■■gK^^ative surveys the City of Chicago, 1941 ILLINOIS HISTORICAL SURVEY Digitized by the Internet Archive in 2012 with funding from University of Illinois Urbana-Champaign http://www.archive.org/details/administrativesuOOchic A ADMINISTRATIVE SURVEY of the CITY OF CHICAGO AM INTERIM REPORT THE CHICAGO ASSOCIATION OF COMMERCE THE CIVIC FEDERATION CHICAGO 19 4 1 ILUMC THE CHICAGO ASSOCIATION OF COMMERCE OFFICERS A. H. MELLINGER. President HOLMAN D. PETTIBONE. Vice President LA WHENCE H. WHITING. Vice President W. H. STANLEY. Vice President C. J. WHIPPLE, Vice President WILLIAM J. KELLY, Vice President PAUL MOOBE, Vice President GUY E. REED, Vice President GERHARDT F. MEYNE. Vice President AVERY 3RUNDAGE, Vice President WILLIAM BACHRACH, Vice President FRANK A. HECHT, Vice President JOSEPH E. MAGNUS, General Secretary A. R. FLOREEN, General Treasurer LEVERETT S. LYON, Chief Executive Officer William Bachrach F. L. Batemao Joseph K Brittain H. E. Christiansen D. A Crawford Edward J. Doyle F. B. Ernst A. R. Floreen Frank A. Hecht William J. Kelly Ear) Kribben A. H. Mellinger Sterling Morton W. A. Patterson George Richardson Wm. P. Sidley C. J. Whipple DIRECTORS Amos Ball C W. Bergquist Avery Brundage John L. Clarkson J. A. Cunningham Harvey G. Ellerd Newton C Farr James B. Forgan Leonard Hicks Martin H. Kennelly Joseph E. Magnus Gerhardt F. Meyne D. M. Nelson Holman D. Pettibone Fred J. Sauter C. D. Southard Fred T. Whiting C. M. Wynne Clifford W. Barnes C. A. Bethge Bertram J. Cahn John F. Craddock Justin W. Dart W. M Ellis Wade Fetzer, Jr. Gen. Thomas S. Hammond John Holmes G. Cook Kimball Oscar G. Mayer Paul Moore Walter P. Paepcke Guy E. Reed H. A. Scandrett W. H. Stanley Lawrence H. Whiting THE CIVIC FEDERATION OFFICERS NEWTON C. FARR, President GEORGE A. KELLY, Vice President GEORGE G. TUNELL, Vice President PHILIP F. W. PECK. Vice President JAMES B. FORGAN, Treasurer DOUGLAS SUTHERLAND, Executive Secretary HARLAND C. STOCKWELL. Assistant Executive Secretary Graham Aldis Harve G. Badgerow J. A. Cunningham Thomas E. Donnelley Newton C. Farr Earl Kribben William S. Miller George Richardson TRUSTEES James B. Angel) Homer J. Buckley Royal B. Gushing Edward J. Doyle James B. Forgan A. H. Mellinger Wirt Morton Guy A Richardson Percy Wilson Arnold B. Baar Bertram J. Cahn John W. Denlson William S. Elliott George A. Kelly R. A. Miller Philip F. W. Peck George G. Tunell R. L Aruheim Frank J. Bilek John C. Bowers Walter L. Cohrs William M Ellis Robert J. Graf Charles E. Humm Leverett 8. Lyon John P. Mentser Alfred E. Patten Edward L- Ryerson, Jr. John Stuart Albert H. Veeder ADVISORY COMMITTEE Sewell L. Avery Frank J. Birk Aldis J. Browne Walter J. Cummings E. Allen Frost Frank A. Hecht James S. Knowlson E. J. McGowen Charles F. Murphy Lester W. Porter Gilbert H. Scribner Guatavus F. Swift Edward F. Wilson Omar H. Wright Lyle L. Beach William Scott Bond Ralph Budd Robert S. Cushman Willis D. Gale H. Earl Hoover Cornelius Lynde Frank McNair George F. Noyce George W. Rossetter Leo J. Sheridan Leo G. Varty Paul I. Wimsey AN ADMINISTRATIVE SURVEY of the CITY OF CHICAGO AN INTERIM REPORT CHICAGO 194 1 IHt UbKnKY Ut IHt SEP 10 1941 UNIVERSITY OF ILLINOIS By THE CHICAGO ASSOCIATION OF COMMERCE and THE CIVIC FEDERATION I. Background and Organization ol the Survey. II. Results. III. Technical Procedure. IV. Administrative Problems of the City. V. Appendix — A Sample of the Re- search Reports. -5 51.0113 11 J**/** 3 ^a ' An Administrative Survey of the City of Chicago AN INTERIM REPORT Prefatory Note This is a report on the Administrative Survey of the Chicago City Government, which has been going forward under the joint sponsorship of The Chicago Association of Commerce and The Civic Federation. Both groups have worked in organizing this study and in making and sustaining the necessary arrangements for its prosecution. The staff engaged on the study has been employed and financed by The Chicago Association of Commerce. It has been directed by The Civic Federation. The work has been done with the active co-operation of the City Administration. The members of the staff participating in the survey included MacDonald Salter, Administrative Analyst-in-charge ; Stuart W. Shepard, Engineer Analyst-in-charge ; Robert E. Neis, Dr. T. R. Ponton, Donald B. Tweedy, Jack H. Foster, Frederick W. Byerly, Emmons W. DeBerard, S. Peter Lambros, Howard R. Ennor, Glenn V. Gibson, and Margorie A. Leonard. Of this group Glenn V. Gibson and Margorie A. Leonard were Sloan Foun- dation