the District

of Columbia had 490 of the 2,321 jobs, Maryland had 628, and Virginia 546 of them.

Now if you put 546 with 628 and 490, you will find that that takes

quite a high percentage of 2,321 jobs. As a matter of fact, about

70 percent of the jobs. This is a high percentage, too high, in my

opinion.

You, Madam Chairman, are from a big State, Pennsylvania. The

population of Pennsylvania in 1960 was 15 million. The population

of Virginia, for example, in 1960, was approximately 4 million. Your

great State of Pennsylvania had 57 employees and, by the way, you

aren't far from Washington, that is, a part of your State; whereas,

Virginia had 546 employees. That's quite a variation.

The population of Maryland in 1960 was about 3 million. I said

you had 15 million. The State of Maryland had, as I have said
EXTENDING APPORTIONMENT REQUIREMENT 15

before, 628 summer employees according to my figures; whereas, your

State had 57. That's a great variation.

Now it might be contended they won't come to Washington.

That's the point. Give the Pennsylvanians a chance at least to

refuse; a chance that I seriously question they have had many opportunities to do.

• Now you are from New York, aren't you, Mr. Dulski?

Mr. DuLsTci. That's right.

• Mr: BECKWORTH. Your State, of course, has the most population

of any State. It had over 16 million in 1960, and according to these

very figures you had 110 people out of New York working here.

There is a lot of difference in the population of your State and some

of the other States that I have referred to.

It seems to me that it's just worked out poorly when one looks at

these figures and sees that people from States that are reasonably

close, like yours, Madam Chairman, have little chance to obtain

summer employment in Washington.

I was rather astounded when I looked at my own State of Texas.

By the way, we are interested in government, too. I used to teach

school. Children and young college students and teachers in Texas

are just as interested in government as -people anywhere. I am confident of that.

We have a big State, too; over 7 million people, perhaps 8 million.

Do you know how many summer employees we had in 1959? Fourteen. We hardly scratched. And there are some States like Minnesota which had 4; here's Kentucky with 9; Louisiana 5. Some

States fared even more poorly.

. I believe some additional consideration should be given to the

possibility of making the summer employment program a little bit

more uniform insofar as distribution of employees by States is concerned. Certainly giving those people in States • like yours, Representative Dulski, and yours, Mrs. Granahan, at least the right to

refuse is the minimum that should be done, is my opinion.

Mr. DuLsici. Madam Chairman; may I ask a question of my

colleague?

It's always a pleasure to hear my friend from Texas. He always

has interesting statements. This is something new to me. I thought

that all summer employment here is governed in the same way as we

have relating to civil service. These are temporary jobs, are they not?

Mr. BECKWORTH. That's right.

• Mr. DULSKI. First of all, the difficult part we have in Buffalo is

that when you ask for a job that lasts only 2 or 3 months, there is the

cost of transportation to come here; secondly, accommodations. One

of the biggest problems we have is family relations.

You take a mother or a father who work for the Government, they

have the inside track on this information. But by the time this job is

released that employment is taken over. Don't you agree that has

been the case?

Mr. BECKWORTH. I believe that at least there is some of that which

characterizes the situation. A person is at a disadvantage who lives

as far as you do in getting information. But that disadvantage

shouldn't preclude him a reasonable opportunity to receive this

employment. I say again he should have the right to refuse.

Mr. DuLsiu. I agree with you.
16 EXTENDING APPORTIONMENT REQUIREMENT

Mr. BECKWORTH. No one, in my judgment, would deny that.

I know the argument will be made that the quota in some of the

States, with reference to other employment, is not filled. I have heard

that argument all the years I have been here in Congress. But there

is one thing in my judgment that should be borne in mind in that connection. Many of the sum total of the jobs in the Government

aren't high paying jobs. I am talking about overall Federal jobs.

I believe I can truthfully say to you that with unemployment like it is

in this Nation, not many good Government jobs throughout this

country and here in the District of Columbia are refused by people

throughout this country if offered them. My mail doesn't show

evidence that people are disinterested in reasonably good Federal

employment in Washington or anywhere else: Certainly in regard to

good jobs, people welcome the opportunity to take them.

Mrs. GRANAHAN. Mr. Beckworth, do you feel most of these

temporary jobs are filled by students going to schools and colleges in

and around Washington?

