MUNICIPAL RESEARCH To promote the application of scientific principles to government Issued Monthly by the No. 67 Bureau of Municipal Research Nov., 1915 261 Broadway, New York Entered as Second Class Matter July 30,1913, at the Post Office, at New York, N. Y., under the Act of Congress, August 24,1912 STANDARDIZATION OF PUBLIC EMPLOYMENTS Part I CONTENTS CHAPTER PAGE INTRODUCTION ... iii I—THE OLD ORDER.!. 1 II—FIRST STEP TOWARD CIVIL SERVICE REFORM. 6 III— INEQUALITIES IN OLD EMPLOYMENT METHODS. 12 IV— THE WORK AND PURPOSES OF STANDARDIZATION AGENCIES... 16 V—THE SCIENTIFIC SIDE OF STANDARDIZATION. 20 VI—THE PRACTICAL SIDE OF STANDARDIZATION IN VAR¬ IOUS CITIES. J .... 32 VII—INFLUENCE OF THE STANDARDIZATION MOVEMENT- PRESENT ATTITUDE OF THE COUNTRY TOWARD IT 41 APPENDIX..-1. 44 Subscription, $5.00 per annum. This issue, $1.00 % PUBLICATIONS OF BUREAU OF MUNICIPAL RESEARCH BUDGET Price ., Postpaid Next Steps in Development of a Budget Procedure for tU\ City of New York (January, 1915), 142 p....... SO. 50 “A State Budget,” Constructive Proposals to be Submitted to tre State Con¬ stitutional Convention (February, 1915), 53 p.....25 Budget Systems—A discussion before the New York Constitutional Conven¬ tion (June, 1915), 200 p... 1.00 CITY GOVERNMENT The New City Government (Bru5re), 2nd ed. (1913), 438 p. bound. 1.62 Organized Democracy: An Introduction to a Study of American Politics Cleve¬ land (1913), 479 p. bound.. 2.62 Efficiency in City Government (annals) (1912), 319 p. 1.17 Powers and Duties of the Officers and Boards of the City of Hoboken (1911), 66 p...... .25 Municipal Reform Through Revision of Business Methods (1910), 58 p.10 Digest of Short Ballot Charters (Beard) (1912, rev. to date), 500 p.. 5.00 Legal Rights of Civil Servants, N. Y. City (Oct. 1915). 1.00 Reports Organization and Administration, Atlanta (1912), 64 p. .10 Organization and Administration, Milwaukee (1913), 135 p. . .25 Organization and Administration, St. Louis (1910), 416 p. bound. 1.65 Organization and Functions, Rochester (June, 1915), 104 p.. .20 EDUCATION Outside Co-operation with the Public Schools of Greater New York (1912), 112 p...... . .20 School Stories: Illustrated Guide to School Subjects of Interest (1909), 16 p... .05 Questions Answered by School Reports As They Are (1909), 18 p. .05 Help-Your-Own-School Suggestions (1914), 32 p... .10 Waterbury and St. Paul Help-Your-School Surveys (1913), 32 p.. .10 Digest of New York School Inquiry (1913), 85 p...15 Reports Health and Education, Atlanta (1912), 44 p...10 Health and Education, Syracuse (1912), 12 p..10 Test Cards Classroom Instruction.^ ...10 for 10c.; 50 for 40c; 100 for 75c. FEDERAL GOVERNMENT Administration of the United States Indian Office (September, 1915) 118 p..... 1.00 3 5 1 STANDARDIZATION OF PUBLIC EMPLOYMENTS PART I An Interpretation of the Standardization Movement INTRODUCTION d a & Many years since, the average American became convinced that the country needs specially trained men for military service. Only within the last few years, however, has a thinking majority come to accept with the same degree of finality the conclusion that the country needs well trained men for civil service. In fact, before 1870, this idea was quite foreign to our whole politi¬ cal philosophy. Then many things began to point the lesson: the rapid centralization of population and the consequent in¬ crease in demands by the people for service by the government; the need for new forms of revenue to meet increasing expendi¬ tures; the growing complexity of problems of administration and technique-—these are among the many happenings that serve to explain the new attitude of citizens toward their gov¬ ernment and toward the personnel doing its work. More than anything else, what turned attention to the need for civil service reform was the “spoils system”—the conscious¬ ness that the millions of dollars appropriated each year for per¬ sonal service by federal, state and municipal legislatures were being worse than wasted—the realization that they were being used as a corruption fund with which to influence, if not to buy, votes for designing persons who sought authority in order that they and their friends might divert the resources of government to their own selfish ends or to the upbuilding of an irresponsible partisan organization. Each new generation began to ask itself why it should be a party to the continuation of such a practice. Young men about to become members of political clubs were told by party orators that there were great national principles in STANDARDIZATION OF PUBLIC EMPLOYMENTS to be decided. In practice, however, they found that an election was a contest between organized forces whose controlling heads cared little for principle; that the results of an election deter¬ mined whether their association or some other would be given preference in obtaining access to the public purse; that the end to be attained through election was authority to make appoint¬ ments, to award contracts, to sign vouchers, and to vote away public franchises. Initially, the Jacksonian doctrine “to the victor belong the spoils” w^s accepted without any very clear view of what it all meant. The need for government was little felt except as a matter of military necessity. When, however, the problems of civil government were brought home to citizens their attitude began to change. But a change in the point of view of the indi¬ vidual was one thing. The overthrow of a thoroughly estab¬ lished political system based on organized spoils was another. Our government had made no provision for responsible official leadership. The only means of expressing opinion was through irresponsible parties dominated by an irresponsible “boss” and the “party” from the boss down was built upon spoils, the most general and far-reaching form of which was the distribution of jobs. Appointments to positions in the service were the rewards to the controlled many, while fat contracts and highly valuable franchises were the rewards to the controlling few. The inso¬ lence and indifference felt regarding the morality of such a method of political domination are still evidenced by the enthusiasm with which “regulars” greet the public as they stand by after the polls are closed on election day and sing—“Hail, hail, the gang’s all here! What the hell do we care! What the hell do we care!” The attitude of promoters looking for franchises and of holders of franchise rights is still too often expressed by the trite adage—“The public be damned.” IV CHAPTER I THE OLD ORDER The extent to which the scramble for jobs after elections occu¬ pied the attention of officers, and entered into the personal plans of party adherents is shown by many contemporary accounts. An article by James Parton, entitled “ Uncle Sam’s Treatment of his Servants” in the Atlantic Monthly for December, 1869, very vividly characterizes these untoward conditions which made public office a means of individual and parly exploitation instead of an opportunity for dignified employment and public service. To quote: “ I might dwell upon the waste, the anguish, the indecency, the degradation, of this scramble. I might speak of men coming to Washington with high hopes and full pockets, who begin by living at Willards and treating with champagne, then remove to a less expensive hotel, afterwards to a cheap boarding house, and finally, after subsisting awhile at ‘free lunches,’ borrow money to go home, where they arrive haggard and savage. I might speak of the impossibility of making good appointments in such circumstances; of the much better chance that brazen importunity has at such a time than merit; of the greater likelihood that a noisy eleventh-hour convert will get an office thhn a man who has borne the burden and heat of the day, but has omitted to come to Washington; . . . But all things cannot be said in one short article. The great evil of the system, as it is seen at Washington, is that it compels the chief persons of the government to expend most of their time and strength upon a matter that properly belongs to subordi¬ nates. “ ‘What is it to be president?’ I once asked of a gentle¬ man who had filled the office; ‘What is the principal thing a president does?’ The reply was, ‘ to make appointments.’ ” A similar recital is found in a Washington letter of April 2nd,1869: “Today the hundreds of office seekers now here, flock to the Capitol. At about two o’clock, General Porter made his appearance, and after depositing with the Senate his sealed 1 STANDARDIZATION OF PUBLIC EMPLOYMENTS packages of appointments, he repaired to the Secretary's office and there placed a list of the same for the public. In an instant a grand rush was made for this office, and soon there was scarcely standing room therein. Reporters of the afternoon papers tried in vain to secure copies of the names on the list, but the hungry, anxious and eager crowds rushed in pell mell. It was amusing to see the expressions of the faces of these people after the list had been read. Of course, none of the successful candidates were present, and all were disappointed. The score or more persons seeking the same office sought their Congressman, and each demanded explanations of the why and wherefore. . . . The 8:40 train for New York was packed with the most dejected, pitiful, profane and demoralized crowd of men that ever left the city." The conditions existing in the civil service as a result of this system of organized exploitation are vividly portrayed in the fourth report of the United States Civil Service Commission for the year 1887. This report exposes the waste and abuses of the patronage system. The following picture of departmental mis¬ management traceable directly to the “spoils system" is particu¬ larly illuminating: “The act entitled ‘An act to regulate and improve the civil service of the United States’ has been in force now nearly four years and a half, a part of that time under the administration of one party and a part under that of another. That there has been accomplished in the execution of the law all that its sanguine friends expected is not claimed; but without any degree of inexactness in statement, it may be said that in the results of its execution is shown the wisdom of the principle of divorcing the subordinate offices of the government from politics and elections and making continuance in office dependent not upon party service but upon merit and good behavior. In this respect the law has produced results which are not extravagantly described as surprising. “Before the enactment of the civil service act the condi¬ tion of the executive civil service in the departments at Washington and in the customs and postal services was deplorable. In the Department of the Treasury 3,400 .persons were at one time employed, less that 1,600 of them under authority of law. Of these 3,400 employes, 1,700 were put on and off the rolls at the pleasure of the secretary, who paid them out of funds that had not by law been appropriated for the payment of such employes. At that time, of a force of 958 persons employed in the Bureau of Engraving and Printing, 539, with annual salaries 2 THE OLD ORDER amounting to $390,000 were, upon an investigation of that bureau, found to be superfluous. For years the force in some branches of that bureau had been twice and even three times as great as the work required. In one division there was a sort of platform, built underneath the iron roof, about 7 feet above the floor, to accommodate super¬ fluous employes. In another division 20 messengers were employed to do the work of one. The committee that made this investigation reported that ‘patronage/ what is now known as the ‘spoils system/ was responsible for this con¬ dition, and declared that this system had cost the people millions of dollars in that branch of the service alone. So great was the importunity for place under the old system of appointments that when $1,600 and $1,800 places became vacant the salaries thereof would be allowed to lapse, to accumulate, so that these accumulations might be divided among the applicants for place on whose behalf patronage- mongers were incessant in importunity. In place of one $1,800 clerk three would be employed at $600 each, would be employed, according to the peculiarly expressive language of the patronage-purveyors, ‘on the lapse.’ ‘In one case/ said a person of reliability and of accurate information, testifying before the Senate committee on civil service reform and retrenchment, ‘thirty-five persons were put on the “lapse fund” of the treasurer’s office for eight days at the end of a fiscal year to sop up some money which was in danger of being saved and returned to the treasury.’ Unnecessary employes abounded in every department, in every customs office, and in almost every postoffice. Dis¬ missals were made for no other purpose than to supply with places the proteges of importunate solicitors for spoils. One collector at the port of New York removed on an average one of his employes every third day to make a vacancy to be filled by some member of the same party who had ‘worked to a purpose/ not against the common political enemy but for his patron, who had succeeded in being appointed over some other member of his own party. Another collector at that port, the successor of the one above referred to, removed 830 of his 903 subordinates at the average rate of three in every four days. The successor of this collector removed, within eighteen months, 510 of his 892 subordinates, and his successor made removals at the rate of three every five days. In its first report the com¬ mission said: “ ‘It was the expectation of such spoils which gave each candidate for collector the party strength which se¬ cured his confirmation. Thus, during a period of five years in succession, collectors, all belonging to one party, for the purpose of patronage, made removals at a single office of members of their own party more frequently 3 STANDARDIZATION OF PUBLIC EMPLOYMENTS than at the rate of one every day. In 1,565 secular days 1,678 such removals were made.’ “A condition of affairs as deplorable existed in the postal service. On all sides, in every branch of the civil service, subordinate places were used in the interest of the leaders of the factions of a party, who by assessments, which were disguised in the form of solicitations for money, suggestions that money ought to be contributed, and other methods of this kind, extorted from public employes funds which were used for political purposes, legitimate and otherwise. Even members of Congress of national reputation signed circular letters addressed to subordinate civil servants of the govern¬ ment requesting contributions to be paid to them, as mem¬ bers of a political committee; doing this in utter disregard of the spirit of a provision of the Revised Statutes declaring it to be unlawful, an offense punishable by fine and dismissal from office, for any officer in the public service to solicit or receive money from any other officer in such service! The public conscience had been perverted by the doctrine that to the victors belong the spoils; and the people were not shocked when they beheld public offices bestowed as a reward for partisan services, upon persons at once unworthy and incompetent. Senator Hoar, in his speech on the Belknap impeachment trial, forcefully stated the condition of the public mind at that time when he said: “ ‘I have heard in highest places the shameless doctrine avowed by men grown old in office, that the true way by which power should be gained in this republic is to bribe the people with the offices created for their service, and the true end for which it should be used when gained is the promotion of selfish ambition and the gratification of personal revenge.’ ” It was only through independent effort, through a leadership quite independent of established party organization that citizens were able to thwart the well laid plans of spoilsmen. No oppor¬ tunity was given to attack the system except in election campaigns and these were at stated periods and all the machinery was in the control of the corruptionists. A campaign of education had to be carried on to reach the voter who had nothing to gain and every¬ thing to lose by continuation of the “spoils system.” When citi¬ zens who gained nothing from “the party” came to recognize in the government an agency for good, instead of a necessary evil,—the only agency able to protect their lives and properties, to promote health, comfort and well-being under the changed conditions which required that such service be rendered,— then, a controlling force of public opinion massed itself against the 4 THE OLD ORDER system. Time and again “the organization” was overthrown. The public came to have a new conception of the purpose of taxation and other contributions to the public purse; the aver¬ age citizen came to see that every dollar diverted to selfish and unsocial purposes by corruptionists deprived a great community of the benefit of services which were necessary to the welfare of all. Whether taxpayers or non-taxpayers, an overwhelming majority came to resent organized spoliation, and to lose interest in the old order of things except as a subject of protest and opposition. 