Fellows. Harland C. Stockwell, Assistant Executive Secretary of The Civic Federation, who was conducting an over- all budgetary and accounting procedural survey, gave the staff great aid and assisted in the direction of the survey. This brief statement to those who have supported the survey outlines the background and organization of the work, the gen- [3] eral results achieved, the technical procedure followed, and the major administrative problems confronting our City Govern- ment. A study of the reports submitted to the Council by the Research Staff is necessary to a full appreciation of the task of the survey. As these reports are necessarily technical, their pub- lication for general distribution has not seemed warranted. There is included in this report, however, a sample of these analyses. Those desiring similar reports on other agencies can obtain them upon request at the cost of mimeographing. Both the public officials and the officers and members of the civic groups concerned have maintained throughout this study a consistently co-operative attitude. This attitude together with the results thus far attained gives encouragement to the belief that an objective approach and factual analysis may be counted upon to bring economies to taxpayers and constructive aid to re- sponsible public officials. The success of this approach has been further demonstrated by the fact that a similar survey has been requested and is being undertaken for the Sanitary District and for Cook County, and has been requested by the Chicago Board of Education. LEVERETT S. LYON, Chief Executive Officer The Chicago Association of Commerce DOUGLAS SUTHERLAND, Executive Secretary The Civic Federation [4] An Administrative Survey of the City of Chicago AN INTERIM REPORT I. Background and Organization of the Survey In April 1939, Mayor Edward J. Kelly conferred with repre- sentatives of The Civic Federation concerning the growing diffi- culties of the City's corporate fund, and possible means for financing some $10,000,000 in unpaid bills. In view of legal and other objections in the path of a funding program, the Mayor expressed interest in the suggestion that an administrative study might develop possibilities of economies which would check the excess of expenditures and permit a progressive reduction of the floating debt. At that time, The Civic Federation was not in a position to accept the Mayor's suggestion that it direct such a study. How- ever, early in 1940, following The Chicago Association's Greater Chicago campaign in which it had stressed the need for more intensive citizen interest in governmental problems, the Chief Executive Officer of The Chicago Association of Commerce and the Executive Secretary of The Civic Federation were able to lay before Mayor Kelly and Chairman J. M. Arvey of the Council Committee on Finance, an offer of constructive assistance for a study of municipal operations. On March 19, 1940, the Mayor endorsed this offer of assistance before the Committee on Finance and recommended the appoint- ment of a Survey Committee on which there should be both civic-group and official government representation. The Com- [5] mittee on Finance which, in submitting its report on the 1940 Appropriation Ordinance, had expressed a determination to carry on "budget studies and surveys, ,, approved this recommen- dation, and its chairman appointed a Budget Survey Committee consisting of these four members: Frank J. Flanagan, Chairman, Budget Examiner, Committee on Finance. Oscar E. Hewitt, Commissioner of Public Works. Robert B. Upham, City Comptroller. Graham Aldis, President, The Civic Federation, and representative of The Chicago Association of Com- merce. The Budget Survey Committee appointed Douglas Sutherland, Executive Secretary of The Civic Federation as Director of the survey and approved a general course of procedure for the study. The Executive Secretary of The Civic Federation and the Chief Executive Officer of The Chicago Association of Commerce pro- ceeded immediately, in co-operation, to assemble a small but capable staff of technicians familiar with governmental research, including several men experienced in public administration. This staff was placed on the payroll of The Chicago Association of Commerce and assigned to The Civic Federation, which supplied, in addition to direction, headquarters facilities, supplies and overhead requirements. The City furnished a large working space in the City Hall. The Budget Survey Committee decided