Mr. BECKWORTH. Perhaps. I don't have that type of breakdown.

I would guess that a good many of the recipients are students. Some

of them may be teachers who teach 9 months a year.

People want to come here. That's a normal, natural tendency.

And you may say little money can be made in these summer jobs.

I guess there are a lot of people who would like to come here and work

even if it cost them a little money to spend the summer here. I believe

that would be a fair conclusion and deduction.

I don't have a breakdown on the salaries, but it does seem to me that

these low statistics or figures for so many States, except the two plus

the District of Columbia, constitutes an extreme situation.

Mrs. GRANAHAN. This would be younger people you are referring

to?

Mr. BECKWORTH. Well, whatever temporary 

Mrs. GRANAHAN. I mean, they wouldn't be real good jobs; they

would be temporary jobs; would they not?

Mr. BECKWORTH. It's whatever the Government calls for. After

all, it would be the agency, for example, that determines—I am not

trying to use names—but, for example, here is the Office of the Secretary of Commerce. In the Office of the Secretary there were three

people hired in 1959. In the Office of the Bureau of Business Economics there were five people hired in 1959. In the Office of Business

and Defense Services Administration there were about eight people

hired. In the Office of Technical Services there were six people hired.

In the Coast and Geodetic Survey there were about eight or nine

people hired. In the Maritime Administration there were four

people hired. In the Bureau of Roads, Public Roads, the remainder

of the page [indicating] there would be, I would guess, 25 hired. And

then about 35, I would say, now in the Bureau of the Census, this

page [indicating] down to here. In the National Bureau of Standards

the remainder of this page, all of this page, all of that page, down to

here [indicating]; about four pages. By the way, this is all Weather

Bureau here: this, and this, and this.

Now that brings to my mind another thought. If it's good for a

person to work for the Weather Bureau, if that really helps him and

helps the Government, it would be a meritorious idea to distribute

this opportunity throughout this country. If a thing is good and
EXTENDING APPORTIONMENT REQUIREMENT 17

,distributed fairly and justly, it might make our country even stronger

by this spread of information that one is able to obtain as an employee

of the Government.

Mrs. GRANAHAN. Do you receive many requests, Mr. Beckworth?

Mr. BECKWORTH. I wouldn't say my requests are any more than the

average Member of Congress; but I will say I think I have experienced

about what each has experienced as you brought out, Mr. Dulski,

almost the impossibility to obtain for Texas people summer employment here in Washington; 110 is a good many, but not many when

you have 16 million people in New York State, and it certainly doesn't

compare even remotely favorably with what some of these other

'States have had, or even the District of Columbia.

Mrs. GRANAHAN. Have you figures on summer employment in.

.some of the other large States; shall we say, California and Pennsylvania, for example?

Mr. BECKWORTH. I have them on every State.

Mrs. GRANAHAN. I mean in the States themselves; not here in

-Washin gton.

Mr. BECKWORTH. Government employment in the States?

Mrs. GRANAHAN. Yes, in the States.

Mr. BECKWORTH. I am glad you brought that up.

If you study this particular question, it might be a very good idea to

End out what type of distribution of summer employment jobs take

place in connection with national parks, and places all through this

country, that would be equally as interesting in my judgment as this.

-Very likely, along the same line about which you speak, a person in this

area would hear about opportunities, shall we say, in Yellowstone

National Park, before a person would who lives in Buffalo, and might

find himself getting out there more rapidly than a person who lives in

Buffalo. You have touched on a very important point.

There is a good deal of Federal employment in the summer other

than employment in Washington. The question can very well be

asked, Does the same kind of disparity as between States take place

in connection with employment out of Washington as takes place

here within the District of Columbia? I certainly implore your sub-

'committee to get this information. I think it would be very interesting, and it should be known.

I would hope as you undertake to get the information that you

would not take as an answer that there is not enough money available

to obtain it because that is a poor answer. If it's not available, it

fought to be available.

That concludes my statement. I certainly will be glad to try to

:answer any questions now.

Mr. DuLsKi. The part we were worried about, Mr. Beckworth, is

that information would have to be available to the people perhaps

in February, so you could plan with the students. Now we have

-many students attending Howard, we have many students attending

'Georgetown. They live right in the District, but by the time that

they have information available, the jobs are already filled.