5 CHAPTER II FIRST STEP TOWARD CIVIL SERVICE REFORM From this viewpoint, it is easy to see why it was that the first step toward civil service reform was negative in character—i. e., a campaign to prevent something which was bad, an effort to win adherents away from the old notion that civil service positions should be regarded as stock in trade by a lot of political jobbers. The first reaction was against the time honored Jacksonian philosophy which awarded to the successful party the right to put every office holder who belonged to the opposing party out of commission and to completely reorganize the public service with raw recruits, men who accepted positions in the public service with the understanding that they received and would retain their posts as a reward for allegiance to leaders in a campaign for “ spoils.” The first legislation was of a negative character. Beginning back as far as 1850, efforts were made by civil service reformers which looked toward the enactment of laws to take appointments out of the control of the “spoilsman.” This object was partially realized in 1853 when the first regulation restricting the right of appointment was passed. This law removed a limited number of positions from the exercise of irresponsible executive power and to this extent denied to the appointing officer the hitherto uncon¬ tested right to make a “clean sweep.” The campaign of educa¬ tion was continued. In 1871, the President was authorized by Congress to prescribe rules generally for admission to the civil service. This law definitely located responsibility for the determination of the checks or restrictions to be placed on those who were vested with appointing power, but provided no staff means for carrying its measures into effect. Still further progress in the educational process was registered in the civil service act of 1883, which crystallized the reform movement designed to place additional obstacles in the way of the “spoilsman,” and further emphasized the negative aspect of the efforts of the preceding thirty years. 6 FIRST STEP TOWARD CIVIL SERVICE REFORM The civil service act provided a staff to inquire, to advise and report, to prepare rules and regulations for the assistance of the President, to hold examinations, to keep registers and certify applicants. This law also took cognizance of subjects other than appointments, but the chain of events leading to its passage and the history of its operation indicate that it was primarily a remedial measure aimed at two important objects, each essential to more efficient management of public affairs. The first object was to eliminate favoritism or patronage in the making of ap¬ pointments, both by imposing certain minimum entrance re¬ quirements and by protecting civil servants from demands for contributions of money or service to party leaders as a condition precedent to continuance in office. The second object was to safeguard the government by protecting the integrity of the ballot, to prevent the use of official authority or influence to secure public employment for persons in return for political support, by making such action bribery or attempt at bribery. Civil service reform struck a decisive blow against organized efforts to subvert the powers and resources of government to the selfish ends of spoilsmen. The method employed was to take from the executive his control over the appointments and to substitute for this, the control over appointments exercised by a specially created staff agency under the President with power to determine fitness by open competitive examination. A perusal of the early reports of the civil service commissions of the United States, of the State of New York and other political jurisdictions shows that the negative aspect has been paramount in the operation and enforcement of the civil service law. The legislation is clearly a limitation of executive power. The civil service commissions’ reports deal with the enforcement of pro¬ visions against bribery and other abuses, which were so demoral¬ izing or wasteful as to shock an intelligent electorate and com¬ pletely pervert the ends of government. Although in its operation, the law had the effect of making the public service more attractive to men who were capable of performing meritorious service, it did not provide and was not interpreted to furnish the basis for a comprehensive constructive program—one which would look primarily after the welfare of civil servants and the development of that esprit de corps which makes both for indi¬ vidual and group efficiency. By the enactment of federal, state and municipal civil service laws, the old methods of transacting the business of the govern- 7 STANDARDIZATION OF PUBLIC EMPLOYMENTS ment were not radically changed. Even as preventive measures, they were in the nature of first steps. Important posts still remained the object of patronage. Promotion was still controlled by accident or personal preference. Devices for removal or transfer were easily invented. Standards governing the amount, kind or quality of service to be rendered were not formulated. Evasions of the civil service law against political activity were connived at, if not actually encouraged by those in authority. The original tendency to multiply positions in order to keep in¬ tact a political machine continued and the commissions them¬ selves were bi-partisan, recognizing the fact that the administra¬ tion of the civil service regulations had not been taken out of politics. 1 The welfare of an employe after he had obtained an appointment was not considered except as it was involved in measures to prevent his untimely removal. Indeed, the federal law furnished but slight protection to the incumbent of an attractive post, for his removal was not subject to review except where political or religious reasons had been the motive therefor. The working out of employment regulations covering all features of control so as to make the service efficient from the viewpoint of the government and the people, and advan¬ tageous from the viewpoint of the employe was not within the contemplation of the act. Attention was given primarily to preventing officers from using appropriations and appointive power to build up a personal partisan following among their official subordinates. It was distinctly an effort to overthrow a system of patronage which might be employed to thwart public opinion. EFFECT OF THE DEMAND FOR INCREASED EFFICIENCY It is important to keep this fact in mind: that the reform law of 1883 and the acts which followed were enacted primarily for the purpose of protecting the personnel and administration of government from undue or improper influences, and that as such they constituted only a partial achievement. Furthermore, this partial achievement received only half¬ hearted endorsement. While in response to public demand, the dominant parties incorporated the principle in their plat¬ forms, this was done with mental reservations. Being negative in operation, the civil service law for many years has acted chiefly 1 “Civil Service Act, 1883; First Annual Report of the United States Civil Service Commission, 1883-1884.” 8 FIRST STEP TOWARD CIVIL SERVICE REFORM as an unwelcome restraint and check upon officials, without respect to their partisan affiliations. In fact, during the thirty years following the act of 1883, abuses more insidious than the direct influences of the “spoils system/' have at times been at work to defeat the operation of the law. These abuses tended to thrive the more readily because the claims of advocates of the merit system were such as to allay general suspicion and distrust. These abuses were more insidious, too, because civil service com¬ missions, as staff agencies of chief executives, made it still more difficult to enforce responsibility for appointments. These com¬ missions were neither given independence, nor had they the power to develop initiative. Certainly the civil service author¬ ities themselves did little to interpret the negative system of checks into a positive system of constructive regulation afford¬ ing opportunity for civil servants. Citizen agencies, such as the Civil Service Reform Association, were constantly at work promoting legislation, and watching administrators with a view to enlarging the application of the negative principle, and preventing harmful acts. They have done everything in their power to establish the “merit system” through constitutional provisions. Their campaigns have also been effective in the promulgation of laws and regulations to prevent the periodic dismissal of public servants by preventing apppointments to the competitive class without the compliance with required tests. But it was not until the more recent demands for efficiency in the service came to be felt, that public attention was focused on the needs of the service itself and a constructive foundation was laid. This drew at¬ tention to the desirability of developing co-operation within the government and of building up a constituency and a public opinion outside government circles which would support efforts to make the personnel more useful through training and experience. Having built up a wall of legal protection against the patronage jobber, the public began to ask itself this question, “Why cannot we get our public business done as economically as our private business?” The fact that public business was wastefully con¬ ducted, operated as a deterrent when demands were made that the government go into new fields. With the new demands made for increased activities, all the influences which made for the unparalleled development of efficiency in private enterprise began to operate on the government. 9 STANDARDIZATION OF PUBLIC EMPLOYMENTS Labor-saving devices and new methods of office procedure followed in quick succession. During this period, private en¬ terprise everywhere, from the selling of peanuts to the operation of great steel mills, underwent reorganization. Private concerns spending millions experimented with new processes and methods, in order to obtain maximum returns from the personal service and materials used. Staff organizations were developed to promote “scientific management” and “efficiency engineering.” All this made more grotesque the conditions under which men were required to struggle in the public service. Men who were brought into daily touch with governmental agencies saw the crudities, the essential defects, the indifference of the public service. It was this comparison which provoked questions by the average voter as to why those in public office should adhere to such out-of-date and wasteful practices. But even more striking than crudity of method and fundamen¬ tal defects in organization, was the difference in working condi¬ tions surrounding the personnel of government. There was the ever increasing demand upon governmental agencies; new activities were being undertaken and old activities expanded and the concept of government as an agency of broad social service was being applied. This expansion carried with it a cor¬ responding high cost that emphasized the necessity not only of giving to the government employe a chance to make good, but also of insuring those conditions which would secure to the government a greater measure of efficient service. Through the operation of these ideas, citizens came to realize that the public officer could not be expected to get results unless he was pro¬ vided with an effective organization, and that the organization could not be made effective unless the service was made attract¬ ive to persons of ability. Thus the whole subject came to be dealt with on the basis of equity and fair dealing, as well as with a view toward the elimination of waste. The outcome has been that within the last few years special¬ ized staffs have been set at work on the intricate problems of employment and management in the government. Intensive inquiries into working conditions in state and federal govern¬ ment have been undertaken. The causes of inefficiency and mismanagement have been analyzed, and the public is coming to have a consciousness of its own responsibility. As a result, a broad educational campaign has been launched which has for its foundation the assumption that the government 10 FIRST STEP TOWARD CIVIL SERVICE REFORM must provide conditions that will insure the loyal co-operation of every employe—a co-operation which can come only when the government holds out to the civil servant the opportunity for continued advancement and when some means is provided for building up within the service a personnel which will become increasingly efficient and which will be rewarded in proportion to the efficiency acquired through experience. A growing realization of these matters has lead to the recog¬ nition of the necessity for a complete overhauling of the whole system or lack of system of civil employment. A new structure of law, largely in the form of practice regulations, has begun to develop. New concepts of the requirements of a broad con¬ structive reform of the civil service have been formed. These requirements are now conceded to include: the establishment of standard specifications governing employment and rates of pay, the definition of requirements for appointments, promotions, advances in pay, retirements, pensions, etc. and, in general, the marking out of definite and equitable working conditions to be adhered to by the government and the employes with progressive improvement in both. 11 CHAPTER III * INEQUALITIES IN OLD EMPLOYMENT METHODS The influences which led to an awakening of the American conscience have been recited. Also the evolution of laws which originally had for their object the protection of the public and its corporate agent, the government. The inequity, the condi¬ tions which make for discouragement, the lack of opportunity for civil servants and the poorly adapted methods of the old employment system, may be passed in brief review. In the first place, the original civil service reformers, and those who followed them, provided no scientific basis for the fixation of salary rates or employment conditions directly related thereto. In general, the grades established by civil service commissions have been examination grades rather than salary grades. Civil service commissions were not concerned with the amount of salary which should be paid for a certain kind of work. John Smith, performing routine bookkeeping exacting little or no skill or accuracy, might receive $600 per annum; another clerk per¬ forming similar work might receive $2,400. Such irregularities are to be seen in the service of practically every state and city in this country. Toward their elimination the civil service com¬ missions have done little. In a few cases in which definite salary rates were originally established, as, for example, in the lower grades of the clerical groups, the salary limits were fixed at con¬ venient points—about $180 apart, but no definite rules were established governing the work to be performed in each grade, and hence no salary control resulted. The fixation of salary rates was the subject which the early civil service commissions seemed to feel was almost exclusively a question for the appropriating body to decide. The appropriat¬ ing bodies in turn were governed by many policies, and more often by expediency in making their decisions. In the haste and pressure of budget making, without an adequate staff to formulate general principles or to furnish accurate information concerning the work program of the various offices or the work 12 INEQUALITIES IN OLD EMPLOYMENT METHODS requirements of the individual positions, such bodies generally reached conclusions as unjust to civil servants as they were to taxpayers. The urgent need for greater certainty in the governing prin¬ ciples, and a finer regard for equity in dealing with questions of employment has been appreciated by everyone who has been at work on the employment problem. Most significant are the preliminary reports of the committees which undertook the stand¬ ardization of employment conditions for the governments of New York City and New York State. The following excerpt from the report of the “Committee on Standardization of Salaries and Grades” of the board of estimate and apportionment of New York City, under date of December 26, 1913, is particularly illuminating: “It was common knowledge among the members of the board of estimate and the department heads that there were glaring inequalities in the salaries paid individual em¬ ployes doing work of substantially the same value in the city. These inequalities were known to exist not only as between various city departments, but also within the de¬ partments themselves. Their prevalence was chiefly attrib¬ utable to the fact that through the history of the city political influence had been the dominant factor in deter¬ mining appointments, increases and promotions. “The same influences which had brought about inequali¬ ties in salaries had also permeated the civil service in even a more serious way. Constant pressure upon public officers for a long period of years to give positions to political de¬ pendents had developed a controlling motive in governmental affairs. This motive was not to do work with as few em¬ ployes as possible, but to create and fill as many positions as the board of estimate and the board of aldermen could be persuaded to establish.” The following excerpt from a report of the senate committee on civil service of the State of New York—a committee created primarily to standardize conditions of employment—to the senate under date of April 19, 1915, is even more significant: “In the history of the state government there has never been—and there is not at the present time—an exact or logical basis for fixing salary rates or titles of positions. Standards