that immediate atten- tion should be given to the "corporate fund" of the city, partly because it was carrying some $10,000,000 in unpaid bills, partly because it levies the second largest operating fund tax in the community, and partly because it supports the majority of the administrative expenses of the city departments. Mayor Kelly immediately sent to all Department, Bureau, and Division heads a letter directing that all possible facilities and co-operation be given to the staff, and by mid-May the survey was well under way. The immensity of the task involved is portrayed by the attached chart of the administrative organization of the City government. This government employs over 28,000 persons. [6] THE CITY GOVERNMENT OF CHICAGO ADMINISTRATIVE ORGANIZATION CITY COUNCIL ™1- I CLERK | DEPARTMENT DEPARTMENT OF SUBWAYS AND I OF SUPERHIGHWAYS | BUILDINGS ELECTORATE BElaT'C'.Sh c /S. MAYOR ^V -CORP- COUNSEL DEPARTMENT DEPARTMENT OF FINANCE -COMPTROLLER CHIEF JUSTICE AND JUDGES CLERK [- oty I ; J city I | COLLECTOR [ | TREASURER | DEPARTMENT BOARD DEPARTMENT HOUSE OF OF STREETS OF HEALTH | AND ELECTRICITY | CORRECTION BOARD PUBLIC VEHICLE OF LOCAL LICENSE dPROVEMENTS I I COMMISSION EXAMINERS COMMITTEES OF THE CITY COUNCIL CHICAGO MUNICIPAL CHICAGO RELIEF TUBERCULOSIS PUBLIC ADMINISTRATION I | SANITARIUM I LIBRARY MAYORS SPECIAL COMMISSIONS & AGENCIES E=3 LIS G=D CM3 LSL LsD [ML LMJ LLLD E EED EEB (^ LSI E L=L LLLD B E=3 m ANNUITY AND BENEFIT FUNDS dm mm E] ls LS D^] [W] L^ 3 a L^D LUD L^D dD BM§ EUS L^Ll L* 3 ^^ m S1D [m] LSD LW] ESL1 L=] L^LL ^ LSI L^ [6] [7] THIS ADMINISTRATIVE SURVEY EMBODIED SEVERAL UNIQUE CHARACTERISTICS Previous efforts to analyze the government of the City of Chicago with a view to recommendations looking toward effici- ency and economy have been initiated by citizen groups. This is the first case, however, in which a survey of the administration of our municipal government has been made in which all of the following factors were present: (1) Direction and financing by citizen agencies. (2) Active and complete co-operation of city officials. (3) An announcement to the press that the survey was being undertaken and of the conditions under which it was being organized. (4) A lack of publicity during the progress of the sur- vey but with full publicity upon presentation of the reports to the appropriate city officials. (5) Tangible results valuable to both taxpayers and municipal officials. BUSINESS MEN CONTRIBUTED IMPORTANT DATA A very significant contribution to this survey was made by the business men of Chicago in addition to the financial and moral support which they gave the undertaking. It was necessary for the survey staff to find some reasonably objective standard for determining the proper compensation for a wide range of serv- ices. As a means of accomplishing this an extensive questionnaire was carefully prepared by the research staff and widely dis- tributed by The Association of Commerce to its members. The questionnaire called for data showing classification of workers and rates of pay. Making a proper return was no small task. The hundreds of returns received furnished an invaluable aid to the survey staff in justifying recommendations concerning salary rates. As illustrative of this contribution of business concerns, there are reproduced herewith eight small charts presenting the char- acteristic wage data for certain of these classifications of posi- tions. In the 1940 preliminary wage survey, analysis was directed to rates of pay affecting the organized trades and crafts. An illustration of this analysis is presented with the small charts showing the comparative annual salaries of certain crafts. [8] § I IS! I < % z Z i 2 L H i I uj | § j UJ i! ;i i i i I -slil I**! Iil ; :; 1 ■■^^^B < ^| ! § »*i "3 s , ?l 1 !!M ! 3it'!i Hi? *s i § i — ■■■ 1 i i i i ? ° ^5 sas E il4 if:,' I S SIS "2ss 1 5fi 1 1 § - - ! B ! l*f : ii ti! Ills = 1=1 ii§* 5 c ; = zz<5 ^^_ *i -i* j Hill m m MM 5 £11 7-7,<% I § * (ouir [8] [9] II. Results The more important, immediate and tangible results include : (1) A reduction of at least 305 positions, including elimination of an entire department, and salary reductions totaling $937,637. (2) Constructive assistance to the city administration in its action in reducing the total city appropria- tion for 1941 by some $2,000,000. (3) Action by the City Council looking toward com- plete review of position classifications and wage scales in the City Government. This resulted from two