Mr. BECKWORTH. I don't begrudge any person having a job who

lives here. That's not the point at all. I seriously believe that it

.would be to the advantage of this country if there could be more

-uniformity in people having an opportunity to work within the

Government here in the National Capital in the summer.
18 EXTENDING APPORTIONMENT REQUIREMENT

Each of the Members of Congress brings to Washington, from time

to time, people to work in the Government. I refer to patronage jobs.

I think it's a good thing and helpful to the recipient. We hear about.

two or three Members of Congress that in the summertime have.

regular shifts—if my information is correct—of young people to work

within the congressional offices. Why? Because it is felt this is good

for the person who has that opportunity. I think it is good.

Mrs. GRANAHAN. I think the universities are doing a good job in

that. I know they have been around to see me many times. In many

instances they will meet half the salary in order to gain that experience.

Mr. Du',sic'. Mr. Beckworth, as I read in the paper that the

Government is expanding with these new employees going into the

Peace Corps and some other agencies, I understand there is not enough

available space in Washington right at the present time. They have

secondary places, but it's not good enough for the Government. It's

too small. We don't have the accommodations.

Following the same line of thought as you have there, suppose our

Government was distributed, like we have the Social Security System

in Baltimore, and I think there are other agencies in other parts of the

State. I think that by distributing all this employment in the various

parts of the country that that would ease the problem much faster;

would it not?

Mr. BECKWORTH. That is correct. But there is only one CapitaL

and there is only one Washington.

That is one reason I have undertaken to concentrate my efforts

here. I am interested in this particular aspect. I believe it deserves.

attention as the distribution of summer employment is studied.

I repeat, at least the right of refusal should exist.

Mr. DuLsici. I agree with you.

Mrs. GRANAHAN. HOW Would you suggest doing that, Mr. Beckworth? Through the Representatives of those districts?

Mr. BECKWORTH. I think if any reasonable effort is made to

bring about apportionment, that our Government will have adequate

facilities—and I am not talking about Members of Congress; I am

talking about departments of our Government.

Perhaps the information about summer employment hasn't been

made available to the people. That may be the way to cure the lack

of uniformity.

I think we all know, if given a test, people in Pennsylvania get,

along just as well as people in the District of Columbia; as people in

Maryland; as people in Virginia. If given tests people in New York

would make just as good grades as people here. I think that same

thing is true in connection with Texas people. Let them have a

chance to compete.

I think it would be no problem to bring about equitable coinpetition.

Mr. ADDABBO. But may we also possibly run into this problem,

Mr. Beckworth, that many who didn't live in the District, or don't

know of the living conditions in the District, may take the test,

may accept the job, looking at the supposed glamour of the job of

working in the District, and we may have a larger percentage of

fallouts within the first few weeks of any particular employment,

period, which may disrupt instead of aiding an agency looking for

temporary help during the summer.
. EXTENDING APPORTIONMENT REQUIREMENT 19

Mr. BECKWORTH. I have never heard of an agency having difficulty

getting temporary employees. That might be a fact that exists,

but I have never heard of it in 19 years.

Mr. ADD.A.BBO. But what I was getting at was not that they had

trouble in getting it; but they have the employment and people take

these tests to work in the District, and they don't know the living

conditions in the District. They come here to the District and work

a while and they find that the living conditions aren't what they

thought, or the job isn't as glamorous as they thought it would be

and then there would be a large fallout; whereas, if you take a great

percentage of people living in the District, established in the District, they know the living conditions here in the District. If they

took a job, knowing all these factors, wouldn't they more or less

stay in the job?

Mr. BECKWORTH. I don't have the fear that you are expressing.

As I say, I have been around here 19 years. But the fear you express

I don't have. I do believe that on the refusal of a person to continue

his employment it would be quite easy to fill his job.

Mr. ADDABBO. NO further questions.

Mrs. GRANAHAN. Mr. Johnson, do you have any remarks?

Mr. JOHNSON. Madam Chairman, I would certainly like to say to

Mr. Beckworth, at the risk of being thought disloyal to my own State

of Maryland, that under the standing policy of this committee and

under the specific direction of Chairman Murray, irrespective of final

action on your bill, the staff of this committee stands ready and willing

at all times, and will be happy, to assist any Member in these matters.