of compensation for specified kinds of work as a basis for making salary appropriations are unknown. Fur¬ thermore, positions are created for the most part without any definition of the work requirements or any real under¬ standing of the work or needs to be served thereby. Civil 13 2 STANDARDIZATION OF PUBLIC EMPLOYMENTS service employments are, from the viewpoint of salary stand¬ ards and related work conditions in a chaotic state. The titles of civil service positions are misleading. Similar titles are applied to positions entirely different in character; dif¬ ferent titles are attached to similar positions. The greatest disparity in compensation exists with respect to work of the same character or grade. Efficient service of a high grade, in a very large number of instances, receives but a low (and inadequate) rate of compensation; service of a low grade in an equally large number of cases receives a large (and exces¬ sive) rate of compensation. In other words, compensation bears little reference to the service rendered. In addition, the problem of superannuation has been given little or no thought.” The prevalence of injustice arising from such irregularities and inequalities of employment conditions—which permeated the entire system of civil service control—deadened the spirit and loyalty of the individual employes and impaired their effi¬ ciency. The general looseness in practice with respect to the creation of positions and the fixing of salary rates and other related work conditions were responsible for wasteful expenditures greatly in excess of the amount of overpayment in salary. This was true because the individual employes represented the machinery of government and to the extent that they were inefficient, disloyal or indifferent the processes of the entire machine were retarded or misdirected. A striking characterization of the extent to which looseness in employment regulations made for looseness and waste in all the activities of government is contained in the report of the senate committee on civil service referred to above: “This lack of uniformity with respect to compensation and lack of exact definition of duty have in themselves led to injustice and waste. Overlapping of jurisdiction of em¬ ployes within an office has resulted in wholly unnecessary duplication of work. Confusion in office and field practice, inconsistencies and lost motion are found in every di¬ vision of service. Furthermore, these irregularities which in themselves represent waste, bear close relation to even more wasteful conditions. For they indicate a general laxity and looseness of administration which have multiplied em¬ ployments wholly without reference to the service needs.” The abuses and conditions as characterized above developed from causes for which the civil service commission as an admin¬ istrative agency was in but small part responsible. The civil 14 INEQUALITIES IN OLD EMPLOYMENT METHODS service commission, however, had been indifferent to its oppor¬ tunity. In some cities and states this administrative agency had been completely dominated by political interests which resulted in injustice and abuse. This contributed in no small part to the urgent need for reform. For example, the civil service commission is directed to classify the service. And yet the titles of employments in most cities are misleading rather than informing. Municipal functions and activities have expanded and simple functions once properly performed by employes under old titles have become so complex that the old title fails entirely to differentiate the importance of the employe’s responsibility. To cite an illustration of the indifference of the civil service commission to this important function:—the commission of a large city of the State of New York neglected for several years to revise a classification which was wholly obsolete and inadequate during that period, admit¬ ting the need for change but excusing itself on the ground that conditions were so bad that nothing short of a complete over¬ hauling should be undertaken and the commission did not have the time nor the equipment with which to make such an inten¬ sive study. Again, the civil service commissions have, for the most part, been charged with the regulation and control of promotions and in respect thereto have been directed or empowered to estab¬ lish efficiency records which would accurately determine and record the relative efficiency of individual employes engaged in related work. From the viewpoint of the manager, it is almost essential in the apportionment of tasks and the working out of rewards for efficient service as well as of penalties for inefficiency, that means be provided for determining who are incompetent and inefficient and stand in the way of getting the best re¬ sults obtainable for a given expenditure of money. From the viewpoint of the personnel it is equally essential that each employe should be furnished with a reviewable record of his con¬ duct as an assurance against encroachments upon, or indifference to, his interest by the manager. And yet, in many cities, there has been little or no effort made to install or maintain these devices as a part of the system of civil service control. 15 CHAPTER IV THE WORK AND PURPOSES OF STANDARDIZATION AGENCIES In order to obtain the necessary information, and to furnish grounds for recommendations for final action consistent with an intelligent handling of the subject, special staffs have been organized in several American cities, notably in New York, Chicago, Milwaukee, Pittsburgh, and Los Angeles, and in the State of New York and the Federal Government. The history of accomplishments in each of these cities will be traced in the chapters of Part II. The work and purposes of these agencies are worthy of brief review from two aspects, namely, the scientific or academic and the practical. The scientific relates to the methods of research and classification used to formulate basic principles and standards; the practical relates to the method of applying these principles, the machinery used and the results ob¬ tained. The former represents a series of research experiments extending over the last ten years in order to determine and present sound principles and standards of classification and appraisal. The latter represents the attempts to apply these standards in the making of appraisals and to use information developed in rela¬ tion thereto for other purposes, in order to improve existing conditions. In characterizing the standardization work throughout the country in its dual aspect, it may be said that the methods of classification and technical processes which have evolved from the experiments represent not only a sincere effort, but also a real contribution to public research. It may further be said that the plans and procedure which have been evolved represent, in some respects, a more advanced system of employment control than obtains in private practice. Attempts to apply this system, however, by way of making readjustments of existing salary rates and conditions of employ¬ ment have marked the introduction of new uses of standardiza¬ tion material, and a new factor in municipal management. 16 WORK AND PURPOSES OF STANDARDIZATION AGENCIES While the intensive work on this problem has been carried on almost simultaneously at a number of places, scarcely more than a beginning has been made and experience shows that there is grave danger that the whole movement will be misunderstood because of the use made of the information for purposes other than standardization proper. It has been this alleged perver¬ sion of the information developed that has caused civil servants to feel that greater protection is afforded by the organizations through which existing inequities have been produced than by co-operation with those who are seeking to “ standardize.” This has arisen from a somewhat natural extension of the work of “standardization” to include certain tasks of “budget mak¬ ing” on the one hand and tasks of “administration” on the other. This subject will be discussed in a subsequent chapter. Summary Statement of Objects of Standardization The standardization movement has as its primary objects the following: 1. The establishment of a basis for fixing salary rates in relation to work values. 2. The establishment of standard factors of education or experience for each class and grade of employment prescribing conditions which must be met by persons preliminary to appointment. 3. The establishment of standard titles and work require¬ ments for each class and grade of employment prescrib¬ ing conditions which must be met or conformed to after appointment. 4. T he establishment of standards to govern promotions, transfers and other subjects of employment control. 5. The establishment of a formal procedure which shall currently inform the public and the official organiza¬ tion of conditions governing entrance to the public service and advancement therein. Up to the present time, the salaries of government employes have, for the most part, been determined with little reference to the market value of the work performed. It is a matter of current knowledge that, in a large number of cases, salaries are fixed by accident, expediency or political preference. Increases in salary have been irregular, uncertain and too often without regard to the relative merits of the employes. The standardization of public employments is based on the principle that payment for personal service shall be regulated 17 STANDARDIZATION OF PUBLIC EMPLOYMENTS according to the value of such service to the government. It provides for a definite classification according to the kind and quality of work performed. This classification includes specifica- tions which will accurately differentiate one grade of work from another and enable administrative officials to grade compensation according to the actual division of responsibility in the office affected. The standardization program includes also the establishment of standard titles, work requirements, qualifications, etc. as a basis for effective civil service control. In short, it is designed to vitalize civil service administration by formulating regulations to govern civil service entrance examinations, promotional examinations and other subjects of employment control which are essentially civil service problems. The standardization program provides a definite solution for these civil service problems by formulating: (a) A comprehensive classification of positions which will not only relate title to work and compensation but also set forth definitely the policy with respect to ex¬ emption and non-exemption from competition. (b) A code of standard qualifications and regulations, with respect to entrance to the public service, which may be followed in advertising and conducting examinations. (c) A code of regulations and standard qualifications to be observed in making promotions and transfers and keep¬ ing individual efficiency records. Civil service work up to the present time has assisted and benefited employes only through the adoption of protective and preventive measures. Little has been done of a positive nature to assure to each employe a career in public service proportionate to his ability. This development should be the result of salary standardization work. When standards are adopted and published, they furnish to present and prospective employes information as to the conditions of employment in the public service and give assurance that, if properly administered, unequal conditions of appointment and promotion will be abolished. Standards furnish a program to be followed in establishing and enforcing entrance and promotional regulations. They establish definite lines of promotion and provide proper regulations govern¬ ing increases. They provide rewards for individual efficiency and seniority of service, at the same time affording adequate 18 WORK AND PURPOSES OF STANDARDIZATION AGENCIES protection to the community. They make possible the opening up of promotional examinations to a larger number, by grouping those positions which are similar in work requirements. They encourage the establishment of service schools or such other provision as the government may make for the purpose of giving adequate training for public service. Standards make conditions of employments more certain and attractive, they make the employes contented and insure their co-operation and loyalty and attract to the public service a more highly trained and competent class of persons. 19 CHAPTER V THE SCIENTIFIC SIDE OF STANDARDIZATION The first steps taken to classify public employments and the attempts made thereunder to bring about uniformity of practice were disconnected and fragmentary and touched upon but few phases of employment control. Little was accomplished in regard to the scientific classification of the civil service during the twenty or twenty-five years which preceded the organized efforts in several communities to work out a comprehensive and scientific scheme of standards. Establishment of Legal Classes The United States civil service act of 1883 and laws supple¬ mentary thereto, segregated the civil service into legal divisions known as the “Unclassified,” the “Classified” and the “Labor” services. The unclassified division represented that group of employments which were subject, for the most part, to the con¬ current appointive power of the President and the Senate and not subject to the principle of competitive examinations. The sec¬ ond, the classified service, represented that group of employments to which competitive examinations did apply, and was subject to certain exemptions known as exempt positions. The labor serv¬ ice represented that group of positions covering work of a manual and unskilled nature to which the unit principle applied, and was subject to registration rather than examination. By action of legislative bodies a similar legal classification has been provided in most of the states and cities where civil service con¬ trol has been installed. For example, the broad division of classified and unclassified service exists in the State (and hence in the cities) of New York. The classified service is generally divided into four divisions as follows: A. Exempt class B. Competitive class C. Non-competitive class D. Labor class 20 THE SCIENTIFIC SIDE OF STANDARDIZATION The two broad divisions, classified and unclassified, indicate the limits within which civil service control should operate, and the sub-divisions of the so called classified service indicate the lines along which the civil service commission may make fur¬ ther refinements for the purpose of prescribing and conducting examinations. While the establishment of these legal divisions imposed cer¬ tain restrictions upon the employment of persons and thereby prevented certain abuses which had formerly obtained, the dis¬ tinctive units of the several classes of employment were not recognized and no exact basis was furnished for the extension and multiplication of civil service practice in keeping with new ideas, and methods of administration. Subject to the arbitrary division superimposed, the civil serv¬ ice commission was empowered to establish titles descriptive of employment. The titles first adopted were for the most part descriptive of classes of employment. In the early civil service classifications of the United States government and of the State of New York appeared such titles as “ Clerk,” “ Engineer,’’ “Artisan” and “Laborer.” These general titles all obtained, for the most part, with respect to positions for which examinations should be held and were intended to furnish or suggest work requirements and qualifications of the persons filling such posi¬ tions. In other words, they were suggestive of the scope and content of civil service entrance examinations. For the positions, not statutory in character, for which examinations were not con¬ ducted, or in other words, for those positions in the competitive group which were exempted from examination, specialized titles were used to identify positions of a so-called confidential character. Employment control in its broader aspects was not included in the plans of the civil service reformers of the early days, but the usefulness of specialized titles, for the purpose of indicating concretely the requirements of the various offices and employ¬ ments, became obvious and a multiplication of specialized titles followed. In later classifications, the broad divisions of employ¬ ment such as clerical, engineer, artisan, etc., were broken up into groups representing what purported to be distinct lines 1 of 1 Fourth Annual Report U. S. Civil Service Commission, 1887-1888, Ap¬ pendix, Table No. 4—“Appointments, etc.,” Pages 596 to 677 inclusive; see also other early U. S. and New York State Civil Service Commission Re¬ ports. 