preliminary staff reports which stated : (a) That wages paid to members of organized trades and crafts were, in many instances, greatly in excess of those paid for similar services under union agreements by private employers, and were not even consistent among positions of similar work: (b) That the Civil Service system has persistently failed to function actively, causing deteriora- tion of the position-classification plan, which in a short time may cause a breakdown in the classified service. (4) Provision by the City Council for a fiscal audit. THE STEPS IN REACHING THESE RESULTS WERE SEVERAL The research staff findings were first presented to the Survey Committee. These showed a possible reduction in salaries and wages totaling $997,460 effecting the elimination of some 395 positions, including one entire department not considered [10] essential to the adequate and effective performance of City ser- vices. As a second step the Survey Committee reviewed these findings and recommended to the Committee on Finance the elimination of 261 positions for a total salary reduction of $681,971. Third, the Committee on Finance accepted generally these recommendations and approved the elimination of 361 positions, and salary reductions totaling $1,115,070. It will be seen from the above that the Committee on Finance recommended the elimination of a larger number of positions and a greater total salary reduction than was proposed by the Survey Committee. These changes were attributable to (1) a 10% cut applied by the Committee on Finance to all union-con- trolled positions paid on an annual basis, which the staff findings had shown to be markedly out of line, and (2) additional person- nel reductions in the Bureau of Streets. The Committee on Finance stipulated, however, that no such annual salary affected by this 10% cut would be reduced below the accepted per diem union rate for the particular craft, multiplied by at least 254, the estimated number of days generally worked in a year. The staff report which indirectly resulted in this action covered a partial wage survey and was designed merely to dem- onstrate irregularities of compensation in the City service and to urge the establishment of wage determination and adjust- ment machinery. The fourth step was the adoption of the Appropriation Ordi- nance for 1941. This showed the net reduction of at least 305 positions totaling $937,637, already indicated. The 10% cut applied in the tentative budget by the Committee on Finance was adjusted in the final ordinance to a general salary cut affecting all annual salaries on the basis of 4% reduction of those salaries from $3,000 to $3,500; a 7% reduction of those salaries from $3,501 to $4,100, and a 10% reduction of all salaries over $4,100. The following presents the reductions recommended and effected as they apply to the various agencies of the City govern- ment surveyed : cm REDUCTIONS RECOMMENDED AND EFFECTED AGENCY Staff Budget Survey 1941 1941 Committee Tentative Budget Final Budget City Comptroller . 43 $ 96,960 22 $ 55,540 22 $ 62,680 19 $ 64,990 City Treasurer . 4 14,560 2 9,900 2 9,180 1 6,632 City Collector. . 13 28,500 8 19,820 2 30,620 2 32,142 Civil Service Com +660 2,042 Municipal Ref. Library. + 1 + 1,000 120 720 Dept. of Pub. Serv 31 81,020 31 81,020 54 153,960 54 ©,©153,960 Dept. of Buildings. . . . 8 28,040 8 28,040 4 39,694 + 15 +©41,056 Dept. of Steam Boilers, etc. . . 5 21,800 4 15,800 4 46,662 2 10,568 Dept. of Wgts. and Meas. . . . 3 6,200 2 3,840 2 4,200 2 4,902 Boards of Examiners. . . 2 23,636 1 21,576 1 14,396 1 14,532 Dept. of Smoke Insp. . 1 1,500 1 1,500 1 1,080 1 2,118 Board of Health 62 120,148 47 112,734 36 86,487 46 ©161,654 Dept. of Med. Exam. . 1 2,400 2 4,800 2 5,300 Bureau of Streets 36 78,370 28 63,970 116 168,666 116 ©227,712 Bureau of Electricity. . . 9 32,176 9 32,176 8 109,309 +5 ©47,673 Bureau of Sidewalks. . . . 7 17,800 5 13,240 4 8,900 3 8,446 House of Correction. . . 27 46,215 19 28,700 18 32,488 17 30,982 Board of Local Impr.. . 43 99,834 33 88,860 8 81,737 8 81,737 Bureau of Maps and Plats. . . . 1 4,740 + 1 660 +2 575 +3 2,007 Bureau of Bldg. Main. & Rpr. Bureau of 35 81,295 10 41,937 4 +©7,400 Cent. Purch. . 3 7,320 3 7,320 3 7,260 3 8,944 Bureau, Rivers and Harbors. 