I assure you, if you have interest expressed by students or young

people from Texas or from any other State, the staff of this committee

will be very happy to cooperate, and I think can be helpful, in locating

positions in the summer. This would particularly apply to the Post

Office Department, for example, which has a number of summertime

openings. , I think we have enough friends in other departments so5

that we can see at least, even on a voluntary basis, that fair treatment

will be accorded residents of other States.

Mr. BECKWORTH. I don't want to infer that given individuals have

been dealt with unfairly. But these figures, I believe, are too far out

of line. I want to repeat them.

Out of the 2,321 temporary jobs in 1959 that I have been able to

study—and I have nothing against Virginia, nothing against Maryland, and I like the District of Columbia. I live in the District while

in Washington. But back to the question of these figures.

Out of the 2,321 total jobs, Maryland got 628 out of it, 25 percent.

That is high. The District of Columbia got 490, almost 500, nearly a

fifth. And Virginia, 546. That accounts for about 70 percent .of

them; 70 percent for two States and the District of Columbia, and 30

percent for 48 other States and Puerto Rico. It's just out of line.

I believe any kind of calculation would evidence that.

My only contention is this, that the framework ought to be such

that people from New York at least would have a right proportionately

to refuse these jabs, and also Pennsylvania and Texas people would

have the same right.

Mr. DuLsici. Has the gentleman introduced this legislation in

other sessions of Congress besides the 87th? tIN I V ERsii>

(If OCT 9 Ight
20 EXTENDING APPORTIONMENT REQUIREMENT

Mr. BECKWORTH. No, sir. It has taken me a long time to get

this information. And as I can show by a package of material that

high [indicating] it has been difficult, most difficult. I want to add,

too difficult. And, incidentally, I hope you don't have the same

difficulty in running down the employment, summer employment, in

other sections of the Nation that I have had in running this down.

It has been hard to get. And Mr. Johnson knows, having worked

with me, when I start to get information I try to get it, and it has

taken unusual effort to get this.

Mr. JOHNSON. Yes, sir; I certainly do know.

Mr. BECKWORTH. Thank you so much.

Mrs. GRANAHAN. Thank you, Mr. Beckworth, for your very complete statement. I can tell you have done a great deal of homework

and research.

The next witness is Mr. 0. Glenn Stahl, Director of the Bureau

of Programs and Standards, U.S. Civil Service Commission.

STATEMENT OF 0. GLENN STAHL, DIRECTOR, BUREAU OF PROGRAMS AND STANDARDS, U.S. CIVIL SERVICE COMMISSION

Mr. STAHL. Thank you, Madam Chairman. In the absence of a

prepared statement, I would like to submit for the record at this point

the letter from Chairman John W. Macy, Jr., of the Civil Service Commission, to Chairman Murray of this committee, dated May 3, 1961,

relating to this bill, H.R. 5698.

(The letter follows:)

U.S. CIVIL SERVICE COMMISSION,

Washington, D.C., May 3, 1961.

Hon. Tom MURRAY,

Chairman, Post Office and Civil Service Committee,

House of Representatives.

DEAR Mn. MURRAY: This is in further reply to your letter of March 24, 1961,

requesting the views of the Civil Service Commission on 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 opposes enactment of H.R. 5698.

The existing apportionment provision of the Civil Service Act applies only to

permanent positions in the competitive service in the District of Columbia area

as nearly as the conditions of good administration warrant. This requirement in

our opinion is obsolete and serves very little purpose at the present time.

The Commission's views on the subject of apportionment in general were

given in detail in "A Report on How People Are Recruited, Examined, and

Appointed in the Competitive Civil Service," for the Subcommittee on Civil

Service of your committee. This report was issued as a committee print in April

of 1959. There has been no change in the situation as described then. Even

the number of States "in arrears" of their apportionment quotas has remained at a

constant 46. In that report the Commission said in summary:

"In the present labor market, the Federal Government in Washington cannot

attract enough applicants from States and territories in arrears, many of which are

at a distance from Washington, to meet their apportionment quotas.

"Under these circumstances it appears that the apportionment serves very

little purpose and creates avoidable paperwork."