21 STANDARDIZATION OF PUBLIC EMPLOYMENTS work within such classes of employment and hence we find such titles as the following: Assistant Pension Examiner Principal Pension Examiner Special Pension Examiner Medical Examiner Physician Patent Examiner’s Clerk Proof-reader Reviser Copyist of Topographical Drawings Copyist of Mechanical Drawings Mechanical Engineer Topographer It is true that the introduction of specialized titles was intended to unstandardize conditions of employment as much as to stand¬ ardize, for fictitious titles were set up almost ad infinitum as a basis for fictitious salary rates. But the basic idea in the specialization of titles furnished, in theory, an instrument of greater control than obtained under the earlier method of classi¬ fication. As the constructive side of civil service received recognition the need was felt for a means of enforcing uniformity of prac¬ tice with respect to the appointment, advancement and control of civil servants. The establishment of standards which the executive would be compelled to apply was the remedy for this condition. The need was also felt for greater freedom of action in matters of employment control. In other words, the neces¬ sity was apparent for provisions which would standardize conditions and at the same time make for less rigidity in em¬ ployment control. The policy developed, as a result of the recognition of these factors, calls for the establishment by legislative or finance-controlling bodies of basic standards with respect to conditions of employment. The efforts to evolve such a body of standards, as devices of control over the executive, are the important historical events of the last decade which might be regarded as the era of standardization. During the first five years of this period the basic standards took the form of so-called specifications of the titles, work requirements, qualifications and compensation of the distinctive classes of employments. During the second five years of this period the basic standards took the form of specifications of the titles, work requirements, qualifications and 22 THE SCIENTIFIC SIDE OF STANDARDIZATION compensation of the distinctive lines of work , thus using a much narrower unit of classification in prescribing the governing rules. Specification Based upon Requirements of Class of Employment The introduction of a specification, setting forth the service under titles descriptive of classes of employment and setting up specifications of duties, qualifications of incumbents, salary rates and basis of advancement and salary increases, represents the first organized effort to standardize conditions of employment. This was the first contribution to the standardization program. Under this plan, the entire civil service of Chicago composed of more than 30,000 employes, was grouped under ten divisions, called services, as follows: Medical Engineering Clerical Library Inspection Fire Police Operating Engineer Supervising Labor Each service represents the basic unit of classification and is divided into a number of grades according to the natural grada¬ tion of work requirements and responsibility. Each grade, in other words, represents a prescribed standard of work with a se¬ ries of salary rates, the minimum and maximum of which are the limits of compensation for such work. The type of classification and specification used by Chicago is shown in Exhibit 4 (page 117). Distinctive Feature oj Chicago Classification The distinctive feature of this classification is the use of the class of employment as a basis of grouping. Thus, for example, in the clerical service are included clerks of all kinds such as book¬ keepers, recorders, examiners, etc. The City of Milwaukee, which organized a special staff to standardize employments in 1912 and devoted the greater part of that year to a standardization inquiry, applied the principle formulated by Chicago. The plan, however, was not put into operation in full. Other western cities have experimented in standardization work along the lines laid down by Chicago. 23 STANDARDIZATION OF PUBLIC EMPLOYMENTS Specifications Based upon Requirements of Line of Work New York City, by action of its financial body, the board of estimate and apportionment, under date of Oct. 31, 1910, began the standardization of its employments. A special staff re¬ porting to the board of estimate and apportionment was pro¬ vided. Preliminary observations were made in the year 1912. The intensive investigation, however, was postponed until the following year. The conduct of this investigation and its pres¬ ent status are made the subject of a subsequent chapter. The initial work of the New York City investigation was based upon the methods used by Chicago. The development of the study however, led to a reconsideration of the basic plan of in¬ vestigation. The following outline indicates the scope of the preliminary study which was conducted for the purpose of de¬ termining the proper plan of classification and specification. 1. Systems of civil service classification used in the large and representative American cities were obtained and studied. 2. The general character of the civil service of New York City was studied; this study was made on the basis of:— General classification used by the civil service com¬ mission Distribution of positions shown in the annual budget Conditions of organization and distribution of per¬ sonnel as shown in the charter and supporting, material prepared by the standardization com¬ mittee. 3. A code of regulations, grouping and classifying positions was prepared as a basis for discussion with persons qualified to criticise and suggest. 4. The general character of employment practice in certain large industrial concerns was reviewed on the basis of information already collected. A similar study of public employments was begun in the city of Pittsburgh, largely through the effect of the inauguration of the New York City study. Representatives of the Bureau of Municipal Research, which had acted in an advisory capacity on the New York City work, supervised the major part of the Pittsburgh investigation. As the preliminary study was con¬ ducted in New York at the same time, the results of the observa¬ tions in each city were brought to the attention of and considered by both cities. As a result of these observations an agreement 24 THE SCIENTIFIC SIDE OF STANDARDIZATION was reached between the committee of New York City, at that time under the direction of George F. Tirrell, now director of the bureau of standards, and the standardization commit¬ tee of Pittsburgh. Both committees agreed that a classification to be of any value in fixing compensations of employes or regulat¬ ing and determining the condition of appointment, promotion, transfer, etc., must recognize the following distinctive require¬ ments for each position or group of positions. Distinctive requirements of training and experience as a basis for entrance into the civil service and the experience of the civil service commission in attracting fit applicants. Distinctive requirements as a basis for promotion, trans¬ fer, etc., after appointment. Distinctive market values or standards of compensation governing the class of work. Investigation demonstrated that the line of work embracing those primary elements, which distinguished one calling from another, was the largest unit which could be used for specifying these distinctive conditions. To have used a broad class of positions would have simplified the classification materially. It was concluded, however, that specifications covering the vari¬ ety of work embraced in a class would be so general in character as to make a classification worthless except for statistical or in¬ formational purposes. Experimental appraisals were conducted for the purpose of determining the relative merits of the two methods of classifica¬ tion. It was found that when the specification covered a group of positions in general terms, the appraisal consisted of an opin¬ ion of uncertain and unsupported character. On the other hand it was shown that where the specification included the require¬ ments of but a single line of work, the comparative experience, public and private, would furnish standards sufficiently definite and concrete to support an exact appraisal. Differences between Chicago and New York Classifications The difference in the refinement of classification between Chicago, representing one school, and New York City and Pitts¬ burgh representing another, is indicated in the relative number of groups used in these cities—each group representing the basic unit of classification and appraisal. 25 STANDARDIZATION OF PUBLIC EMPLOYMENTS OUTLINE OF GROUPS The term “Group” being the symbol used to identify the basic unit of classification and appraisal Chicago Pittsburgh New York City Group (“Service”) Est. Ns.. Distinctive Titles Group (“Group” & “Sub-Group”) Est. No. Distinctive Titles Group (“Group”) Est. No. Distinctive Titles Medical 56 Medical Bacteriologist 3 Physician 12 Chemist & Physi- cist 5 Nurse 4 Dentist 3 Research 7 Dietitian 3 Nurse 10 Pathologist 3 Pharmacist 3 Physician 24 Veterinarian 2 Apprentice Pharma- cist 11 Pupil Nurse 1 Engineering 87 Engineering 22 Engineer 26 Professional & Sci- Draftsman 3 entific Assts. 4 Instrumentman 2 Laboratory Assts. 14 Clerical 76 Clerk 13 Bookkeeper 3 Library 13 Stenographic & Cashier 5 Typing 5 Clerk 11 Messenger 2 Dept. Librarian 3 Bookkeeper 3 Interpreter 2 Secretarial 1 Messenger 3 Library (Service) 9 Private Secretary 3 Purchasing Agent 5 Stenographer 9 Telephone Operator 1 Typist 4 Title Examiner 3 Inspection 98 Health & Sanita- Inspector of Bldgs. 23 tion 13 Health Inspector 7 Regulation of Pub- Insp. of Licenses 3 lie Service 10 Insp. of Public Wks. 11 Construction & Re- Insp. Wgts. & pair 7 Measures 3 Delivery & Sup- Miscellaneous plies 2 Inspector 3 Insp. of Combusti- bles & Blasting 5 Insp. of Electricity & Lighting 5 Insp. of Repairs & Supplies 9 26 THE SCIENTIFIC SIDE OF STANDARDIZATION OUTLINE OF GROUPS —Continued Chicago Pittsburgh New York City Group ("Service”) Est. No. Distinctive Titles Group ("Group” & "Sub-Group”) Est. No. Distinctive Titles Group ("Group”) Est. No. Distinctive Titles Police 11 Police (Service) Inspector * Captain * Lieutenant * Sergeant * Patrolman * Recruit * Fire 16 Fire (Service) Fire (Service) * Operating Operating Engineer 5 Stationary Engine- 7 Engineer- man ing 25 Marine Engineman 5 Supervising 64 Executive 2 Executive Council Managerial 3 Commissioner 2 Deputy Commis- sioner 1 Executive Secy. 1 Member, Board of Estimate & Ap- portionment * Legislative (Service) * Skilled Labor 216 Special Labor 13 Bookbinder 1 Builder 9 Diver 3 Electrical Worker 5 Fire Telegraph Dispatcher 3 Leather Worker 2 Marine Officer 6 Mechanic 12 Metal Worker 13 Motor Driver 5 Painter 6 Photographer 1 Plumber and Pipe- fitter 3 Printer 3 Rockworker 1 Upholsterer 2 Woodworker 10 Labor 13 General Labor 1 Cleaner * Supervising Labor 5 Elevatorman * Park Worker ♦ Supervisor of Labor * Unskilled Laborer * Misc. Laborer * * Specifications incomplete. 27 STANDARDIZATION OF PUBLIC EMPLOYMENTS OUTLINE OF GROUPS —Continued Chicago Pittsburgh New York City Group (“Service”) Est. No. Distinctive Titles Group (“Group” & “Sub-Group”) Est. No. Distinctive Titles Group (“Group”) Est. No. Distinctive Titles Tax Assessor 1 Civil Service Exam- Gov’t Efficiency 1 iner 9 C. S. Investigator 2 Claim Investigator 2 Fire Investigator 4 Deputy Tax Com’r 8 Municipal Ex’m’r 5 Misc. Investigator 4 Religious, Educa- tional & Social Welfare 3 Probation Officer 4 Attendance Officer 4 Social Investigator 4 Industrial Instr. 4 Recreation Instr. 10 Miscellaneous 1 Instructor 1 Chaplain 1 Exempt Legal 3 Lawyer 6 Judge or Justice * Law Clerk 4 Accountant 5 Accountant 4 Statistical 2 Statistician 3 Computer 2 Technical & Artisan 11 Artisan 3 Guardian & Attend- Culinary Worker 7 ant 9 Helper 7 Hospital Attdt. & Orderly 3 Institutional Clk. 2 Institutional Super- visor 8 Laundryman 2 Prison Keeper 8 Bridge Tender 2 Caretaker 13 Court & Legislative Attdt. 3 Dock Master 2 Miscellaneous Insti- tutional Worker 2 Misc. Custodian 1 28 THE SCIENTIFIC SIDE OF STANDARDIZATION OUTLINE OF GROUPS —Concluded Chicago Pittsburgh New York City Group (“Service”) Est. No. Distinctive Titles Group (“Group” & “Sub-Group”) Est. No. Distinctive Titles Group (“Group”) Est. No. Distinctive Titles Storekeeper 2 Storekeeper 4 Watchman 4 Watchman 1 Animal Keeper 2 Animal Keeper 6 Recruit 1 Street Cleaner 8 Refuse Collector 12 Motor Refuse Col- lector 4 Refuse Disposer 6 Supervisor 16 Architect 6 Forester & Ento- mologist 2 Arborculturist 1 Mscl. Sub-profes- sional Worker 1 3 29 STANDARDIZATION OF PUBLIC EMPLOYMENTS Outline of Program of Investigation The methods used in standardization work in the several cities are recited in subsequent chapters of this volume. The earliest investigations followed lines which were largely experimental, as the problem was novel in many respects. Later investigators profited by the experience of the pioneers, discarding unsound methods and evolving more advanced and scientific schemes of classification. The use of personal service cards as a basis for obtaining infor¬ mation and as a method of current revision, the use of functional organization charts to reflect the distribution of functions and personnel and relationships between organization units, the de¬ velopment of simple methods of controlling and co-ordinating field studies with which to secure a broader foundation for the in¬ terpretation of materials, the examination of large industrial, financial and other corporations in order to obtain information as to private practice, the value of departmental conferences and interviews and the methods of appraisal are the principal features of the program developed. The most distinctive feature of the standardization program is that which relates to the development of the classification, including the preparation of scientific specifications and defini¬ tions—and the making of appraisals. The following is an outline of the specialized procedure which in one form or another has been observed in formulating a scheme of classification and apply¬ ing it by making appraisals. Outline of Procedure for Classification and Appraisal 1. Preparation of plan of classification. (a) Study of representative classifications of states, counties and cities. (b) Study of service under investigation on the basis of descriptive material available, such as: Civil service classification of employments, de¬ scriptive and critical data on organization and personnel published by investigative or depart¬ mental agencies. (c) Preparation of tentative classification groupings as a basis for discussion. (d) Preliminary study of private practice in local com¬ munity. 30 THE SCIENTIFIC SIDE OF STANDARDIZATION 2. Grouping end grading of positions according to such plan. (a) Collection of descriptive data concerning each posi¬ tion. (b) Preparation of charts, outlines, etc. of organization showing distribution of functions and employes and inter-bureau relationships. (c) Intensive study of employment conditions in private practice. (d) Grouping of employes according to service by con¬ sulting work sheets, charts, and other materials available. (e) Grouping of employes according to appropriate com¬ pensation, grade and rate. 3. Preparation of tentative classification and report on appraisals, with recommendations. 4. Preparation of final report or classification and reporting on appraisals, with recommendations. 5. Preparation of report on civil service administration so as to co-ordinate its work with standardization scheme. Relation of Specifications to Executive Enforcement of Regulations It should be noted that the so-called specifications of the standards of personal service represent the basic or minimum requirements imposed by the legislative or finance-controlling body upon the executive to insure uniform enforcement of advanced principles of civil service control. It will devolve- upon the civil service commission to revise its rules and regu¬ lations so as to apply the new standards. It may be said that the new standards contemplate a complete reorganization of the methods and practices of civil service commissions in every department of their activity. 31 CHAPTER VI REVIEW OF THE PRACTICAL SIDE OF STANDARDI¬ ZATION; THE APPLICATION OF STANDARDS The city of Chicago may be said to be the pioneer in the standardization of public employments and rates of pay. The movement was inaugurated March 5, 1909, when the city council authorized the establishment of an efficiency commis¬ sion consisting of the then president of the civil service com¬ mission, chairman, members of the city council, heads of departments, and citizens. Experience of Chicago The Chicago standardization study was inaugurated after a period of general agitation for better city government and a number of research studies which, although they covered only a part of the field, had made startling revelations as to the condition of the city’s affairs. It came as the immediate result of the difficulties encountered by the finance committee of the city council in apportioning funds and providing adequate salaries for officers and employes, and the obstacles and difficulties encoun¬ tered by the civil service commission in formulating and conduct¬ ing examinations and determining lines of promotion. The purpose and functions of this commission as set forth in the governing resolution were as follows: “to adjust all controversies as to salary and civil service grades, to fix the same in all cases in which they have not been properly determined, to recommend uniform salaries as to the value of grades, to classify the inspection service of the city and to recommend the compensation of each class, and to make such other recommendations as its investigation may prompt looking to greater municipal efficiency.’ ’ The commission constituted a directing board of investigators, the work being outlined and supervised by the chairman, who was immediately in charge of a staff of experts employed for that 32 THE PRACTICAL SIDE OF STANDARDIZATION purpose. The preliminary work incidental to formulating a basis of standardization and taking the first steps toward its application consumed the greater part of two years. The standards were officially adopted by unanimous action of the city council under date of July 15, 1912. The adoption of the standards contemplated the gradual readjustment of conditions in the service to conform to the standards set up. The efficiency commission was superseded in 1913 by the efficiency division of the civil service commission. Relation of the Standardization Agency to Other Agencies It is important to note the relation which has existed between the efficiency division of the civil service commission and the responsible administrative officials of Chicago on the one hand, and the relation of this division and the fiscal agencies of the city on the other. It will be observed that the resolution creating the efficiency commission empowered it not only to reclassify the service as a basis for equalizing rates of pay, but also to make “such other recommendations as its investigation may prompt looking to greater municipal efficiency.” Under this authority, general re¬ organization studies proceeded hand in hand with standardization studies, and proposals, initiated by the commission with respect to both, were received and acted upon by the finance controlling body at the budgetary periods. It may be said that Chicago confused and intended to confuse the problems of standardization with the problems of “administration” on the one hand and “budget making”on the other. There is considerable justification for the procedure followed by Chicago in its standardization program. The departments were without information with respect to conditions of employ¬ ment and did not have equipment with which to develop it. They were either out of sympathy with or uninformed regarding the plans to standardize public employments and to work out more efficient forms of organization and procedure. In other words, the official organization was in large part incapable and unwilling. Such conditions were largely instrumental in con¬ ferring such wide powers upon the standardization agency. It was important that information as to existing irregularities in conditions of employment organization and procedure be developed as soon as possible and constructive proposals formu¬ lated on the basis thereof. The conditions existing in the 33 STANDARDIZATION OF PUBLIC EMPLOYMENTS departments did not make for action with respect to impor¬ tant phases of any of these problems. This explains the develop¬ ment of an independent agency outside the departments to develop information as to departmental conditions and interpret such conditions in the form of proposals for change, as a basis for budgetary guidance. Results of Standardization in Chicago The savings which have resulted to the city of Chicago through the standardization of its employments are difficult to measure. The following is a comparative statement of the average salaries paid in the several functional divisions of the service for the five year period 1911-1915 inclusive: Class 1911 1912 1913 1914 1915 Medical.. $974 $974 $1003 $1025 $1017 Engineering. 1802 1796 1843 1770 1840 Clerical. 1216 1223 1222 1208 1184 Library. 678 888 949 909 906 Inspection. 1334 1433 1401 1426 1406 Supervising. 1354 1408 1383 1268 1297 This indicates that in certain important branches of the service there has been a marked reduction in the average salary rates, a reduction which has been effected in spite of the increases in the market value of such employments, the increased cost of living, etc., during that period. The most important benefit, however, is the indirect saving which accrues through the establishment of uniform conditions of employment which equalize opportunities and make the service attractive to the personnel. This has led to an esprit de corps which has been translated into higher individual and group efficiency. The commission claims that it is difficult to estimate the extent of saving which has accrued through the larger output of the individual employe, traceable directly to this influence. Experience of Pittsburgh in Applying Standards In Pittsburgh, likewise a central agency was created, a de facto committee on standardization composed of the finance depart¬ ment and the mayor’s department, to study conditions and make specific proposals as to individual increases and reductions, as well as to present a program which would make for an efficient and equitable administration of civil service. This study fol¬ lowed intensive studies into departmental organization and pro- 34 THE PRACTICAL SIDE OF STANDARDIZATION cedure by the Bureau of Municipal Research, which was employed by the city council in Pittsburgh. As a result of this study a large body of fact and expert opinion was developed with respect to organization. It was this background that enabled the small staff provided for standardization to complete its work within the allotted time and submit its proposals in concrete form. The program of investigation contemplated the fullest co-op¬ eration on the part of departments. Furthermore, an effort was made to induce certain departments to initiate proposals. It was found that some were unwilling to co-operate, despite the conditions existing. In many of the cases where proposals were initiated by officials, it was discovered that the information upon which the proposals were based was fragmentary and misleading. The standardization committee, therefore, undertook to ap¬ praise each position of the city government individually on the basis of the information secured and to present in concrete form recommendations as to reductions and increases. In mak¬ ing its recommendations, the committee realized that it was running contrary in many instances to expressed opinions of heads of departments who were responsible in large part for administrative results. Many concessions were made to the departments by leaving positions, obviously overpaid, at existing rates because of peculiar claims of consideration due to long or efficient service on the part of the incumbents. But it was realized that unless arbitrary action was taken, such arbitrary action being based upon an array of facts which could not be refuted, and unless recommendations were made to the finance controlling body which would lead to an immediate readjustment of individual rates, nothing of a substantial nature would be done to improve the conditions. In other words, the official organiza¬ tions charged with administration were not equipped or inclined to take the necessary steps looking toward an improved condition of the personnel unless certain conditions were imposed from with¬ out, except as the way was pointed and controlled, on the basis of suggestion, by an independent agency. Experience of New York City in Applying Standards The conditions in Chicago and Pittsburgh which largely influenced the work of the standardization agenc>, were present in New York City although in a less marked degree. The manner in which the program was carried on has been character¬ ized in the preceding pages of this report. The opportunity to 35 STANDARDIZATION OF PUBLIC EMPLOYMENTS develop information with respect to organization and procedure as a basis for the guidance of the budget-makers was recognized in developing the standards. In the preparation of the budget for the year 1916 the infor¬ mation developed by the bureau of standards, the standardization agency, was used as the basis of proposals initiated by it, not only with respect to the re-adjustment of individual salary rates, but also with respect to abolishment of positions and the reorganiza¬ tion of departments and bureaus. The propriety of this action and the extent to which such a course of conduct should be pur¬ sued, if proper, are important questions. The Bureau of Municipal Research realizing the grave danger in this method of applying standardization principles and utilizing standardization materials, issued under date of Oct. 6, 1915, a memorandum 1 calling the attention of members of the board of estimate and apportionment to the danger of such a course of conduct. The memorandum points out wherein the three kinds of questions “each of which has quite a separate bearing on the complex problem of management” were confused in the methods used and proposed to be used by the Bureau of Standards in the preparation of the Budget for the year 1916, viz.: “1. Those having to do with standardization of salaries and conditions governing employment; 2. Those having to do with the determination of what work is to be done and what personnel is required in each of the several departments, as a basis for budget-making; 3. Those having to do with the use that is made by adminis¬ trative heads of the personnel authorized after it has been employed.” The viewpoint of the Bureau of Municipal Research with its recommendations is summarized in the following excerpts from the memorandum: “ Standardization , a Problem of Fair Dealing “Standardization, properly conceived, is primarily a prob¬ lem of justice and fair dealing. The city is not in business for profit; it carries on its great projects and activities for the mutual benefit of citizens. The rates which citizens can afford to pay to those who serve them are not to be fixed by the price of any product—they should be deter- 1 Memorandum calling the attention of members of the Board of Estimate and Apportionment to the danger of adopting a method of applying proposed standard specifications to the “Personal Service Schedules” attached to the Budget of 1916, in a manner to do injury to civil servants. 36 THE PRACTICAL SIDE OF STANDARDIZATION mined after due consideration given to the conditions of service which are mutually advantageous. “More than any other employer in the United States, the City of New York is interested in establishing for itself a reputation for fair dealing. It has no advantage to gain from any other course. Those who are interested in the welfare of civil servants must also look favorably upon any determination reached by the City of New York which may have for its end and which promises equal opportunity and equal pay for similar work. It is of advantage to each employe to have before him such definite specifications governing employment that he may be able to plan his career. The city and its civil servants alike are interested in open-handed fair dealing and in having standards estab¬ lished which will make municipal employment attractive to men and women alike. Any standardization which will lay the foundation for an administrative procedure that will give to employes better opportunity to rise, which will enable men and women in the service to make life plans with fair hope of success, and which will put appointments, promotions and increases in compensation on a basis of merit is preferable to a method which offers opportunity to those only who may establish their claim to recognition through subservience and loyalty to an unofficial organiza¬ tion controlled in the interest of those who would thrive by exchanging ‘patronage’ for ‘votes.’ “Questions having to do with standardization have little in common with the determination of what work is to be done by a particular department or office, on the one hand, or with the use which is to be made of the authorized per¬ sonnel on the other. Standard specifications go into the abilities, training and experience of men and their adapta¬ tion to the requirements of established civil service positions; they have nothing to do with decision as to how many men who may meet these requirements shall be employed. The Bureau of Standards has undertaken to do two things: prepare specifications or a description of personal qualifica¬ tions required to entitle men to hold positions when estab¬ lished, and recommend a schedule of standard rates of pay. “The Determination of Work Requirements a Problem of Budget- Making “In making a budget it is necessary to determine what amount of money shall be appropriated for the employment of men. To do this, consideration must be given to (1) the work to be done; (2) the number of persons having different qualifications required to do the work efficiently; (3) the salary to be paid to each. In arriving at its con¬ clusion as to what amount should be appropriated, the board of estimate should assume that the management will 37 STANDARDIZATION OF PUBLIC EMPLOYMENTS be efficient and that the funds provided will be economically used. After the amount which may be used by each head of department for ‘personal service’ has been fixed, however, the appropriating body has nothing further to do except to decide whether any terms or conditions should be attached to the expenditure to protect the city against the use of the funds voted in a manner not intended. To this end, it has been found desirable to prepare a list of established positions and to limit the use of funds appropriated to the employ¬ ments set forth in the ‘personal service schedule.’ The preparation of a schedule of authorized positions to be filled, however, is quite a different matter from the establishment cf standard specifications and rates of pay. “ Assignment of Personnel to Work a Matter of Administration “There is no one who is qualified to determine how persons shall be assigned to work except officers who are responsible for the daily conduct and direction of the work to be done. When a budget-making body puts itself into the attitude of continuing to deprive its own members as executives of the right to exercise discretion in this matter through conditions attached to appropriations, it uses its power in a manner which ultimately must defeat good administration and makes it impossible to conduct the affairs of the city in the most efficient and economical manner. This has been done in the past as a first step when the means for the exercise of central executive control was lacking. “ Confusion and Injustice the Result of Wrong Method “This brings us to the point. There are two opposing forces now operating in the Board of Estimate and Appor¬ tionment, each of which seeks to influence the appropriation for 1916. One is primarily interested in reducing the ex¬ penses of the city; the other is primarily interested in estab¬ lishing standard specifications for employment and rates of pay which in turn have for their purpose the holding out of greater opportunity and greater security to employes. Reduction in total expenditures may or may not be desirable. But whether it is or is not, confusing the two issues will be helpful to neither. Any new plan of standardization when applied to those who hold positions under an old plan may have a detrimental effect unless great care is used in making adjustments. Let us take an example which will illustrate the application of the method which is now being used. We will assume that two bookkeepers are employed by the city who have the same training and experience and have demonstrated the same ability and enthusiasm in their work. One may have been assigned to an office where there is small need for bookkeeping and required to act largely as a filing clerk; the other may be placed in an office where he 38 THE PRACTICAL SIDE OF STANDARDIZATION has a chance to do his best and to develop further his abili¬ ties through bookkeeping experience. “The staff of the board of estimate and apportionment now undertakes to prepare schedules for a budget. Not having full information about the work which is being done and as a basis for determining what personnel should be provided for carrying on the functions of each of the depart¬ ments, it undertakes to get at this through its study of individual employments. In making a study of the work of these two bookkeepers the board’s staff may have arrived at the conclusion that the services performed by the first man are those which may be done by a $720 clerk, whereas those performed by the second man could only be done by a senior bookkeeper who would not be overpaid at $1,800 a year. This may be the best method that is now available for determining what is a fair allowance to be made for personal services required by the whole department. But the staff would make further use of it and apply the same logic to determine what salaries each of the two individuals in question should receive. It is the latter use of the facts that works a very grave injustice and threatens to upset standardization and conclusions as to budget requirements as well as the living plans of persons who have rendered faithful and intelligent service to the city. “ The vital question now is whether a staff of the board of estimate and apportionment should be permitted to say that the first man, who has already been handicapped by having an unfortunate assignment, shall have a still further injustice done him by requiring that his salary shall be reduced, whereas if the two men in question had had their assignments reversed the recommendation for salary in¬ crease and decrease would have applied in an obverse way. Such a method of determining what amount should be appro¬ priated, in the assumed interest of economy, bids fair to defeat its own ends. And it is fairly contended that if this is the use to be made of standardization—if the board is to invoke a principle of general good for doing personal injus¬ tice—the whole thing should be defeated until a method may be developed which will reconcile them. “ Suggestions for 1916 Budget “The suggestion is made that instead of considering these three problems as one, [viz.: (1) the adoption of standard specifications, (2) the fixing of the number of positions and salaries in each department, and (3) the determination of how men shall be assigned to work] and instead of assuming that all of them are to be considered and determined by the board at the time that it fixes its budget—each be separately considered; and that appropriations be made in such manner that they can be acted on independently. To the end that proper consideration may be given to the just 39 STANDARDIZATION OF PUBLIC EMPLOYMENTS claims of those now on the payroll, as well as to the estab¬ lishment of conditions and rates of pay that will be more equitable and just for the future, some such rules as the fol¬ lowing should be adopted to govern the preparation of the 1916 budget and ‘schedules of personal service’: 1— That all appropriations for “personal service,” as well as for each other kind of thing to be purchased, be set up in one amount for each department, as shown by Exhibit “A” attached. 