38 91,175 38 91,175 3& 175,850 49 89,218 Bureau of Sewers 9 18,056 32,560 1 28,252 Bureau of Parks Rec. and Aviation 15 35,320 1 6,100 +2 2,569 +3 1,562 395 $936,065 261 $681,971 331 $1,115,070 305 ©$937,637 © Central switchboard operation involving 23 positions totaling $48,676 transferred to the Bureau of Building Maintenance and Repair. © Division of Inspection and Complaints — Public Utilities, involving 13 positions totaling $32,398 transferred to the Bureau of Electricity. © Bureau of Plumbing Inspection involving 17 positions totaling $69,166 transferred to the Depart- ment of Buildings. © Estimated number of positions eliminated and salary reductions. © Effect of general sliding scale salary reduction was $216,421 on these agencies. [12] III. Technical Procedure In collecting the fundamental information on which to base its recommendations, the staff followed the technical procedures generally recognized as most efficient in this type of study. Chairman Flanagan, of the Budget Survey Committee, with his universal acquaintance in all branches of the City's govern- ment and intimate knowledge of organization and procedures, gave the staff advantages in contacts and counsel not usually enjoyed in such enterprises. Questionnaires, prepared in triplicate, were serially numbered in the interests of control, and the protection of the employee in his return of confidential information. Questionnaire returns covered some 12,000 employees in the City service. Governmental divisions not analyzed during 1940 were the Municipal Courts, the Department of Subways and Superhighways, the Board of Election Commissioners, the Chicago Relief Administration, the Chicago Public Library, the uniformed forces of the Police and Fire Departments and the Annuity and Benefit Funds. The procedures to be followed in surveying a department were discussed individually with each department and bureau head concerned. The responsibility for the distribution and col- lection of the questionnaires was in each case placed in the hands of the department head. A member of the survey staff was assigned to study each department or major bureau. The staff member first discussed with the department head the general functions and activities of the department. Secondly, he conducted individual interviews with employees. Finally, he reviewed with the department and bureau heads the information so collected with a view to the clarification of these factual findings. The staff member in each instance prepared a written report [13] on his findings including an analysis of the operations of the agency. At an appropriate time the written recommendations of the staff member were discussed with the department head in order to apprise him fully and to secure an exchange of views as to possible modification of procedures which would increase the efficiency of the department and tend to cut expenses of operation. The procedure adopted by the Budget Survey Committee in concluding its work in connection with the 1941 budget resulted in the fullest publicity for the staff reports on each unit covered, even though the Budget Survey Committee's recommendations did not always agree with those presented by the staff. As the Finance Committee considered each agency in preparing the 1941 tentative budget, the Budget Survey Committee, through its chairman, Mr. Flanagan, presented its recommendations and simultaneously released to the Aldermen and the newspapers, copies of the Staff Report dealing with the agency. [14] IV. Administrative Problems of the City Study of the operations of the various departments included not only the determination of personnel requirements but also, as far as possible, a review of methods, procedures and organiza- tion. The majority of the staff's findings directly connected with these administrative and management problems, could not be considered for immediate application in the 1941 Appropriation Ordinance, since in many cases they involved matters of a highly technical nature, requiring either changes in statutes or ordi- nances, or more time for a detailed and careful review and even experimentation by department heads. THERE IS AN EVIDENT LACK OF SOUND PERSONNEL MANAGEMENT Most prominent among the management problems is that con- cerning personnel controls and administration. The analysis of the activities of the Civil Service Commission indicated that there has not been an adequate recruitment program for many years. This failure to secure the best available personnel to per- form city work is a fundamental handicap to efficient and eco- nomical administration. Furthermore, it was found that there was no co-operative interest between the operating department and the Civil Service Commission. The Commission