The Civil Service Commission believes that there is even less justification for

apportionment in connection with temporary summer appointments.

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

Sincerely yours,

JOHN W. MACY, Jr., Chairman.
EXTENDING APPORTIONMENT REQUIREMENT 21

Mr. STAHL. In this letter the Commission stated that it was opposed

to enactment of this legislation. I would just like to talk informally

for a moment, if you will permit me, to throw in some facts into the

picture that I think you will want to take into consideration.

First of all, we have to bear in mind that less than 10 percent of the

positions in the executive branch of the U.S. Government are in

Washington. Not even all of those are departmental positions. Not

even all of those are under the competitive civil service and subject

to the apportionment provisions of the Civil Service Act.

Also, we have to bear in mind what some of these summer hires are

like. They range all the way from laborers, picked up by the Forest

Service from local farm areas to work on some access roads during the

months when the work can be done, to high school teachers who want

to work part time in the summer in the parks, to the Army hiring to

accelerate their laundry activities during the summer on account of

the greater amount of summer clothing laundered. Of course, they

include a goodly number of high school and college students.

Congressman Beckworth is quite correct in saying it is difficult to

get figures on this situation. This is simply because it is so widely

dispersed and so difficult for the agencies to assemble it. And I

appreciate his charitable recognition that it hasn't been because

anybody has wanted to withhold anything. It simply takes time and

trouble to gather data when they aren't accustomed to keeping much

information on temporary jobs. Most of these jobs last no more than

3 months, usually, and sometimes they are as short as 2 months.

Now we have made a very quick estimate just in the past 2 days,

and it is very rough, and I don't want to say that it is absolutely

accurate, but on the basis of the spot check we made with a few large

agencies in Washington, we found that less than 4 percent of the

summer hires—temporary jobs of all kinds, including students and

teachers—are in Washington. The rest of them were out in the field.

They are out in the States, in the cities. This is where the great bulk

of the summer people are being hired.

Another fact I want to bring out is that these summer temporary

jobs are excepted in large measure from the competitive service.

They don't operate under the competitive system, and formal competitive examinations are not given. They operate under several

different authorities.

Some individual agencies have specific schedule A authority. I

think most of you are acquainted or have heard that schedule A is the

kind of exception which the Civil Service Commission can make for

certain kinds of jobs, and in this case schedule A means that it is

impractical to examine for the job.

Now, the Commission has for many, many years excepted various

kinds of temporary jobs from competition, under different provisions

of schedule A, on the grounds that they were temporary and that we

could hardly afford to expend our extremely limited resources on

examining for jobs of that type.

In addition, just about a year and a half ago we took a further

step. We provided that any temporary job under 700 hours a year,

at grade GS-7 or below, could also be filled without regard to competition. Consequently, the great bulk of the jobs which are referred

to here as summer hires are not competitive jobs at all. In fact, the

A
22 "EXTENDING' 'APPORTIONMENT REQUIREMENT

only exception that we could think of in looking through this quickly

just in the past day to two is that of student trainees.

- Now, student trainee refers to a special program for scientific and

engineering occupations, where a student is in college and starting

at the end of his freshman year he takes a competitive examination

and if he gets appointed and accepts, he works for that summer and

the next two succeeding summers with the understanding that when

he graduates he will then come in full time.

A number of agencies have programs using the student trainee

examination. Even though the examination is competitive, the Commission, when it established it, exempted it from the apportionment

provisions. That leads me to the next point as to the significance of

apportionment in the service today.

' The apportionment provisions were in the original Civil Service

Act of 1883, a provision, incidentally, which I just happened to notice

in passing the other day was objected to by one of the early reformers.

He didn't wish to see it in the original act, but it did say this, indicating

the rules which the Commission shall establish, to carry out the

purposes of the act, "that * * said rules shall provide and declare,

as nearly as the conditions of good 'administration will warrant,

I call your attention to that latitude "as nearly as the conditions

of good administration will warrant."

Then it says "as follows," and it has a list of things. In that list

is included this language:

* * * as appointments to the public service aforesaid in the departments at

Washington shall be apportioned among the several states and territories and

the District of Columbia upon the basis of population as ascertained at the last

preceding census.