2— That instead of seeking to control the amount of the appropriation for “personal services” which may be used for each function or kind of work done, as in the past, through designating the number of employes, and positions and salaries which may be paid in each bureau or office, the board of estimate and appor¬ tionment set up, by schedule, the amount or total cost of “personal services” which may be used for each kind of work, leaving to the head of the depart¬ ment the right to determine what persons will be assigned or used in the performance of such work (See Exhibit “B” attached). 3— That as soon as practicable, and before January 1st next, the board of estimate and apportionment act on the reports before its committee on salaries and grades and establish standard specifications and rates of pay without regard to the number of positions provided for in the budget, and as soon as each report has been acted upon, that the specifications thereby established be made applicable to all subsequent changes in salaries and grades. 4— That until standard specifications and rates of pay have been established no changes be made except after approval by the board of estimate and apportionment. 5— That the head of each department be required by reso¬ lution to recommend changes in organization, and before January 1st to submit for the action of the board of estimate and apportionment and board of aldermen a schedule of positions which he wishes te have established in his department, any changes proposed, so far as practicable, to be in accordance with the new standards, the total amount or annual basis of the employments so listed not to exceed the total amount appropriated for the department. 6— That upon receipt of requests from department heads, or if not received before January 1, upon their own motion, the board of estimate and apportionment shall establish revised schedules of positions in the several departments; such schedules when established to govern expenditures from the 1916 appropriations for ‘personal services.’” 40 CHAPTER VII INFLUENCE OF THE STANDARDIZATION MOVEMENT —PRESENT ATTITUDE OF THE COUNTRY TOWARD IT The second part of this work presents in detail a description and discussion of the work of the several political subdivisions— state and municipal—which have provided special agencies to standardize their employments. These particular communities expend annually a grand total of $200,000,000 for personal serv¬ ice. The country at large expends in the neighborhood of ten times that much for similar purposes. It is evident that every community has reason to be interested and it is believed that through the isolated attempts which have been made to establish better control of the personnel there has been devel¬ oped a leadership and influence which will bring about a general and permanent reform in civil service. As a part of its investigation, the New York senate committee on civil service submitted to civil service commissions and other public agencies throughout the country, a questionnaire dealing with civil service regulation, practice and experience, for the purpose of gathering material for a comparative study. This method of inquiry was supplemented by field studies. It may be said, as a result of this investigation, that the organizations—federal, state, municipal—throughout the coun¬ try recognize that one of the most important reforms in govern¬ ment is that comprehended within the standardization move¬ ment—constructive reorganization of employment control which will substitute positive standards and requirements of work for the present negative system of restrictive regulation. Representative private practice in local, and other communi¬ ties, was studied and interpreted through correspondence and field investigation in order to learn the methods of employ¬ ment control which have been successfully applied by private employers. Through such inquiries and conferences the senate committee on civil service has been able to focus upon the stan- 41 STANDARDIZATION OF PUBLIC EMPLOYMENTS dardization movement the attention of private employers who spend hundreds of millions annually for salaries or wages and exer¬ cise control over several hundred thousands of employes. From these unofficial or private sources have come strong endorsements of the standardization program. Of more significance, however, has been the general expression of opinion that it is only through an overhauling of the public service, such as is contemplated by this movement, that government can be made efficient. The movement for standardization of public employments has not as yet expressed itself in a general way. Real achieve¬ ments have been made in many jurisdictions, the influence of which is beginning to be felt by every municipal government, the activities of which are broad and varied enough to make the employment problem an important one. A keen appreciation of the idealism as well as the practical side of the movement and its intimate relation to the efficiency of governmental agencies has been expressed by all the public and private agencies that have been consulted. The work of the Chicago civil service commission seems to have left its impress more widely than any other single agency in the country. This is due in part to the fact that Chicago was the pioneer in standardization, and partly to the fact of its loca¬ tion which has permitted the Chicago civil service commission easily to effect contact with cities both in the East and the West, which have looked to it for direction. It may be said, however, that the classification and procedure to govern employment which have been formulated by New York City and Pittsburgh are more scientific in their nature than the methods adopted by Chicago. Within six months the results of the labors of the senate com¬ mittee on civil service of the State of New York will be presented to the legislature and the public. It is thought that this inves¬ tigation represents the most comprehensive study ever under¬ taken by a state into the conditions of governing the personnel and related problems of organization. The constructive results of the New York City, Pittsburgh and New York State surveys should, if interpreted to the country at large, have a revolutionary effect upon government. Benefits Secured by Standardization Perhaps no better expression of the growing influence of the standardization idea can be given in concluding this general 42 THE PRACTICAL SIDE OF STANDARDIZATION review of the subject than is set forth by the committee on civil service of the senate of the State of New York in a statement recently issued outlining its program. In this declaration, the committee presents three sets of benefits, one to the state, one to the employes and one to the taxpayers, as follows: The Senate Committee on Civil Service believes the adop¬ tion of the program outlined in this statement will secure for the State three great benefits. It will result in increased efficiency from employes. It will bring into State service the highest grade of men and women because of the oppor¬ tunity for a permanent career. It will reduce the cost of State government through the elimination of inequitable salary increases and bar the introduction of unnecessary positions. The Committee also believes that it will secure for the State employe three great benefits. The underpaid em¬ ploye will be advanced to adequate rates of compensation. Favoritism and personal preference will be eliminated. Promotion and advancement will be based upon merit, thus securing to each employe recognition of efficient and loyal service. And, thirdly, the Committee believes that the adoption of this program will secure for the taxpayer three great benefits. It will result in efficient and businesslike government. It will establish real opportunity in State service. It will lower taxes, in the assurance that salaries are paid only to the efficient and are commensurate with the duties per¬ formed. 43 APPENDIX TO PART I INTRODUCTORY NOTE As outlined in Part I, the code of specifications furnishes the basic standards, to be adopted by the legislative or finance controlling body, for controlling the public service. By regulating the procedure of the civil service commission they represent the instrument of control over the chief executive, in recruiting employees and providing rules and regulations with respect to the following: Titles. Work Requirements. Grades and Rates of Compensation. Minimum Qualifications for Appointment. Minimum Qualifications for Promotion from grade to grade. As pointed out, the standards represent the minimum requirements imposed by the legislative or finance controlling body upon the executive to insure uniform enforcement and administration of civil service principles. The application of these standards is a duty imposed upon the executive, who under the law of most state and city governments appoints an independent agency known as the civil service commission for this purpose. The civil service commission or other agency representing the executive is charged with the enforcement of the basic standards subject to the limitations contained therein. The separation of the basic standards from the rules of practice and proce¬ dure applying them—making the former mandatory through legislative action and the latter discretionary upon the body charged with their enforcement— makes for greater flexibility and elasticity in the administration of the civil service law, and at the same time guards effectively against inequalities and abuses. It imposes upon the executive certain limitations and restrictions to insure uniformity of practice, and, at the same time, eliminates many unneces¬ sary and arbitrary regulations leaving the executive free to work out a busi¬ nesslike and economical procedure. The following exhibits represent in broad outline the basic features of the proposed specifications governing “personal service.” Exhibits I and II represent the classification of services and groups including titles, grades, salary limits and rates. Exhibits III and IV represent outlines of the content of specifications which are prepared for each group. Definition of Terms Used in the Outlines . “ Service.” The term “Service" is used to designate the broadest functional division of similar or related employments, determined irrespective of depart¬ mental or office lines. Examples: Administrative. Clerical. Professional and Scientific, etc. “Group." The term “Group" is used to designate a subdivision of a service covering a general line of work, and including those employments the duties of which are of the same nature. Examples: Clerk. Engineer. Lawyer. Physician. 44 APPENDIX TO PART I “Grade” The term “Grade” is used to designate a subdivision of a “Group” including the specific work or duties of individual officers or employees. Each “Grade” has assigned an appropriate range of salary, the differentiation of grades being based upon the skill, importance, responsibility or value of the work. General Regulation Governing Promotion and Advancement. Advancement from rate to rate within each grade is made regularly upon completion of a term of at least one year of satisfactory service. Proof of satisfactory service is established by the efficiency records of the civil service commission, supplemented by further investigation, under the rules of the commission. Promotion from grade to grade representing a change of duties is based upon examination requirements which, as far as practicable are competitive in char¬ acter. Each salary grade, representing a range of compensation for a prescribed standard of work, includes a series of salary rates which afford opportunity for advancement without change of duties and without examination. Thus, for example, the first grade of the clerk group of the clerical service includes the following rates: $360. 420. 480. The lowest rate represents the salary of an incumbent of a position within this grade at the time of his appointment and during the first year of his in¬ cumbency. The succeeding rates represent the extent to which he may ad¬ vance without examination after his first and second years of service within this grade. The general regulations governing the amount of increases are intended to furnish an annual increment approximating ten per cent of the initial rate for each grade for salaries below $3600 per year. These regulations are embodied in the following table: Salaries up to $1200.Advances of $60.00 annually Salaries from $1200 to $1800. “ “ 120.00 “ Salaries from $1800 to $2400. “ “ 180.00 “ Salaries from $2400 to $3600. “ “240.00 “ A few exceptions to this general rule have been recognized to meet peculiar conditions in certain groups. In each case the special regulations governing the rates of compensation are specifically noted. 4 45 Exhibit 1 — A STATE CLASSIFICATION —Tentative Clas¬ sification of Services and Groups Including Titles and Salary Kates, New York State. (Dec., 1915.) Exhibit 2—A CITY CLASSIFICATION— Proposed Clas¬ sification of Services and Groups Including Titles and Salary Kates, New York City. (Dec., 1915.) Exhibit 3— STATE SPECIFICATIONS— Types of Specifi¬ cations, New York State. Exhibit 4— CITY SPECIFICATIONS— Types of Specifica¬ tions, New York City; 4- A —Chicago. EXHIBIT 1 A STATE CLASSIFICATION Tentative Classification of Services and Groups, In¬ cluding Titles and Salary Rates—New York State. STANDARDIZATION OF PUBLIC EMPLOYMENTS m W H o 02 S Pm 0 P O Pm o Q 55 02 W w H <3 02 W Pm O O ^ > Pm W 02 o 55 O i—i Eh < O 02 02 <1 Q O Eh < Eh 55 Q Eh Q 15 H HM PP HM 0 XI w 02 w 8 <1 Pi « <1 ft ■< OQ 02 £ o 02 O Pm Pm O H H Q <1 Pi O PM P O Pi o Pm O H § < & ft O PP i h 02 0 o g 0 02 o o to CO m oo to CO i-| i S|8 rH ^C0 i-M +2 • rH £ A A AA CO O i-H i-H »« l-gj.a l|g& 02 £»>> P Fm *fP P Fh‘3 P o OQ J3J , P o P 02 ^ hm 02 F-( C2 02 m d O O J M M -M P oOOcclH^ § P r*^ O -*n w f_, kOPPPP^cS p. Oh ft Pi ft ft p. CM PpQ2 02 02 02 02pP02 cgQQQQQ^Q m u m3 CZ2 P ■si § * HM„ , OQ <3 *-> O 02 • rH m 32 ft o P cc 02^ M-M -+M . P P Cd ci MM> MJ 02 h • 1 _ OQ IT 1 OQ 73 a OQ P 02 -H> P -H> C/2 Fm O -H> 02 02 Fm ^73 g P i ►, 'w‘3 02.2 M-» i—M ■.fP P 3 sa —sM-M 2 a a^ o to rH 02 02 73 P p p 3 & p=h a o go p g JD P P OQ 02 £ a_ «■-af M-=> O P >S^pq Fm Fm rt O O § M-S -M> .S C2 O ^3 i g g o3 M-3 p 02 a M-M s Pm 02 Q -M 3 -H n C2 Pm 02 CZ2 02 > • i—i -t-3 P C2 Q2 X H c3 M-3 Si 02 02 p W) P c 3 13 Q P ^-M p 02 Fm 02 bJ3 (3 P Fm P d P O 8 mj 73 ■£®P &CB m Q a OQ P g Fm 02 02 P bfi P P | 3 .IS (M CO rH 02 > • i—i M-3 P Fm -M OQ • i-M .a a 77 «! p • fm Fm 02 to P P P O 02 'fP P OQ 02 fP -FM o p 02 Fm P 02 fP H 73 02 -M a o 73 p p • r-4 C2 P 02 02 fP M-» o p 02 3 rP P O • fH p 02 CP • rH 02 OQ P o > • fH -M P MJ P 02 •+M OQ • FH fP ft p MJ 02 02 OQ 02 P Fm ^5 M "p OQ 73 P P 02 02 m3 • rH MJ 02 fP Eh * 50 cussion. Some of the rates will undoubtedly be revised. EXHIBIT 1—A STATE CLASSIFICATION 02 S $5 no i © O Eh l-H « tH a X ft z o t-l 5 o GO m < P O H 5 tn B Eh <1 05 >H 05 <1 P <1 co 00 & o GQ o Ph B O H P Eh H Q <1 05 0 B P O 05 0 B O 0 a 05 B 00 03 DO — _ • H — O c3 Q O B CD CO GQ |iii ftcO rf* 00 ftCO HO 03 03 03 fl © o3 O flC^ Q3 l—H +-3> ^ i_j Pi Pi Pi B B B 03 03 03 OOO M B 03 >—H o 03 02 B 03 a • rH a d h Pi-H' b d 03 03 1*0 s O r—I Gd S§° BH C3 O .2 a-a -P'b § OPh^ ■+25 a 03 a o o'ft a a aw d «+H x o ft '"d 03 * , B 03 a 03 a ■ft a w B d B ■+23 02 rH bfl J 03 OPh ■+23 a 03 T0 a 03 d P .a o b td 03 Ph go 02 o a a d 03 B a PP GQ B 03 ft d ft a o • pH d B O ft B o O B 03 o •+= a +> aa « ® a ■| eg P H a o • rH +25 d B O ft B o O B 03 a d ft GQ B 03 _ ft 02 d ft o > > B 03 ft 03 03 O o PP Pi B 03 o B 03 .a a d X ft *d 03 • rH B 03 o +- 5 > a 03 bfi <1 ++> a 03 a 'ft a ft B O GQ o ft +++ a oft ©.y a -t? •d a B o ft d X ft o co 1 QQ 02 r-t a I cj j Fh O N © fto Ph 00 PhOO c3 i—i c3 Jiiii +3 ^ ^ O c3 00 »0 00 (N Fh i—l X c3 a o P 00 - a j PhCO Ph,-h c3.