is thus in no position to serve the personnel needs of any of the City depart- ments. The morale of the City service cannot be considered high since there is no adequate service rating system, no systematic in-service training program, and virtually no understudy or other incentive activities to good work on the part of the employee. It is evident that a revision of certain phases of the Civil Ser- [15] vice Commission's methods and procedures not only would improve the caliber of employees now hired by the City, and correspondingly increase the efficiency of the services, but would | probably result in a decrease in general operating costs. THE STAFF FINDINGS DEMONSTRATED LACK OF A UNIFORM METHOD FOR ESTABLISHING SALARIES OF UNION CONTROLLED POSITIONS The survey by the staff of annual rates of pay in parts of the City government indicated conclusively that, first, there were no recognized and established working conditions ; and second, that the annual rates of pay for union controlled positions were con- siderably higher than those paid by comparable municipal gov- ernments or with the general practices existing in private in- dustry within the Chicago area. The staff urged that in the handling of salaries and wages in- ' volving union controlled positions, a mechanism be established for salary determination and adjustment. This recommendation has resulted in a City ordinance providing for a "Mediation and Conciliation Board," to handle salary controversies between the city and any union whose membership may be affected. It should be emphasized that the final general downward salary revision based on a sliding scale of percentage reductions, still left, and in many cases further aggravated, the discrepancies in salary relationships. This affects adversely the morale of the employees. An equitable compensation plan would be in the in- terests of both employees and of the taxpayers. THE STAFF RECOMMENDED THAT THE FINANCIAL PRACTICES AND CONTROLS OF THE CITY GOVERNMENT BE IMPROVED In presenting the staff findings on the Department of Finance, a need was indicated for an improved classification of accounts, a review of financial reporting practices and an improvement in budgetary procedures and controls. In this connection the sug- gestions of City Comptroller Upham and his staff were particularly helpful. The recommended changes might or might [16] not result in additional financial savings but their successful completion would have a profound effect on general economical administration of the City government. They involve not only professional accounting problems but also organizational and procedural problems that must be very carefully worked into the organization of the City government. A THOROUGH AUDIT OF THE FINANCIAL AFFAIRS OF THE CITY WAS RECOMMENDED The staff further urged that sufficient money be appropriated in 1941 for a thorough audit of the financial affairs of the City, since such an audit has not been made for many years. While this is costly in a government the size of the City of Chicago, the preliminary work already completed by the Survey Staff and the use of its facilities will make possible a considerable saving in conducting such an audit. This audit should give consideration not only to checks on the past year's financial transactions but should devote equal attention to organizational and procedural problems of accounting, budgeting, financial reporting, and methods of internal control. IT WAS RECOMMENDED THAT A MORE COMPLETELY CENTRALIZED PURCHASING SYSTEM BE ESTABLISHED General purchasing for the City government is handicapped in its effectiveness by the burden of unpaid bills and the resultant inability to obtain the benefits attendant on cash transactions. A thorough review of the whole purchasing system with the aim of establishing truly centralized purchasing is as essential as adequate personnel and fiscal management. MANY ORGANIZATIONAL AND PROCEDURAL CHANGES ARE NEEDED It was found that savings can be made by certain procedural and organizational changes within departments, or in the better co-ordination of various departments. This was clearly exempli- fied in the preliminary staff reports on the Bureau of Rivers and Harbors, where, through the helpful co-operation of Commis- [17] sioner of Public Works Hewitt, a program of roving crews was established for certain of the movable bridges. In the Bureau of Streets a proposal was made calling for a reduction in the number of the districts administering street