In 1944, the Veterans' Preference Act exempted all veteran appointments from these apportionment provisions. Certainly at that

time the appointment of veterans represented more than half of all

appointments and even now it is nearly half of the appointments to

the Federal service and in most kinds of occupations.

. Furthermore, we find that the apportionment doesn't work. There

are only 12 States out of the 50 and the District of Columbia which

are over their quota, and even with respect to those occupations to

which this applies, they were unable to get enough candidates through

•the -competitive process

'

so that the other 39 States can come up to

their quota. The quotas, of course, are computed on the basis of

the population of the States and the District of Columbia.

In addition to the exemption by law of all veterans, which automatically reduces the number drastically affected by apportionment,

the Commission has over the years made such general exceptions as

these: All professional and scientific positions, all positions of GS-13

and above of whatever occupation, and all positions that are in short

supply at any given time. This has included, incidentally, typists

and stenographers.

So, as a matter of fact, in the competitive service, even if this

apportionment proviso were written into law, at the present time the

Commission's policy would be that we would not apply it to stenographers and typists. '

It is true, there is probably some considerable competition for

stenographic and typing jobs in the Washington area in the summer-
EXTENDING APPORTIONMENT REQUIREMENT 23

time. I am not sure exactly what the solution of that is. We did

conclude a year and a half ago that we were taking far too much time

to examine competitively for these jobs.

We had likewise felt the purpose to be served would not warrant

-the administrative machinery necessary to also try to apportion them

on the basis of population among the various States, especially con-

-sidering that at least 96 percent of the summer hires on the basis of

this very recent estimate are made out in the States anyway.

So our conclusion is that if this bill passed we are not sure it would 

be of any substantial effect, and I am inclined to think it is impossible

to administer because of the complexities involved in trying tci keep

the apportionment operating. As you can imagine, arithmetically

this is quite a juggling problem to know when a person is eligible to

be certified and when he is not, and having to check the quota to

properly certify eligibles. If the jobs were brought back into the

competitive process, it would be, we think, a rather expensive procedure for a not very significant purpose.

As a matter of fact, as a result of such a requirement, the agencies

probably would reduce the amount of those summer employment

situations in the Washington area simply because there would be too

much discouragement in trying to get it done.

• Those are some of the things that have influenced us to feel that it

-wasn't worthwhile to favor this particular bill, with all due respect

and regard for the very fine motives which have stimulated its submission.

If there are any further questions about this which I can respond to,

I will be glad to reply.

Mr. DuLsm. May I ask a question?

Mrs. GRANAHAN. Yes, Mr. Dulski.

Mr. DuLsKi. You say only 4 percent are in the District.

Mr. STAHL. I said the number of hires made, the number of jobs

in the District in relation 

Mr. Diasici. I mean the hires.

Mr. STAHL. Yes.

Mr. DuLsici. That is only 4 percent?

Mr. STAHL. On the basis of a sample of half a dozen agencies we

made in the past few days, and their estimates we find it literally

came out to 3.8 percent.

Mr. DuLsiu. These are in field and parks?

Mr. STAHL. That's right; Agriculture and Interior; Army, Air Force,

.et cetera. Perhaps some in the Post Office Department. We didn't

get figures from the Post Office. I don't know to what extent—of

course they have big temporary pushes at Christmastime.

Mr. DULSKI. The reason I question the figures is this. That 4

percent, using the 4 percent figure out 100—let's assume that the

gentleman from Texas has 2,321 jobs; this year especially. I imagine

that figure went up to 3,000, probably. Using the 3,000 figure, that

Would be 120 people only employed in the District, and the other 96

percent would be in the field. That would be a pretty difficult

thing 

Mr. STAHL. Frankly, our estimate isn't anywhere near that high.

Again I plead this is an estimate rapidly accumulated by telephone

in just the past 48 hours.
24 EXTENDING APPORTIONMENT REQUIREMENT

But I would have estimated, had you asked me, the number of

temporary employees in the Washington area this summer to be not

more than 1,500; but I could be wrong. It's extremely difficult to

get, simply because records aren't kept in such a way, without actually

making those counts; so each agency has to go through the records

and make a specific count, which can be done, but I point out it is

difficult. There is no place you can turn to that automatically

flashes the answer, and consequently they have to make estimates.