(N c3 02 c3 u Ph Pi 03 O © O O O ho S o O a w o 4H <1 o M P 4-H GO GQ ◄ P o H g U 2 GO £ O E 02 O Ph fe O H P H H Q < PS o Ph P O P5 O Ph O H ◄ £ P O ffl GO H O t-H P H GO Fh 02 +3 02 Fh Ph Fh 02 73 tf § c3 . -4-3 pH 02 02 | U | 02 02 b/D *P O) CIQd Ph 02 P 02 OD 02 K -4-3 02 02 b£) C3 02 02 o •c 2 s s F-H Fh +3 P Ph U1 Fh O -43> o3 Fh 02 Ph 02 P O P5 Ph ^02 '02 H -43> 02 • rH Ph H -43) P a -4-3 P P o C2 C2 <1 CO I> 00 05 73 p 73 oJ P O 03 C2 C2 pep o*3 p-H • <-H ^ GO P o 5R ^ •i-H nj • —« « 4 -M O 02 OCQ 6 PL, o Q -43) p c3 - 43 > P P o C2 C2 <1 Fh O • pH P 02 m -433 P co -4-3 P 43 P g 8 S 3 a pc O S' S-i H-p «+H Fh fli 02 •P Oh Ph ^ Om 52 EXHIBIT 1—A STATE CLASSIFICATION 13 03 3 £ •*? M m ►4 H M w fc o ►H Eh ◄ O CO 02 < P o 3 co CO H « >H tf ◄ P OQ 03 £ o 03 o Ph o w p Eh B H P 0 Ph P O Ph o fa o H a & w o IH Ph w OQ O 00 CD ' t-H o o o 00 O co o t-H C3 t-H t-H | | bC 4 - 3 u O 43 P u O rP P 2p opq fH fH o • pH P 03 43 m 03 fn 03 .a a p X W p P fn 03 P ^ $ 03 X PH S-y p a 43 0 X w m c3 Hwa-g ^ Mpp a.S o 43 a men h M'p" s t+H ^H Q 43 • rH P P 43 o p p • hH c3 »—H P. P rP o p »—H Ph P rP o p o GO • i-H H P , 43 ■S CO •9*S a ‘m g >> rPrP OP fH O hh H-5 OQ QQ *»-h • >-h 0 a ‘53 a ^ ■ h t-C3 ®UP ° fH 1 rH P ffl o o P P 2 ^’c d P Pr^r? ^ ® i-jpiOPcccc 43 GO • H bO JO O 03 rP o fH 43 GO • rH bfl O fH 03 43 03 P P fH 03 .a a p X H M P P P 43 GO • P P 43 o p p Hu p rP o GO rP P P P 43 GO • rH a 03 -P o 43 .2 o CQ CO IP CD ^ a * 8 , 'p C3 pep o"5 •rH ZZ GO P GO 03 flj ■ rH «P 03 pm fH P 53 A State Classification. Exhibit 1— Continued STANDARDIZATION OF PUBLIC EMPLOYMENTS oo H Eh PS >h PS < P m CQ £ o cfi O R Ph o H P Eh H Q PS o p o m 9 oq H O M > PS w cfi a y . p P' O O CO CO . m o o o --vO O 00 -H oo • >o gHiON |o p 03 CO m 03 • rH Pi O -P P Pi O rO P HP P O H> 03 03 P P 03 P • rH a p X H 03 03 • rH > P 03 CO • rH o P ! x Hq 03 03 • rH > P 03 CO p 03 P rH a p ; p x .£H »-a P 03 O y2 •p 7:5 P 03 03 C0 o> £ 75 o g co OO Q p p _ 03 o3 ^p'ppP *P 43 o ,CO0) -H- "tf ?H 03 p 03 ^ S ^ ^ 0 S®P5h -p p .p y .y cc • r-L bJ3-P, 5b r*> P P -P • rH P P CO p 03 03 P P y '-P rP 03 03 > /~>PP 03 O P j.a p • h 50 03 p P a3 •I'ag'-ag ^ h“ j3m i h i bfi.*J P 03 GO 4-=> GQ GO GO m ■s ® 2 p P P .y o o o o; ®P p p p p r « y y y y RbPhP p p 15 p rvi ‘ft P p p p HH bB 03 03 03 03 . P 03 03 03 03 -PM P P P P. GO •> • rH • rH • rH • rH c3 GO I xn . p o Iw ■P .22 0 05 S jj bC bC bfi bC 03 y P P P P M > Ph m >> P rP O PS Ph o T3 P 03 . 03 y •rH 03 fe c3 > P o H -P os • rH Q3*a 02 3 ■—1 X 44> GQ P 03 03 9 a^ • rH -p P • rH a •rH P 03 bC P o o P W 00 05 9 r—H 03 03 P cp .2 '43 03 P m 03 H Ph 54 EXHIBIT 1—A STATE CLASSIFICATION *X3 d S £ ‘•SS § o O H M m t-H w ft £ o H H O IH fe 4H CC to < p O H E-i $ m to H H < « >4 « CQ 02 £ O 5} O (H ftc o H P H 0 Q O K O Ph P o « o o H 9 fc H O M « B CG O o O' CD P rJ -, CG ^^•rH o A CO ft CO P ft P^, T3 ' p P O O O CO O O GO CO CO O t-h CO Sii ft 00 o fto 00 P r-4 r—I o o °o P _I CG M • rH P I ftoo fto p 1—I o ^CD . 0°' 1” gi ftCO CLt-H P a> a; oft£ >> Fh P 43 • rH P P GO Fh o o P += CO • rH bfi O O | gft "£-£ * hcWbb bfi P Fh Fh o o p p D 0) mm h h h h o c o o DODD p p p p ■ bfi' bfi' bfi' bfi' bfi. 22 p p p p p p rP o z g> - £ft£ ^ S += p P -4-3 CG O "o a o ft % P o . a a ®aasaaoo to • rH CG xn <1 CO -4-3 CO D H O Ph 43 P D "O p D 43 P • rH Fh D ft P 02 43 co • p-4 rP.m g “ M ffl HM w X w fc o M ◄ 0 i-t (k HH CQ CQ ◄ P o a 02 CQ w Eh < PS >H PS <1 P PS H CQ P O « 9 >< 02 O O ^ .CO >0^0' gw i£i oo Pico lO Pt-h CQ P CQ O O O -3 co co ^ CQ CO lii Po 00 Poo lO P i-H CQ P o -V ^ ,—,00 p^ p2’ GQ M GQ ” rH rH • rH P 03 P I MO MO Po Po Pco PCQ P CO P i—I o ^, lo 1 p p CO CQ P rH • rH /H P I P 03 Mm 00 Mm o Pco Po Pi—i Poo P CQ P CO O O lo »0 P cc lii PCQ CO Pt*h co p 02 02 POO P CO 0 CO LO 02 •lii g l> 00 p LO 02 02 COO p 00 OS 02 02 02 P o P 03 0 02 liili 02 P O §8 02 i—l 9 02 0 2 P O P CQ 02 *H M-3 P co i> ip i |i (-1 * ~ H l" S O (-M w S co LO g LO go g CP -M3 CQ P 02 • rH -M3 Mm o w Mm O M-3 P • rH •n 02 P 02 p 'p p Mm o M-3 CQ p p *8, "3 C2 pep .2'-P 53 P CQ 02 (V) • rH Oh O 002 Mm Pk P'S 02 ^ P ' 02 P P P S 02 O 02 O i-P : g g I P3 -M3 fP ■+3 £ Mm 02 P • rH a P £h X a | P P M P W ^ 02 02 O Pt P M P Mm g O 1=5 ‘P 02 P P -ICO 02 .a a P W 02 02 P 03 Mm P CQ P 02 •|-M fP o 02 CQ P P o o Mm O P P •H 02 CQ P P O O 02 M-3 P • rH 02 o CQ 02 <1 02 CQ P P o O 02 P Mm O M-3 M-3 < CQ Mf OJ P P CQ P Pm H o 12 P oQ£ o O Ph bC P • rH -H> oS Mm 02 a O 02 02 CQ 02 Mm Mm P P 02 02 Mm P o o rP 02 m bC p fP -M> 02 W •d «2 Mm O 02 02 02 > bfi hfl C Mm Mm 02 P P Q. Fp fP 3 OO m p o Mm M-3 P P M-3 •>-l a 02 O w 03 Mm Eh P a • FM 02 P • f-M Mm Ph fP P Ph bC P • rH CQ • rH > Mm 02 a p cc p *3 • i-M TJ 02 a P ><1 ^ OP P 'O * F-M P - Mm 02 02 P Mm .2 g-g ■e P Mm P 02 £ o CQ Mm o v W ~' r TJ P HH m P HH P H P £ LO CO 00 rH rH r-H rH rH 56 EXHIBIT 1—A STATE CLASSIFICATION "P CD 3 ’•£$ £ o n ►H PQ I-H W X o <5 U co 00 ◄ 4d u H Eh ◄ H TO co P Eh ◄ « « P H co p O « s co © a 9 c CP P CP P J-C Ph Ph P © p i ip TOrP -+3 i o © a P P P D H ■+3 a i © © 9 03 o p © -4-3 P P rP -u B rP -4-3 Ph-43 C© • rH O P id CO TOrP -t-3 © a © po CP p CP iO P lO t-H (X) i“H i|i © © P © P o P 00 © T“H -4-3 © © a © P CP p rj © cm •pi-pi a^ a£ a£ rP -433 •P -+3 £ £ £ Pi • rH £ © © P P P © - 4-3 p p a o p © © 9 a cp d rj P CM © P i- to a H Pi © © O p TO p io a CM © -43 i-g § a i-H Pi -43 © © P9 P CP p 1—1 © CM -43 p I •p o p 9 poo © © po P CP p pj © CM -43 ■U s° © © © © dOfl p cP p rt i"H p © (M © -43 -43 p I p •3 O 'P 39 g aoo pi pi pi pi +3 +3 T3 4-3 • rH • pH ,TL * rH £ £ £ £ -43 © •g P a tH P rP PH -43 P P -43 GO • pH © © -43 © • i-H © P a p pi Ph © p 4h © P © • i-H © -43 P P -1-3 © •i-H © © <1 "p © • pH P •pH 0 p p p Sh © P © o p p • 1 -^ • 1 —< o o • pH • rH © 4~N © 4*3 4*3 4*3 rP £-P Ph a Ph -43 ^ -43 p © P 3 &S .2 £.3 © o © © © <4 <1 P P a o £ S © 4*3 P) Ph -43 P P -t-3 © •rH © © bfi o o pH © TO P P •g • rH © 4*3 rP Ph -43 p p -43 © • rH © © >3 Ph -43 P • rH rP © 4*3 © Ph, P P © 4*3 rP Pin P © © P3 P P © -43 P • rH © o © © 4*3 b/0 JO o PI -43 , r H p <1 P*3pH P P rH © P P -3rPi © © '© ^'© P*3 3 4*3 rP ^Pl Ph Ph P S-H © P © o p p © ^*3 rP fin -43 © • rH bD O o p £ p p • rH © • rH © 4*3 rP PH • rH 'g o p p © C*3 rP Ph P P O « O -43 fc O OQ • rH O c3 P P H S a fH © • i-H © <1 P 4*3 rP rP Ph Ph 05 O (M T3 P P O cj o, r < P © P cp 0-43 •i-H Oh © P © 0 ) Q3 • i-H © OTO 4H Ph 57 STANDARDIZATION OF PUBLIC EMPLOYMENTS CO 3 8 * no 8 © O Eh PH A M w X H fc o PH Eh < O GO CO fl O B g CC CO H Eh H K >H fl <1 00 CO £ o CO o Ph pH O H a M Eh H A <1 « O Ph P O Ph O pH O § <1 £ H O M > Ph W 00 oo co O pi ft 03 03 O A 00 A C3 A ft 03 A "fl A o CO £ £ £>co A • rH c3 a o A a 22 CO o A A CB • rH A Ph Ah SO CO wC3 ft 03 , §i A 00 03 CO A A OQ • rH A Ph Ah So H.-r03 CO 03 , SA A 00 Aft 03 CO -p 3 A • rH A A CG • rH A Ph Ah Ah A 03 C3 A A A 03 A 3 3 3 o A O A O A >» Ph -P 3 A • pH rfl CO >> an Ph A A ’o • i-H m rfl Ph Ph O 03 CC A Ph 03 A 03 O A A OQ rfl Ph Ph O • rH A 03 cc A A 55 03 ^ Ph fl fl.S I CO 03 Ah cq A • rH '"c3 . & • rH -fl 03 03 -P 3 A • rH C3 O m CQ A co 03 .3 p A CO 03 -P 3 fl -P 3 • rH -P 3 OQ A 03 • rH *“T OJC Ph a a A -i-H rfl A A C3 o co OQ CQ fl rfl Arfl^ PH .-fl PH *PH Ph A Ph ° O A O Ph •fl CC • A O A ^ A -p 3 03 03 C/2 CC •P 3 A ^-S 03 Ph -fl 3 fl A 03 fl H - 3 1.9 a 03 ft rfl grflftrfl ft flft^ft^r-H 03 O flo A ch Ph ^ Ph 03 O - O p O 3;fl fl A 'fl A "fl fl A .fl A -p 3 A w 03 03 03 03 PH Cfl CC CC CC S ft fl slfe-s §1 .^rfl C3 H - 3 3 g'S >>'gQ >) ft >? M >V Ph O Ph -P 3 A • rH rfl C3 £"■> an ft Ph O -P 3 o 03 3 Ph O -P 3 o 03 Ph • rH P £ rH A 03 w I w. o M A HP> A -p 3 CC Ph O -P 3 C3 03 Ah OQ A Ph O -P 3 C3 03 Ah an A HO A O • rH H- 3 A CQ Ph A O 03 -P 3 Ah ° A A 3 Ah o CQ A A A F fl • rH C3 "fl’C PH 03 h 3 PH CQ 'A^’^rS • 3 s 6 A' CQ, r» CO A • 3 03. -fl A A S at :§pt rfl^ Q A A co o •H .fl -fl -P 3 03 A •3« rfl^ O A A OQ >> rfl ft (M "fl r fl*A A O A3 'A co Afl o # 43 • rH ftd W P CQ O tip O OM ft 58 A State Classification. Exhibit 1 —Continued EXHIBIT l—A STATE CLASSIFICATION m w Eh <1 tf h tf < H 02 CQ £ O 02 o tf tf o H tf P O tf P o tf o tf o tf s w o ►H > tf tf 02 o o 00 CM CO 00 ii o o CM 00 i—I r—I C/> ft d CO P i s< 5-1 o aio fto tf CO o —.00 tf 10 tf CM tf OQ o O CO tf Fh ft _ fto w tf © | oft© ftoo -tf ^CM ft co g oo tf 1-H M CM 02 pH §i o o ^—.00 CO -tf CO O' g^HCO •pH 2 i JL H o © ftoo o fto oo tf t-H i—I o o ,~.oo o -tf 1> CM Co _j CO " • pH h ii ft-tfH 4^ ftio 00 tf tf tf a CD pH -tf tf 02 • I—1 tf O H ° ftoo- ftl—I tf o S ^ CM tf CO Fh t—I X tf o ^CM tf °0 ^CM tf I H© ftoo fto tf rH ft tf ^ "tf tf o o CM O CO O CD a ° tf CM tf co P rH ■si o o 00 tf I.BOtf I tf 2S-S.S ft CM ftr> C3 a-a CM ft 43 ft -43 F-l O ft tf tf • pH o • i—i 4-3 OQ ’-tf tf J.s O2.o o.S tf H3> a tf tf 4-3 >SW. r4 & H tf tf *jH •rH O O • f-4 • tf 4-3 43 M H oQ*rt 5 •tf tf-C tf 43 Fh 43 rT\ tf 02 tf Fh r *44 O ©,® Gfi> tf tf • pH *4 tf tf • pH Fh UH 0) • pH pP o tf tf •1-4 Fh tf Fh ft <5ft ft| Fh tf Fh ft 0 ) 43 tf 43 02 ft Fh o pH £ 43 O 'tf O • tf rtf CD tf O Fh oqh3Q tf tf • pH Fh tf Fh .ft Fh CD O £ o .a o Fh tf ft Fh CD O m o o »“H o Fh tf ft Fh O • pH tf o Fh O tf •pH si &H < tf Fh O CD 43 tf O tf w F^-tf GCftft l-H 1—1 > > W tf tf 43 OQ •rH 43 tf 43 02 tf tf • pH tf .a "5 > -tf . O fc bp tf p; o' ft ’-S' &0tf CD 3 g-tf^rS Nft ft £ tf § - £ Fh 0 i co co o ZD to CM i CM CM O CO T—I CM m o o o O co O CM to O r—I i—I CO o o o —sCO 00 CO ^ d to 05 O 02 C3 __j __j rO C3 r-1 r-i ^ o o Ph a 00 oo ^ ft 0,0 CO CO Pi 03 rH t-H 0 s ! A A AA O O 00 00 CO CM 05 05 CO T—I HH Ph o 43 co 03 Ph o 43 C3 d Ph 43 02 d <33 02 a 0) 2-d I C3 <33 O ® 43 d CO I—I d ph —^ 43 d 72 Ph d d I— I 43 Ph 3 <33 CO 43 --H 43 Ph d pc PQ<1 d Ph d +? ft Pi- 5 02 g** • pH • • f-l f-l f-H b/0 bfl bJO __ pH <33 Ph -3 Pi 3 PH C3 03 03 d Pi'd m d •Si •3 W ss •c.8 b!D43 d Pi O a Pi O O bJD 3 .a ph ph •d a d > p.y a m 02 43 d <33 a m m CD GO OQ C 3 C3 O H Pi O Ph O 43 C3 <13 ft 02 Pi O Ph O Ph 43 O C3 43 03 C3 ft tD ft d ® HH d Ph O 43 C3 o 2 43 d C3 I—I 03 . £d d'^ PP -fi C3 Q2 <33 02 <13 ft-d ' d * GQ • pH co X w 02 i«h i—i d 43 drH ft'd Oh 02 3 d e h HH d b£ ■nd d 03 X W 03 Ph 02 O *d --h x §-d HccO Ph 43 02 d F Ph -.3h £ d d gn d o d ■ i—i CO d 03 X d H co ft 02 d o pq 02 Ph o 43 PH i "H d Ph d d Ph o ^ • rH G 43 . d p-i o Ph 43 d 03 a CO 03 ft 02 d d CO p, •fi 3 bfi^ < a § O d ft X Ph H o ^ O 02 9 <13 d X ^ w 72 • pH co X W Ph O 43 CO 03 ft 02 d d 02 d dJ d nd I " H • pH d PQ Ph O 43 CO 02 03 bJ3 ft d 02 .d d CM CO to CD "d d d3 d § 'd.S d 43 O d •rH bC 43 .S' CO 43 03 02 ft a co t> 60 A State Classification. Exhibit 1— Continued EXHIBIT I—A STATE CLASSIFICATION 02 H P3 03 < P < cc 02 £ o te O PH o H P Eh H Q <3 « O Ph P o 03 O &h o H § £ H O 03 W cc P O P cc o3 00 o O o o O o o O cSO o o o o o o O CO O 2 -Sis d m j Oh O OHM ^5 •»—» a$g ■ rP O 00 02 • i—i Oh H-3 OQ P • p— 4 i -3 2 Ph CT* -h 03 § 03 ’3 “a * 2 § ,F o § S Oh O pQ o3 0-5 .a o H-= HH Oh 02 bC CP *03 ® 1*3 a 03 I o 02 Ph 0Q P Oh 2 P 8.2 02 H-3 Ph P 02 P‘-P 0Q OH 02 P P P o • rH P H-= Oh O H-3 02 P o 02 Is 8 | 0Q OP • Oh 0Q Oh O HH> O 02 Ph 0Q P t—I >> Oh 02 0Q 3 £ / t'- 00 02 - Oh-_ C2-U p o ® o Ph g 3 0Q > w P 5 61 STANDARDIZATION OF PUBLIC EMPLOYMENTS £ "c* •fO i 6 E-t M « W w M w fc o M 03 m m <1 G O H Eh «J Eh <72 co W Eh <1 « « G G G O 3 G Ph H -c G O i Ph Ph O H-3 G CD bfi O •_0 72 02 03 > G .a *s o G w __ Ph02 02<} bfi G i-H h co G p-H 03 > H3 Ph G 03 £ ft-H G ~ H3 G G ■G G 03 ■+= bfi GJ o 03 Ph G CD Ph 03 h-3 H-= G G "G G 03 -H H-3 <1 «H-H 03 • pH rG o H-= G G G G 03 •+3 +3 ' 03 CD • pH > pH 0) . 02 g CD • pH G G Ph -+3 CD 03 ft 02 Ph O H3 G bfi • pH H3 02 03 > G G • pH CD O 02 G) G G G 03 Ph 03 Ph 03 G CD P4 i-G H-3 o G G o PQ « O rH -h G G G O • pH H-3 G H-3 • pH H-3 02 G fe O 62 Main” indicates full maintenance allowed in addition to salary. A State Classification. Exhibit 1— Continued EXHIBIT l—A STATE CLASSIFICATION 02 P Eh < tf <1 d < 02 03 £ O 02 O Ph h O W d Eh H O <1 « O Ph P O « O B o H 9 £ d O m a >H 02 H O ►H « B 02 d d ^3 c3 a a o o Tii O . H CO 1 t-H ii O d 05 m d O -sO 73 0 ft ft d d • rH d a o 00 ft A A A A oi (NO00W i> CO 1> CO O CO o co f-t a & o3 o O a c3 T2 u c3 d O a dj d ft • pH O d • pH ft fH C 03 O ft H s « S.S r-H OJ -ft3 c3»fl nl d 03 *jh 03 a^43 ^a-d^.a fta ■H g |H nH.rt ST C! H.rH ft OftftOOftQft d 03 3 ^^3 nft ft d a m 03 ^o!$£w! i—i >hh d d 43 03 03 3 o d ■SH fH 03 _ fta O d 03 d _I 43 d .a a o d.a 03 d bJO r-H H 03 d 03 ■d d O 03 a d ft d t- d d O Sh 03 ft rl 03 d 03 O dd o ^ w XO CD 00 05 d d O^-N *23 d d'o .■S o 43 03 03 d O 63 A State Classification. Exhibit 1— Continued STANDARDIZATION OF PUBLIC EMPLOYMENTS m W Eh < PH Pi O < CD 02 £ o 02 o pH Ph O w a Eh H Q <1 Pi O Ph P O Pi o fo o H 9 £ o o pp 3 P CO W o M > Pi w 02 O O P5 3 P CD Oh Oh nS d d d • r-H • r-H • i-H o3 c3 c3 a a a o o o O O to CP CD r-H o A A oo o h Hf 05 to m Oh Oh vS- d • pH c3 a o oo A to 0 OhOO 3-V ft £ ft ft ft^ ft ft d.§ 0 0 ft ft ,d ^ "tn o3 o3 a £ a a a 0 30 0 (N © CO CO 00 © CO I-H T*< 0 OO 900- 24- 510- 240- 540- f-H . • pH a *H • pH l I i—H t j wvj 05 .. +3 +3 +3 +J +3 +3 OOc3c3a3c3c3a3 O 0*i-H*pH»pH»p-H»pH»pH tLsLOOOOOO ■h343oooooo c3o3®!D0QQQCQCG uj 02 02 02 02 02 02 0 0 0 0 0 ^ g 3 ^ o3 o3 xn m m m xji 0 o o 4-^ -X© 0 o o o ’•'J k • • • • • a O Q O -4_D -J_D -4© -i© ®®®0QfflGQE® ‘255200000 +3+3+3 POO +3+3+3 • pH • r-H • pH +> +3 +3 m tn m 0 O 0 u f-H •i-H pH 1 § 8 | • hh »-H +3 O O fH -~0 "oe O g3 0 i OQ o ph *h r-H M olS O O O o>- • pH 77 *1-4 O^^O •"0 "S ."0.23 + M+ h OQ I-H OQ +3 o o H « < P ◄ 03 03 & O ce O Ph pH O H P Eh H Q Ph o Ph P o « o Ph O H £ s? p O « § X 02 H a i-t > BS H OQ ft ft O oo 05 A o 05 €© CM OOP • rH • rH • rH Cj o3 o3 a a a o o o 'T'O r-H CM f^CO lO HjH ft -iii O T-H CM CO ^ lO ^ CO lO CO P a o o CM rH i o 05 p o CM i> i o CO p • rH c3 .s ft ft p ft ft p • rH c3 a *s & a g a a^- o CM 8 d a ft'p'p o o CO S'® & *> a«. a a • rH . t 3 • A CO CO 480- 900 600 480- 660- (ovei main A CO S si AA CM 00 1 > Htf 00 o tH O 05 4-i CM O CO Fh o .a a 05 ft 03 ^ 8 o ■g p ® ^ •rH -£T H H H opn-a OQ 03 • rH Fh 43 OQ p 73 P O GG . P ■+= 73 ft p pl-H GO**-, . O •+£ 00 -i i • rH >T OQ ft OQ p Fh o p Fh O ft P ft t i c8 P u o Fh o ft P ft r—H P P OpO • rH -H • rH +2 P 43 P P P •-P K.-P -4ft • *-H 4 J OQ CQ OQ pjs P I—I <1 I—I fcJD P P Fh Eh Fh P 4= ft Fh o += o p Fh 4= OQ P 03 Fh P 43 p o I—H P o • rH OQ H*} rP Ph P • rH Fh o += o p Fh -t-3 OQ P Fh 03 03 OQ Fh 03 > OQ OQ 03 K*"} |l - fl 03 g - . 73_, pft p p P.® I OQ P 03 P O ft) • rH ~P Fh 03 ft Fh 03 Fh 03 I rPrP ft ft Fh Fh bfi bt) O O Ph-p OQ P o O CQ PPP go Fh 43 73 CQ f . £h 03 ® Fh ft P H Fh P 03 ft p . p P rP Fh 03 43 OQ P P P o 1 atfo 03 ft q; P ° 42 h rft^SprQ P P P Fh 03 +3 S 2 p p ^rS §fl ^ p C3'*>§ 0 P 43 p ■+3 OQ 03 P Fh 03 Fh 03 73 P P P H? Fh — 03 a s a ° O _Q 03 73 ft! 73 Fh 03 Fh O OQ ft P P 03 M P 73 P 03 ft ft 03 -7 03 ft CQ CQ • rH P P • rH 03 • H OQ H* IQ (O 00 05 o CM CM P P Or~s *^3 73 S'p -+3 P • rH 03 43 03 --- P O 65 STANDARDIZATION OF PUBLIC EMPLOYMENTS ^3 3 •S m M w X CQ w ◄ « tf <1 d m ft ft 53 ft ft c3 ft ft 53 d d o • H o.-e 00 to * d ® ft 43 53 53 a * Ori ft d co o r\| • rH .ft §5 m o ft o> Fh a> '~> ft^' 05 t> co • —H 53 Fh ft ft ft ft 53 53 d d •rH • rH ^ 53 d o • rH 4-3 d -t-3 _ _ o ftCd O ftco 05 53 ® A A +3 00 Fh aa ft Fh 53 05 +3 02 =3 bfi bB d d ft •rH r*~i rd d bp+3 3 d do M'g I-a .a^^pq 'd d,^ WPQpq d bfl d ►J I s 05 i>> ft d Sh < dQ O bfi llaa d 05 d o r-H QJ 4= d 73 53 F-t 43 cj j.a £ gq 53 ■ -r- w 0Q _)S ft ft 02 02 O ft 73 ft 73 3 d £ g ft a*a ft S +3 O 05 g O Fh ,23 ftQft d d d ■ r-H • r-H . —( H d Fh O H-3 C5 d Fh H-3 Fh Fh O O H-3 43 43 C5 C5 O d -+^ H-3 Hft> CO CO OQ d d d Fh O d Fh d Fh bfi d • P^ If I ft Fh r-H ft 05 c3 gft o • h d ri ft 53ft ftft^ d d d •rH -rH • rH Fh Fh Fh O O O +3 +3 +3 O O O d d d Fh Fh Fh +3 +3 -|3> CO CO CO d d d fc o t-H <1 C5 CO CD -0 d o H < W. w Q <0 tf o Ph p o « o pH o H 9 >< d o m 9 CO S o M > a H co d O m § OQ 53 05 43 C/2 Fh ® Fh ft 05 d ft ft (N d 43 O -3~ ° 0 So 0 Cu 0^ <1 o CO o « 0 0’rt 0 0 Ph Ph +? Ph Ph P> -P O HJ HI HI CO HI HI 0 0 0 0 Ph Ph o o Ph Ph Ph Ph O O O O ■+P M—' -P 3 -+P CD CD CD CD O 0 O 0 Ph Ph Ph Ph •+P MP> MP -+P HI Hi HI HI 0 0 O 0 Ph Ph 0 O o d +3 CD CD „ 0 0 44 Ph Ph o -P P H co co r 3 0 O r h whH Pm 03 a m o ffi MP> OQ 43 o d 03 0 d p0 p is CO CD d l~ ' H PQ 43 -fp • p-H a GO 44 o d i—H PQ Ph CD !>> d pH 44 CD • »-H Ph PQ Ph QD Oh P < 03 w jn "pH 03 MPt o 03 a Ph O u hH 0 -+P (H • pH I a 44 44 s§ hm Ph 03 c3 p-H 44 o ’Eh PQ Pm 03 mp> o 03 a Ph d u o o m 9 GQ H 03 M > « H CZ2 O o « 9 GQ L- i—l (M (N CO 03 o •By a « •-s S HI 0 Ph O 43 d hQ ^03 t ■< • pH 44 m O w 67 A State Classification. Exhibit 1— Continued STANDARDIZATION OF PUBLIC EMPLOYMENTS te H <5 P5 I* « < P < GO GO £ o GO o Pm Pp o H P B Q <1 « O PM P o « O Pm O W a £ o m a >H CO H u M « H to P o W a to o CO Q CO lO it o co 05 g a -9* c3 m • rH P ^ to Ph o> Pn-e 03 g S P a o P O PPO O H 1 P H 1 CO H 1 22 ’ -H ?'-77 CO ^cO(N 05 05 CO O T—I ^ P P X P O »o o o o oP O o O O O HH (M 00 04 ^ i—i r3- J Ph P Cl 03 |p C3 pP "p o Pm P o O hP H CO P C3 O a> +3 P P o o i "H AA3A 03 += g P 03 Pm Pm P o Pm P 03 P P .P o fn ^ > P B 'l p ^ X gH 2 a h g o a ^6 Pi o o O Pm 03 -P GO P Pi 03 o „ phi W c 8,3 g •| I 03 S Pi -g.'S >.% « 03 53 • — • mT O Pm GO Pm 03 Dm "S jn "p 03 > Pm O += P Pm qS, T3 P o3 Pm O +3 P Pm 03 Pm O r M P 03 • pH Pm += 03 - 03 H "p P +3 GO • GQ 02 d c3 a 03 P • pH bC P W P 03 -h> m P 03 +3 gc "O P P Pm O •+3 P Pm 03 Pm O GO Pm ^03 • pH O PQ p a a a p § s O.S O •p1 bo-g M3 p P 03 rH > ^03 hH ^03 W HS s p P a 03 Pm Pm P 03 iP P e3 pP o I a c3 X W Pm P 03 iP Pm a e3 P O pp ,rt O O O Pm P > P eo Pm +3 O 03 Q W Pm O +3 c3 Pm 03 fti p o a a «S.g • i—4 • ^ Pm ih-m t>C •+3 3 p O P r i 03 PR 3 HH *o co 00 05 O rH Pi o pO p _ 'p'p O o Pm 03 GC W P P 03 Pm o Fh >> Pi 03 pP 03 P w pp GQ CQ P 03 • ^H O P« a pH a ° o a -i ~i C3 1 a I s wE P 03 p£3 i a 1 p i W i rP £ GQ r • rH 68 A State Classification. Exhibit 1— Continued EXHIBIT 1—A STATE CLASSIFICATION to S Eh £ « p ◄ GQ CO £ O to O Ph o b e HH Eh B O « O P O « o o 5 3 <1 6 B U HH « W GQ p o « a CO o Os m- P p p p <1 GQ co% ^ p 03 P B3 ° “ O Fh |_3 03 M o rt r\i O CO^ A o hH Fh a O a; P -+3 03 a a P • pH 03 03 bfi a P ■ ao H' CD 03 . .a ?3 p bfi <3 P I'P H3 03 a L_H JGT P h f“H gQO^pq P TJ P P P +5 • i-H a GQ P O c3 Fh O •hH P o3 *“5 03 d o 03 P •hH Fh c3 H-3 GQ P 03 P CO t*h HO Fh O P o3 _ hP-TO TO 03 p 02 P g W -FS> GQ • pH P P o P P o8 a 03 Fh O Pm 03^ “a ^;ph Fh 03 -F= P • rH P P* P P a 03 Fh O IP Fh 03 P a P bfi O +3 O P a Fh 03 P P a P % a $ >>£ p p p a 2 O Fh aa Fh o HJ • pH CQ O a a o O o ■+3 03 C3 • ^H , -F= P CD Fh a a <50 Fh O ■+3 • pH GQ O a a o Fh 2 o 03 d aa 12 “3 .T3 ap p p a 03 Fh O a 03^ E t p ■ Zi p a Fh 03 P a p Fh bJD O H3 o p a Fh 03 a p a p g BS £ p O Fh aa Fh 03 H-3 P • pH Fh a CO 1> CO OS O i-h > Pi H 02 P O « a >H GQ , sO GO "*±l ■ oEj o ft) 00 ' o H m A O 05 to 02 -h> ci Ph r—I A O o ceooc^x-^o^o CO £ €# OS tJH 02 H 0,1 | 02 02 r*H 03 £2 H I * , QP ^ d^O-^O -H d J3 03 o 02 -h> 02 02 Pi m Ph 02 P4 Ph O o3 -h> 02 Ph 02 O 2£ 02 ^ 02 og P3 Zfl tH c3 Ph "d C2 O pP .2 pH gn 02 .2 ft > p 73 02 03 1^4 F-< HH. CGt/iO GO .a c3 Ph 02 Ph O | a a 02 02 «! 