cleaning and gar- bage collection and disposal. The present wide distribution oi building inspection and attendant services among departments is in need of closer co-ordination and modernization of pro- : cedures. It can be seen that administrative problems of this nature require not only intensive work but also co-operative and enthu- : siastic support by department heads before they may be success- 1 fully solved. The results attained to date are attributable to such a co-operative attitude. While co-operation of public officials with the technical work- ers on the survey has been important, no less significant has been! the co-operation of the civic bodies concerned and of those who must make decisions for the City administration. Indeed, the entire study illustrates the economies and advantages of co-or- dinated and co-operative effort. [18] V. APPENDIX: A Sample of the Research Reports* Department of Public Service The Department of Public Service, currently staffed with 65 employees, performs functions related to those of other units of the City and duplicating certain services of the State govern- ment. The Department of Public Service is an investigatory agency originally designed to insure the public against overcharges for services by the several utilities, and to receive complaints regard- ing adequacy of such service. Most of its activities, except routine tests, depend upon public and private inquiries and complaints. Complaints filed with the Department of Public Service have, however, with changed conditions, come to require very little field investigation. 1. RECOMMENDATION: That the Department be abolished and such functions as are continued be transferred to other departments as herein rec- ommended. 2. RECOMMENDATION — Transportation Bureau: (a) Eliminate the following positions: Transportation Schedule Examiner 1 @ $2,700 Senior Transportation Inspector 1 @ 2,580 Transportation Inspector 2 @ $2,400 4,800 Total 4 $10,080 (b) Transfer one position of Transportation Schedule Examiner at $2,700 to Committee on Local Transportation. * As was indicated in the Prefatory Note, this sample of the research reports is presented as illustrative of those prepared by the staff of the Budget Survey Committee on each of the twenty-four city agencies studied during 1940. As also indicated there, copies of the other research reports may be obtained for the cost of mimeographing. [19] The chief function of this unit is to provide traffic checks and analyses of the adequacy of transportation service and to investi- gate complaints emanating from the public. The former function has been taken over entirely by the Committee on Local Trans- portation, pending the creation of the Transit Commission under the pending traction ordinance. The investigation of complaints is negligible. In 1939 only six complaints required field investi- gation. The Transportation Schedule Examiner, recommended for transfer, however, will be able to handle any complaints re- ceived from the public. 3. RECOMMENDATION— Gas Bureau : (a) Eliminate the following positions: Gas Tester 2 @ $2,200 $ 4,440 Gas Meter Tester 2 @ 2,220 4,440 Gas Inspector 2 @ 2,220 4,440 Total 6 $13,320 (b) That one of the two following recommendations concerning gas testing be followed : 1. That the present gas testing laboratories, with the exception of the one in the City Hall, be abandoned as soon as present leases can be terminated. The tests to be made at the gas company's stores under proper safeguard sat- isfactory to the Chief Gas Tester, which will enable him to make proper certification of such tests. 2. That recording calorimeters be installed in City-owned buildings, such as fire houses or ward buildings, for the purpose of handling gas tests. (c) The transfer of the remaining positions of this Bureau to the Bureau of Electricity. The gas laboratories make daily pressure and BTU tests. It was found that tests can be made under proper safeguards at the gas company's stores. The elimination of the field labora- [20] tories will make possible the elimination of all but the Chief Gas Tester and two assistants. It was also found that recording calorimeters could be satisfactorily used for testing gas. The in- stallation of five such units could be made throughout the City in City-owned properties, such as fire houses and ward buildings. During 1939 some 80 complaints and 21 meter tests required field investigation. All other complaints were handled by a Senior Gas Inspector assigned to office detail, assisted at times by various gas inspectors. All large meter tests are at present made by the meter testers at the Peoples Gas Light & Coke Company's testing laboratories. Very little use is made of the City Hall meter testing laboratory. It is also suggested that similar ar- rangements be made whereby all meters be tested at the utilities' laboratories, thus eliminating the need for the gas meter testing laboratory at the City Hall. This would call for the services of only one Senior Gas Inspector to handle office work on com- plaints and three Meter Testers. 