But my estimate would have been on the basis of a sampling with

some of the largest agencies.

Mr. DuLsKi. Did you check with the Post Office Department?

Mr. STAHL. No, I didn't. I would expect their summer employment in Washington would not be particularly significant in their

headquarters office. But we are only talking about departmental

offices, not about the post offices as such because they are in the field,

just as some other establishments in Washington are in the field.

And they are not affected by apportionment even under the point

that is in the law at the present time.

Mr. DuLsKI. How do you treat a disabled worker? Does he have

first preference? He's not included.

Mr. STAHL. That's right. You don't care where he comes from, he

may be certified. Any veteran is completely exempt from the apportionment situation; and the State of his residence doesn't affect

whether or not he can be certified.

The process is, if a State is over its quota, the person can't be certified if he's a nonveteran and not in one of these other excepted groups,

unless you can't find anybody who is available and within reach from a

State that is under its quota, in which case then you can go back and

certify other people over them. That's why the States over the quota

continue to be over.

Mr. DuLsiu. There are people in the scientific field who look forward—when you read the magazines—they look forward to this as a

wonderful experience while they aren't attending school. Now you

say that of the certain grade they are also excluded out of the apportionment?

Mr. STAHL. First of all, with respect to the scientific and engineering group, we have a competitive examination for student trainees

which provides for a series of summer experiences preceding full-time

employment.

But the Commission many years ago excluded from the apportionment provisions, not from competition now, but from the apportionment provision alone, all scientific and engineering positions primarily

on the ground they were difficult enough to recruit for anyway, and it

just didn't seem to pay to go through all these processes.

And as I say, they also excluded positions of GS-13 and above,

although direct appointments from the outside at those levels are very

small in comparison to the numbers at the lower level.

Mrs. GRANAHAN. Mr. Stahl, do all or any of these jobs have to be

on the register.

Mr. STAHL. No. The summer jobs I am talking about are principally not on registers.

Mrs. GRANAHAN. However, in the post offices, I believe, temporary

help has to be taken from the registers.
EXTENDING APPORTIONMENT REQUIREMENT 25

Mr.rSTAHL. Certain categories of temporary help are hired from

registers; I think that is right.

Mrs. GRANAHAN. Well, I think carriers and clerks.

Mr. STAHL. Yes, those are the kind of jobs, but they have this

temporary authority and there are substitutes. There are complicated differences.

Mrs. GRANAHAN. I know that because I am familiar with that. I

have many requests.

But otherwise, your people don't have to be on the register for

temporary employment?

Mr. STAHL. That's right, because by Commission actions most of

these jobs we are talking about, with the exception of the student

trainees in engineering and sciences, are under schedule A or under this

700-hour limitation. It's under the theory these are not permanent

jobs. It's expensive to conduct an examining process, and we have

tried to concentrate our examining resources where we felt they made

the greatest contribution to the merit system in the Government, and

that was in the permanent jobs.

Mr. ADDA11110. Do you think it might be for a better employment

situation if these summer replacements were taken off the civil service

list. In other words, those on the list already given the opportunity

to these vacancies, and after they get the 3 months' experience and

go back to their respective States and do eventually go on the permanent list, that they have already had experience and then get a

fair apportionment throughout the country. It would be easy to

circulate each agency in the States, to send out a general announcement. Even those on the list could apply.

Mr. STAHL. May I, in response to that, point this out. Even in a

number of these stenographic and typing jobs, for example, which

are under 700 hours for the duration of the summer, the agencies

may actually turn to the competitive registers for permanent appointment to get candidates. They don't ignore those; they may use those

as a source of candidates. The only thing is they don't have to appoint in a certain order. They don't have to consider competition.

But they do use that as a source in many cases, perhaps even in most

cases.

At the same time, though, they are also free to appoint anybody

who meets the minimum standards in all of these jobs. They have to

meet the minimum standards. It's simply a case of not making distinctions among the people who do meet the minimum standards.

Mr. JOHNSON. That is exactly what the postal field service does

under regulations of the Postmaster General. Preferential temporary

employment is granted to persons who haw not yet been reached on

a register, and postmasters don't employ other temporary help if

there is someone on a register who can be reached.

Mr. ADDAB110. I know that is so in the post office. Why not in

the other agencies, the same way?