4. RECOMMENDATION— Electrical Bureau: (a) Eliminate the following positions: Electrical Supervisor 1 @ $4,000 Electrical Light and Power Inspector 1 @ 2,820 Electrical Light and Power Meter Tester 1 @ 2,640 Total 3 $9,460 (b) That the remaining employees be transferred to the Engineering Division of the Bureau of Elec- tricity. One hundred thirteen complaints required field inspection in 1939 — all others were handled from the office. In addition, ten referee meter tests were made. It is noted that the activities of the five Meter and Power Testers are limited in effect to ten meter tests and one referee test per month. In terms of individ- ual effort this can be interpreted as two meter tests and one-fifth of one referee test per man per month — a light work load. It is therefore recommended that the staff be reduced by the elim- [21] mation above noted, and the activity be transferred and made a section of the Engineering Division of the Bureau of Electricity. 5. RECOMMENDATION— Telephone Bureau: (a) Eliminate the following positions: Telephone Inspectors 4 @ $3,000 $12,000 Investigator 1 @ 2,700 2,700 Investigator 1 @ 2,400 2,400 Total 6 $17,100 (b) Transfer, Assistant Telephone Supervisor and one Inspector retained, to the Bureau of Building Maintenance and Repair. This unit investigates complaints regarding telephone service, pre-audits City telephone bills, takes care of installation, re- moval or change orders for City telephones and prepares the City Hall telephone directory (none has been issued since 1935). Dur- ing 1939 all complaints were handled directly from the office. So far this year (June, 1940) only one complaint has required field investigation. Detailed analysis indicates that an Assistant Tele- phone Supervisor and one Telephone Inspector can provide all necessary services and that other help at present provided for and above noted can be eliminated. 6. RECOMMENDATION— City Hall Switchboard: (a) Eliminate the following positions: Telephone Operator 1 @ $1,620 $ 1,620 Telephone Operator 5 @ 1,740 8,700 Total 6 $10,320 (b) Transfer the operations of the City Hall switch- board to Bureau of Building Maintenance and Re- pairs. There are eight "positions" on the City Hall switchboard. The following rotating five-day schedule is adequate to provide exist- ing services and will remain adequate until a ninth "position" is added to the board: [22] Daily Time Table for Five Days a Week — Rotating 7 A. M. to 3 P. M.- -2 Tel. Operators 8 A. M. to 4 P. M.- -2 Tel. Operators 9 A. M. to 5 P. M.- -6 Tel. Operators 5 P. M. to 12 P. M.- -3 Tel. Operators 12 P. M. to 7 A. M.- -2 Tel. Operators 8 A. M. to 4 P. M.- -1 Asst . Ch. Operator 9 A. M. to 5 P. M.- -1 Asst . Ch. Operator 9 A. M. to 5:30 P. M, — 1 Ch, , Tel. Operator For sick leave , vacation and i relief — 3 telephone op erators. It is to be noted that the proposed schedule requires only four- teen rather than the nineteen Operators currently provided for. With the abolishment of the Department of Public Service, recommendation is made that the operation of the switchboard, together with the Supervisor and one assistant, be transferred to the Division of City Hall of the Bureau of Building Mainte- nance and Repair. 7. RECOMMENDATION— Administration and General Office: (a) Eliminate the following positions: Commissioner of Public Service 1 @ $6,000 $6,000 Assistant Chief Clerk 1 @ 4,500 4,500 Junior Stenographer 3 @ 2,060 6,180 Junior Clerk 1 @ 2,060 2,060 Total 6 $18,740 With the abolishment of the Department of Public Service, the central office will not be required. The above positions are, therefore, recommended for elimination. 8. MISCELLANEOUS: Reduction that might be made in items of expense other than salaries are estimated at $2,000. SUMMARY Number of Positions Amount Decrease in appropriations for salaries 31 $79,020 Decrease for other expense than salaries 2,000 $81,020 586 [23] • $cKE*tj v,.:. .-' -