Mr. JOHNSON. The postal service has a general regulation also which

limits to 30 days a temporary appointment. Such temporary employment can be extended beyond 30 days only in the case of necessity

where they can't get anyone else.

Mr. STAHL. May I also, in further elaboration, point out when any

individual makes application for an examination he indicates whether
26 EXTENDING APPORTIONMENT REQUIREMENT

he is interested only in permanent employment or whether he would

be willing to accept temporary employment.

It's always possible people can change their minds, of course, when,

an opportunity comes up, but very few people applying for regular

jobs, permanent jobs, indicate that they are interested in temporary

jobs. Consequently, the numbers who are on the list, who could be

considered for the temporary jobs, is usually relatively small, percentagewise.

Mrs. GRANAHAN. I would like to commend Mr. Stahl on his veryfine and clear statement.

Mr. STAHL. Thank you very much.

Mrs. GRANAHAN. I think we are very much better informed—at

least I am, than I was previously.

Thank you very much.

Mr. STAHL. Thank you. You are very kind.

Mrs. GRANAHAN. Mr. Broyhill was unable to be here today so we

will include his statement in the record at an appropriate point.

Mr. Du',sm. He is opposed to it, I presume.

(Mr. Broyhill's statement follows:)

STATEMENT OF HON. JOEL T. BROYHILL, A MEMBER OF THE SUBCOMMITTEE

Madam Chairman, I wish to thank you and the members of this subcommittee

for the opportunity to tell you why I feel it would be unwise as well as unnecessary

to apply to temporary summer jobs the State-proportion ratio rule which now

applies to permanent Federal jobs in the Washington area.

In the first place, it would be unwise because it would interfere seriously with

the effort of the Civil Service Commission to recruit promising students to permanent Government employment as a career.

Teznpuirary summer employment in V e seat of Government serves a two-fold

purpose in this recruitment program. First, it helps the Commission to convince

likely students of the many benefits and advantages of making a carreer of Government service. Second, it constitutes an invaluable training ground; if the

Commission does persuade the student on graduation to enter career Government

service, he already has been indoctrinated in some of the ways of Government

and does not have to begin his permanent Government service with absolutely

no civil service background.

Thus, application of the apportionment principle to temporary summer jobs

in Washington would unduly hamper the Civil Service Commission in its efforts.

to recruit-and prepare capable, young men and women for Federal service.

It also would disrupt the programs now in effect in many Washington area

schools whereby students may go to school part time and receive scholastic.credit

for certain types of part-time Government work. Such a program is an integral

part of the educational system in many localities.

Even apart from this affirmative point, no need whatsoever can be demonstrated for extension of the ratio rule to summer jobs. The fact is that a vast,

majority of students seeking summer Government employment, prefer to work in

their home areas. But students in other parts of the country who express an

interest in Washington jobs, are given full consideration by the Civil Service

Commission and many of them actually do come here for summer work under

present regulations.

Furthermore, application of the ratio rule to summer jobs would be most unfair

to youngsters living in the District or in nearby Maryland or Virginia. Less

than 10 percent of all Government jobs are in the Washington area today; there

are more Federal jobs in California, for example than there are in this area.

But the State-proportion ratio does not apply to Federal jobs in California,

only to those in the District of Columbia area. To apply the rule to summer

jobs would mean that California youths would have a preference in a substantial

proportion of the available openings here; but Maryland, Virginia, or District of

Columbia youths would have no such preference for any summer openings in

California.
EXTENDING APPORTIONMENT REQUIREMENT 27

The present rule whereby summer jobs are filled primarily on the basis of

each applicant's merits, is far more fair to all concerned than would be any

application of the State-ratio rule.

This rule originally was adopted in the civil service law of 1883. Almost all

Federal jobs were then located in the Washington area, and the rule was intended

to assure that the jobs would be spread among residents of all parts of the

country. The situation today is far different and actually no valid reason exists

for the rule now.

Rather than extending the apportionment principle to the summer jobs, I

think we should be working to abolish it altogether.

Mrs. GRANAHAN. The subcommittee will now adjourn, subject to

call of the Chair.

(Whereupon, at 12:05 p.m., the hearing was adjourned, to reconvene

at the call of the Chair.)