02 Ph -p= .a g S3 §3 Ph P O P daO Ph 02 Ph 'o in 1° "pH 02 -h> -h> Ph 02 -P> H-3 -7 a oi 02 -h> m P o m c3 H"^ Ph .a g r" Ph 8 02 P=4 S B ^ fl'l CO a ci 02 -ps CQ ■ S3 I 02 73 o P « P O CO 03 g es s HPOPh P 02 02 Ph 73 o Ph ,0 P o3 OhP Ph 02 3 w 02 P o S § ■ea-g J >? o a^ | -2 oi o3 ^ P 02 fH hPCQl>0 I—I l-H l-H PH Ph O ,P c3 l-P P c3 a 02 Ph M r O 73 02 Ph 02 .13 Ph a o3 02 -M m 73 p o3 P Ph O 02 , § h|.2 s | a 02 Ph P <15 02 073 p -t-= *rt 1“ S M Eh Ph O o3 Ph 02 Ph 02 H-3 GQ o np ft, Ph 02 03 02 P c3 a 02 PO Ph O f=4 Ph 2 ^ P 02 02 Ph 73 O 53-° <5 d Oh) Ph 02 ft ’o w m d O 8 g ■§£ I s s-s ^ la PO Ph O ,ft o3 P 70 EXHIBIT 2 A CITY CLASSIFICATION Proposed Classification of Services and Groups Includ¬ ing Titles and Salary Rates—New York City / STANDARDIZATION OF PUBLIC EMPLOYMENTS m W H O £ HH Q P o X HH m Ph P O Ph o Q 5 ? 2 cq ^ 2 2 > E rt CO CO <1 p O X <3 W Ph O X O HH H <3 O * »o rH 05 O P >H Q Eh HH o co co < P O Q W co O Ph O Ph P CO W Eh <1 Ph X Ph <1 P <1 CO Q X C W Ph O X P X (M Eh HH PQ HH H R p CO W Eh <1 Ph >H Ph Hi <1 CO CO £ o CO o Ph Ph O H P Eh E H Q < « 0 Ph P O tf O P O m co H O g a CO * * ZflZflXJlTJl < CO ooooooooooooooo OOOOOOOlNOcDTttcOOOlNOcO OOtOHiMOOOOOHHH^NIN© OiONiOhhMhM'^O t-h Saaaaaaaaaaaaaa OOOO^(NO(N 00 ^^O^rti(N co»ocoooocoooeoo 5 cO'^icotoooi>* CO I> CO CO rH t-H rH t-H Cl 4 < m <1 <1 <1 m m rn o o O CO o 00 05 C30 to rH (M CD Ph ®'n o tP GQ P o H CD -H> CO P a c 3 p ■+3 • i—• O >& n P ^ ° H ^ H g.2 < 1 PO^ CD, Ph P 44 CD CD OO -H> H= p p c 3 o 3 4-3 4— 3 GQ GQ • rH • rH GQ GQ GQ GQ < 1<1 H o -H> P H CD 0-2 &H I ~5 u e 75 03 O -4^ GQ H xn H O -H> P H CD Ph o rP p P H bB p O H P pH H Ph Hi &J 4 ®P Hh P CD W P -5 ppo MMM O Eh Hi Hi *-h Hh • i-H P C 3 03 X w o3 C 3 • pH Hi 03 O o 3.3 P CO a^ • p p to Eh h-h P O P ■rH co Eh ,3 P -fJ O-P PP -SI o ' 3 bC 00 p 73 43 Eh 03 P Hi 73 O P Ph P Eh P m « Hh .3 2 p §. s D -*3 g a P 5 ?a D co tP P D C 3 • pH’ t> Hi 03 H o o co ■e o _ Ph CO 03 _h , I • pH P W 03 co C *co<1 p -Q 03 h 3 03 •5 bfi 73 £ P p-Q p-S -H) P o CP ■I I o p o 02 , CO JH .3 Ph rt 03 p • P CD CL-P ^P a> co P P CO D -H> P CO Eh 03 . • pH 03 Eh P -3 « o> 73 P Eh bD’ i < c 3 GQ • pH P Eh Ph Ph P p-H P • pH 03 03 Ph GQ CQ 03 §73 -Ji P 03 P £ 03 ■g **■£ 73 ' n •" §c|^ ~ 03 'P.P CQ Hi P © s ^3 P “ J *43 C 3 rO -M 3 a • rH M a W © too a • rH P4 M Ph rB CD Ph —i 0) ^o- u ph O o3 'H >■£ pH © CD H-3 a c3 -M 3 CD • i-H CD cd < I P XJ 1 'P a 03 P 2® a o3 a c3 a g.S 03 Ph a <3 . ' a ^ -O • rH h -3 Ph . h -3 a JOhH Ph © -M 3 CD Ph a Ph © •+3 a -)-3 3 o O Ph © bfi a © CD CD © a H -3 Ph © > Ph Ph © a (70 bfi I * 4 ^ a ^ § a. ©' Ph Ph o • P-H a p ►“5 CD 55 © o o £a a © CD CD © H -3 ■ "H "rt cd © ^"2 3^.2 So ■ Ph » qS> O M o Q( ^ °<1 © a Ph a fcfCoQ' a rVrH H-3 i—H QJU T-H CD • H O _2 bD bfi'—' © . © a a ph % CD CD Ph Q, 0 ? P © ^ a«+H a © bfi a rH CD <3 . ° >J © feGQ o 3 03 „ H -3 © .2 S ^ ©-P “fil £-< r-j 2.2 © © © a © © HJ U 3 . 2 © © Ph Ph 7/5 • -h £1| a PojHPP O gqO © Ph . ~ a 22 1 — 1 ■> © += © 'n a* 2 p a Ph >J bJO-lj . o o S a a _S hj © © Q..99 -p +3 « © Ph © a mm Ph O • rH 1 a a os a b£-E? o o a a © © H -3 H -3 >- 3 '-sCOtZ 2 CO CM A © OJJ 0 a QhP •43 a hH © •rH Ph a a a © -M 3 m A O o O a o o GO o o3 © • r-H Ph © o o 73 / A City Classification. Exhibit 2— Continued STANDARDIZATION OF PUBLIC EMPLOYMENTS to B Eh ■*3 « « B CO co & o to o PM B O B £ M Eh B fi s 0 Pm P O « O 0 O P 9 to B o HH > « B to o J o tjh <1 tH rH GO rH 07 rH © o P H a> ra-g Ph'OH 03 ft bflp* § p a> bC be 02 ££.a.a£ p P P P P P p O O O O P aft3 Q2 0? O Ph g o3 S bD P • i—( Ph a o O P P o3 P CO • rH CO to P P < to tn^t a p 33 03 oH •a 03 P P c3 -H> P P O 03 03 P to to p p a a bo a j - HH -g.£ si o3 o p o p£ o Pm SP 03 03 +3 CO • rH bfi O JJ M'S P O P P h iC -S h a? a 43) 03 _ D a; ■P Jj 'P -mh r^^Zj C3 t) i—i bC ’P += 03 *h p o3 oo 03 • i—t P O P o3 P O P2 c3 p5 rP P 03 w p p . H c3 a p p o rG P rH a o o3 P O rfi' P 03 P O opn a pfe. c3 W - a w ‘ QO p p o3 Ph PP CO r)tHH(NCO rH 07 CO ^ rH 07 CO 07 CO iH p 03 a o 03 p o rP p ft. a 03 O, ■o3 hH p p c3 p p p o 03 03 <1 p 03 03 .■a rP 03 p to • rH bO o 'o •i—l p 03 P 03 c3 PP o3 'ft c3 rP u OEh OO < o Pm O PP o o o o3 03 • rH 03 r < o p p o • rH to co 02 H-f O P Ph O / 74 EXHIBIT 2—A CITY CLASSIFICATION ^5 05 £ • HO i o O CM *H a M w X P o ►H H < O 02 02 < a o E M O 02 H <1 « « 1-3 H CD 02 £ O M en ►H CQ o Pm Pm O H H Q < tf O PM P O « o a o a S «} a u M !> tf a QQ ^ojcooo o o o O00(N • rH j_| CM O 00 CM CO <*) rH rH rH <1 02 o o Ttn O rH H rH 02 •2-3 S’3 o >> OPh.22 • • a CO CC rO c.a a fn os SS.S £ -fH a • rH .fa .15-e m-= a 05 O «pd P MH a o • rH a a -P a ° > 05 a o • rH pH MH O 05 r^j Ph a M-= H O O'H > 05 05 a r"3 a o^pJ 2 O^P Ph O r*^ 05 > pH a 02 02 Ph 05 05 &c M-= 05 M-5 a 05 Ph a ° .aP-e^a hM Ph •_ss as 3 s §£ OBfi Ph Ph Ph Ph 05 05 05 05 . .. , 05050505__ w MMpHplPlHr1(HHHH2 05 05 05 05 05.a.a.a.y.a.a a h 2 S 5! 2 2 MMbCMbI) hJCP ^'S)'S)'bJD'S)'SDP PPPPP a a a a a a ^ a c3 H—' m SPPBPP § Ph Ph Ph H O O O Ph O MH a a M-3 02 MH a a += a a co co += a a M-3 QQ CO CO M-M CO CO ■w 8 o O CM Eh M n HH M M fc o HH Eh < O © 03 PS w co P O PS S H CO << <1 <1 <1 m m 02 m 02 o O o o O (M O Ttn 00 co H Ph »-H rH (M PO CO m i CM rH CM HH i i ii i CO CM M O CO CO oo rH 05 05 (M CO rH rH CM 02 a p CO 00 -+3 a •i-* o3 O O 00 H ii o o CO 05 02 -A .B< S® o o o ^ CM tH tH © ©’3 2 h Jh h Pi Ih 4) P 03 0) ® © oSwl !>■> Ph c3 "3 pH Ph O • i-H P © Ph © © P Ph © © P Ph O r*1 © U t g g 'Sc ^ © P © P W P Slog 3 - Ph fl.S o’ ^ J PtH 5<+H Cfl bO'bC bC bD So-2 p.2 2 P P P P PrP OrP O 43 P c3 H-= © • rH co CO H-S - ^ 2.3 00^ > 5^*© 3 pH Q. rP £ lO CO H os CO ■K) 6 PS w co P O CQ a h CO <1 m .a«i i 00 o o CO 00 IO CO T—I T-H ^ . ci • 3 c SHJ +3 .SrP-PrP £.£ £.-£02 a ^ a ^ o o o o o o O CO O CO CD 05 rH (M »0 TjH CO H H c<) o i ct> i i i CO O CM CO Ph OP OQ S> 02 Ph p c3 H> Ph P 02 Q -4-3 p c3 H-3 02 02 m Sg tn S op 2 a , s°1of> 02 02 p • Ph • r2 ?H >. . 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Lh r'j P P Ph P CD UJ UJ H H'r 1 ® * <1 02 w- 02 CD 02 <1 P P P Co c3 c3 • rH • rH • rH o o o • rH • rH • rH CQ CQ CQ r^> r*5 rPrPrP Ph Ph Ph co TtH iO rH (M CO H 02 H U M >» « s 02 p O P § X 02 02 43 p • rH P O O O 00 GO 00 (NN^ lO HHN m ^ & ◄ <1 02 rP a 02 02 o 53 rv^i r . ra O rH m 43 p • rH P rH CO O HH 'h-h m O © I o oc o O Htf ■ CO CO 02 p ii CN P ° CO P • m P ft 02 ® 43 O P rP 'p P a p © r-H io GO CO > .■ ■ ■ ^ l> 4 J tJh oj (Nh .coin . g g OO^OOhO'hcdP 43 o 43 QQ • rH bD O o p 02 ^ bD^ 43 02 P FP 5 h 02 a p 4= 02 O P bJD+= P .2 O 43 02 • rH 1 43 _ 02 43 rP •StQ P 02 Q2 p P o o p 02 bD 43 P 02 ■ j •; O <3 Fh 43 02 • rH bD 02 Ph • H -3 M gH t® P o, QQ • rH G PnOffiQ m >» P P rH O O 02 o P P 02 C2 C2 02 >> 02 >> QQ , . , . r OrPrPrPg* p a a a a G 2 s_, o pppp m O >>P 02 54 O • rH P 02 P P *P"P .2 © 02 teH a p . p 43 g43 P • P 43 tj p p p p „.g .2 o QQ 5 h o 43 C2 02 5 h »- 1 F- 1 I- 1 • 1 aaaa^^o^cc ft_C2 _C2 P ’ 02 ’ 02 {“ CQ H hh m s i—ir 5 " P P, p a a a a g CJ • '■H •rH tHH t+H t|-H t+H p 43 g 02 02 O 02 bH 02 .rH "rH • rH . rH Gh CO as tc^PPPP O 02 02 tc 02 3d p 02 02 02 P P • rH c3 p • rH Fh 02 02 > bD P • rH m •rH > 5h 02 a p CQ CO hP co (M •8 CO P TO • H #s .2 fl 02 O rP a p p • rH 5 h P P • rH Fh 02 43 02 > a o > o 43 02 •rH 02 P a p rP a 02 C2 • rH 43 P 02 5 h a a OOrHOqGOOOCqoOCq m CM cOOOOOGOOO(MO CqcqC5C5COCqC5cOCD I - 1 r*H r —1 I t—I rH m o o o o O O 2 00 OQ OQ 05 <2 rd <£< >/< >5<1 O ^>.2 ^5 g> ^ S—1 r—H ?H • rH CD /ft 1 ft 05 1-rH ^ O' ^ 2 ?H H r-H H • rH P O C3 “ O O O O O-rH 2 1 43 d 43 OQ f—1 ^ 05 03 ^ EJ3 o o O 05 o O 43 4J 43 rH . ... e3 05 o3 43 c3 05 o3 o3 fn o3 2-3 2. rOB^brQ^rO! o3 ft ft ft ft ft | fH <5 «>ft n *4 05 o © OQ fH d ft£ * 4 -H rH 05 -d •d ft ft d Oft 1 — 11—1 cq 1—1 cq cq cq CO rJH 43 OQ 1 £ d 3 •2 ft a a ft O « w OQ P O M a >H 02 <1 C.s <1 m ® i m m muim mm o o -S o O o ooo o o o o CO o ® o oi o CO CO hh CO O O 00 05 LO o CO o lO HH T-H t>- CO (N to CO rH m T-H i-P H-3 CO rH rH (M (M ^h CO rH tH rH i o ^ i i ic 00 P 73 P H-3 02 • rH bC o o rP © OQ Pm bC^ Ph 02 P (Bph S 73 P Ph c3'£ WfeH § Ph Ph Ph P +3-PH>h 02 02 02 P P P PH l-H I—I H-t r—I i—H f—H ® 03 Cj 13 Ph o Ph Ph Ph -4J H-s 02 02 CO P P 3 ^ >rH 73 73 73 0H4H> P P P ® (—( H-l PH CC > s Ph g 0) O OQ P ® 02 g HHi £ hH to 9 ■3gtfS q - Ph o3 02 ' t-5 a-j § 02 O P o GO b> P i-P Ph a O Ph g O © O rP gnO W W O Ph © © Q, © 0? P? P ZD bfi _ bfi bfi O p P p p P • rH r™’ • rH • rH P w P P w PQ PQPQ H Ph Ph O O P 00 +3 ° M 00 Ph P P 0^3 hhP ©rp © S P .2 &P3 CS3 PQ W Ph w Npa Hh o3 P O • rH © oo «H-I O T3 Ph Ph S i O P cc c3 P O • rH H^> c3 © P 73 W o3 P O • rH H-=> © © Dh 02 P PQ 80 A City Classification. Exhibit 2— Continued EXHIBIT 2—A CITY CLASSIFICATION S A S A S A S A S A S A S A to 13 r ■ 0 0 0 CM 0 0 0 0 H O CM 0 tH CO co < rH 05 rH O 05 05 CO • £ bD-2 d “ fl CD ! d -H p SE2S d d PQ PQ bD d "43 P P ^00 JiT -4_J ^OO □3 'd 1=1 Cu co " ^ a 2 g 73 o r-H rH d^ pq © M-l 2 © ft, ,• rH .d^ O d p m o ad ® p ft o to d to bD '2 PQ d d . ■+= bD^ 2 Ja PQ d w d SS ds w O d d © d PQ © -p © -S © o .bPQ Pi w CQ d o m l m <1 o • £ 43 h -1 OQ p CQ d d © Fh d d d © Fh d pop d w Fh FH o^? o. -Hi CQ 43 o o © Fh © . .Sa o.fcl '© £P.t5 •rH d O Fh tth .d 43 Hf Fh OdH © bfl C5 © :s a« 2 _, • i-H «4-H «4-t 3+j o o o PP ‘ o o -si d •a*a-S«e © ©=d C/2 C/2 O FH O 43 © © 43 • © © a CQ d Fh O 43 © . © Pi a H CQ OQ d Fh O -H © © a CQ d © o 'rd hh © 03 . rH O Fh O -H> ' ' © (H ©P 0,1—1 m d d © w Fh o Fh O d H-3 So a © d CQ Fh ■H d'd Q d o • hH -t-3 © © a OQ d l-H >» *H © o d H? H-3 © •rH Q3 d Fh d-d C/2 P d o • rH 4-3 © © a CQ d T3 o o P Prd d' © d Ww d © 43 _j CQ rd CQ d d ® © d? HH PPc/2C/20Wc/20<< rd r- H d © P .-S QQ Fh O •4-^ o © -h Fh d d P.d © d o • rH 44) © © a CQ d HH >3 Fh d 43 • f-H d g C/2 £ *S S Jh ^ d 43 P'd © d o * rH 43 © © a CQ d l-H 'P o o p d d © Fh d P w w Tt< to (M CO (N CO t-h (M CO ^ tO O © ° bfi O-H 4J 43Tjr © —H d 2'3 o a^o © CQ LLJ V_H a o O 6C d fh.2 oo 43 -rH P 5 -£ © CQ ado: CQrQP d to d -ft -J3 bfl 2 d i—» -+J) Hd Ch 6)0 3^ © >- © a*-4 OQ © d rd 43 © w Fh O 43 © © a CQ d P O H P d d oo P? « d © o 2 1 ° ® 'r-H d 82 EXHIBIT 2—A CITY CLASSIFICATION '"S3 3 3 no 3 © O 05 Eh M m ►H s & o l-H Eh O OQ GQ ◄ fa O & M O «*! © w Eh < « P5 < fa ◄ oq cq £ o CQ o Ph fa o fa fa Eh fa Q a fa P o « a fa o « § CQ fa O HH > fa fa CQ i>- »o r—I rH H aaaa TjtOO^ HIQHH hhMh m o 05 05 A 05 CO <1 CQ O 00 rH CO A o rH 05 o 00 CO A <5 CQ O 05 <35 A O iO OQ © © 8 § O _ a; “ d t> o a T3 g-2 fa g'-fa g a® .Sh 2 % J3 fa o I—I |_J -fa fa ‘Zi. CQ 0.2 fa © &g*S g §\fa £«20 tn 02 CQ CQ £ £ fa ^ Ph Ph • GO <4-H <4H I O O fa fa fe J_l 2 o o_rt o S -fa -fa 'TTri-fa S O O QC © t> (!) Oh o D a am at/2 02 02 02 ^ fa fa fa rfa fa Ph OQ -fa 02 ’ ^ • fa -fa Q. fa*^ Ph «+-i fan ° o n ® O -fa -fa o CQ -fa £ -fa fa Ph u o . -fa OQ -fa OQ -fa £ £ -fa fa Ph -§ Ph fa fa o © -fa -fa © fa © b- at> CQ ' fa « © CQ « a 02 -H a^-, 2 fa fe 2 ® fa HH fa fa fa —t -fa HH © fa fa .^P fa ^ O O fan o o fa-fapH-^OQ fa ^ fa © © CQ CQ © CQ fa H— C OQ ■g fa w . rH © fa a a . 02 fa 3 5-1 HH Q2 -fa fa fa •15 © 02 fa O -fa o © £?o •31* fa fa r—H Ph fa -fa a 02 <1 CQ © OQ fa OQ • © I a fa CQ o3 02 fa © fa CQ fa fa o © a. o fa fa §" r a © O ■SPh' a^-§ fa^ M o O O O -g o -P • • © •acQ '£'£ a fa w a a 021 © fa fa fa m CQ CQ hh fa 0^2 fa O ° ■£? fa © o © 3 a © 02 © fa aH OQ fa fa . a fa a o a aPn © fa M ^PhJQ'S t-H t-H O o O a . . © a a fa © 02 HH fa fa fa HH g fa *fa o o, 5h ©. fa cq a © T3 fa fa © bD bfi fa o fa © CQ CQ 05 CO 05 CO 05 © M fa , O w © fa 2 o 2 -h> fa © © © © a-fa w HH fa © fa S3 a-P © Ph fa © © » ft a fa *o cQ fa ^ 3 OQ 2 fa a n. © - Ph Ph fa fa ©Ph • —i -fa - © fa © o a © © -—• fa 83 STANDARDIZATION OF PUBLIC EMPLOYMENTS ^3 I ’•S £ o O 05 E-i PH m PH a X £ O >-H Eh < C CO 03 ◄ P o h Eh PH u <1 03 H Eh ◄ « « <1 03 03 £ O PH Eh PH 03 O PH Ph O H HH Eh H Q < « O Ph P O Ph O P o « p p 03 H o HH P Ph w 03 CQ O CO CO CO A 05 0202 CQ OO O OOOOOO O OOOO 00 05 O 00 CO GO 05 O O 00 CO cO 00 CO 05 CO 05 CO lO CO C3 1> 05 lOHHiO HH 05 hhhhhOI h}H 05050505 AA A AAAAAA tF O O 05^050500 O OOCOO tH to 00 OHCOOlOH CO 00 00 CO 00 HH 1—1 HHHHHOI CO HHHH <1 m © o CO co A A A A A A 05 OO 05 < m a • So ^A O 05 >-H 00 S© 05 03 =3 m • B _ cS £ Ph • P 03 a cd Ph^ 03 Ph Ph o -+J o 03 ° Ph Ph O O ~H > +3 03 O 03 03 Oh Ph £ Ph 22 PrP 0 HH HH PhHH «*-H P^^H-H «H-H 03 P 03 03 O OO Ph 0 03 CO Hf c3 P3 03 bC Si? CO H+H -t-3 O bJD P •jh Ph 03 m m w o j_, Ph O Cl,h^ &8 28 • hH 2 02 P 'ST* 02 > c3 Ph 03 m m Phi^ d p hhGQ 03 -H3 rP bfi • rH 03 /-> ^ 03 • rH <+H Cl © c3 03 Jo 03 g>8'o .S ^ p M P O 'S £ £ 2 8 |S & £ 5 Ph 03 03 £ 03 Ph 03 • rH O PQ Ph °l -+H 1 03 03 &' 03 Ph 03 03 03 PH ^ 03 P 03 03 °o< g II !f| h 3.a£ r*) d ^ ° 03 92 O co P +? Pm p ©Hj S m ph CC § ^ -§ i ® p >» Ph S | co O pO P l f l I a s u § *3 P P« c3 . 03 ^ P 03 P C3 P PQ 03^3 « P 03 S ° Co • rH X > W g 03 02 C3 • rH • rH Ph ^ ^ lls It | HO .a a o3 ® PQ , 'P 03 03 • rH > Ph 03 CO ^H S .a x aw 03 03 X C3 gPQT - —i Ph 03 ^02 C3 CO Ph O 03 G3 Ph 03 O rH > Ph 03 m 03 03 i > Ph • rH 3^ k. • rH > O^PhO or^ •so & % sf 03 CQ CO 05 05 i-H 05 CO 05 i Ph P m *§ _§-g T3 g Oh 8 g p 0 )^ o ri ° 03 g a t? bfi O • pH CO 03 03 03 p 03 P g s ST 03 r—H O . s § 02 P 03 a ^ 03 Ti 03 ge £° 03 03 • rH > Ph 03 U1 Ph 03 P P o3 >w • rH o Ph <1 > > c3 P -S? I§ Ph C3 03 d o3 P O •^H H-3 o3 bfl • i-H 02 03 > P -P» « (Ph g 0.2 cO 3 S A“- O O rH rH 05 m Ph 03 .a'5? cS > ri % Wco ^H r-H ST ^3o 03 w 84 A City Classification. Exhibit 2 — Continued EXHIBIT 2—A CITY CLASSIFICATION tc H H « tf ◄ < co CO £ o CO o PM o H £ H Q s O PM P O « o H o H-l > « H co d O m 3 cO £ © |j 02 a O g d X H 9 © ’ pH > ^ Ed © ©02 o 425 88 J <10 g i • p^ ^ > i-i id ©o d o © 1) d .SP •d -t- 3 H 02 H © l> ,d CO © O •r-H >■ > d d _ © •>—i 02 ©02d < ©-d >*d P> d C.d dn 'Srd'sJ.S g OOOOm -4-2 0) SR O o " pH £> • > © d , W © ' X d Eh O d o a- d n s (H02 O o C dSP'dr^ d rn d O §H.2h°H"hO o >>o 425 d _j d 425 Oh'S, ©M © ®P © H =) goS d o d © W rd-3 co c3 d H '4-1 © a.S d © ^ dQO CO tJ(H(NH)NH(N CO Tt< d © © • pH u © g-§to .2 d © X feD • i—i 425 > d © 02 .s=. s5 n § k. bC >• C'pq d © co i—i 21s H r*> 425 d m © > d ►H • pH > S3 •pH Cj • pH >h d a © © Sh o o o Q • pH Pd > O M H K* P> P* Pd > d d o • 1—1 425 d^ he'd d o © 85 A City Classification. Exhibit 2— Continued STANDARDIZATION OF PUBLIC EMPLOYMENTS 02 H < Ph tf O P 02 02 £ O 02 O Ph fc O w H P < P5 O Ph P o Ph o a o P2 9 fH 0Q W o M Ph H CO pJ O P3 02 oo 2AAAA O 00 CO -rJH O ^ inooh^Ph T—l 1—I CO TjH d w m - pH AA CO O pH d LQ rH <1 Ph 03 02 02 --' Ph 03 02 fH o 8 a£ .20 rP O o % fn c3 Ph Ph fH 03 02 £0 • O a x o 2^*0 c3 03 ^ _Q *3 * 2o o *4H Ph.2 ® rd OQ 02 2 43 rH g ® S O P.2-^3 h "h ^ ,3 S.SP h'P m a K 03 ■ H 03 [v o > £ ° o J3 HCC (H M rH O H H (j d rH O W •!—I *rH FA • -H O 02 §o'^3 ■s U£°°.j§ 03 d, «4H -H >CC ^ O ^ fH o 43 03 bf) • rH 43 02 03 > fl fH o ^43 02 • rH c3 fn • rH '4^ O * 43 ^ S fH o §.2 02 02 Oh fn ovd o ' 03^^ ovs o ccPOccOfcOHs a o3 •g • rH 43 02 S’-H 4P r, .2 o 4= "rH 03 a 43 02 02 0} a ^ a fn .2 o 43 03 o3 03 .SPh' 43 a 03 a o "Eh a w 03 -2 - ^ S-2 fac g a 43.2P4 hth 02 43 Ph >> 03 03 a Pn.t3 ^ . w- 1-1 03 fn >5 03 O •■S g.g pp-g ^ 4> O O) 2d3 (Dob rP O Orp—y a a 02 "H 43 fH a a • rH 02 O ZD a a 02 * -H 43 a 43 ZD fH o 43 a he • rH 43 02 03 t> a 03 OQ a a 02 Ph > > > ZD > CS3 > £ a i? 43 0 02 © 2 w > -^3 a a a o 43 02 a 86 A City Classification. Exhibit 2— Continued EXHIBIT 2—A CITY CLASSIFICATION co W Eh < PS Ph < 31 <1 CD CD S 3 S 3 fc O M Eh '0 S 3 § 3*4 O 0 p a> yy 33 34 0 0 -p Pi O 34 > 0 CO 34 ^ 0 <3 <3 PQ 33 c 3 0 0 (3 pH ^3 p rp •11 ^H fl -4-3 • pH ft CD W p 0 • 1 ^ <-H O CD • i-H P ft & m O w 0 QQ • rH ft. ft Ph m Ph m 0 0 Offl d ft O CD a> oww 33 -P ooooooooooooooooooooooo CDXHOCOIM'^OMOOOOIOOCO'^OIMCOIMCOCONCOM cOOOcOC51>»OOOCOOl>'r-HcOCO»OC01>'^t | l>'^cD-^COHti 00cO(N00^O(N00THO(MiOTtC01>C0 ^CDT^l>-iOC01>OOOCDr-iTtH(MTti(McOCOCOCO»OCOiOCO .■g £ £ S3 o o fl o3 CD Pi > Pi <3 (3 •-H r-H o Pi CD Oh *a> w <1 G* £ w £ <3 a O •43 'P 8 tD w a 87 A City Classification. Exhibit 2 — Continued STANDARDIZATION OF PUBLIC EMPLOYMENTS 02 d E-i <1 K r* « d <5 03 02 £ O 02 O Ph P o H d H H O <1 « o Ph p o Pi o d o n S tH 03 <5l>050505G000cDC0Oe0(MG^05t^TH(NC^ oo o oo oo oa o i—i oo o oo os co co o oi cp H H N 1—1 1—I T—I 1—I H H-= d c3 -a d' o HH> << cp 03 o w a d Ph ’© d a? -1-3 -4-3 .<5 a 02 o w o -4-3 c3 d -d o3 fH o P4 u 02 P4 fH 03 <5 T) fH o -+3 • iH CP 03 o w o o H-3 03 a I—I fH o • rd d d 1-5 o3 d o • H +3 d -+H • H -433 03 d d o fH -1-3 03 m fH a) fH +=> Ot 3 ft "" h d &U2 £ S 5“tj CM g Ag 03 03 d o fH fH 03 <33 03 2 'd'd 03 d 03 H-3 03 03 d 03 1 >0 fH Td d 4i d CP d d^5 CQ c?® hPW fH d d d l-p fH d 03 O CP.J3 £ d fn d 03 O CPJ3 03 ’d o ^ c«a o fH d d o o 03 03 . d d 03 O o C3 Q. “3 E£ id d ‘C ‘C ^3 CQ pH Ph Ph 03 fH § o 03 • fH fH pH d d 5 ® T! S » d o -o T3 • c3 d CP rv 03 03 03 Cd MWQcq P4 fH 03 B fH Hd d 03 <5 fH ^ 03 ^3 d o • fH -4-3 d 1 o o.2 * [a ^ Ph fn d 03 d o3 a fH T3 03 CP 03 03 M d •4-P • fH .•d CP d o CP fH go CQ H-3 3 §CQ d oS .2 fH M i—i l—l hP Ph H O CQ Ph £ 5? iz; £ » o HH >» Pi H 03 d o ffl 03 03 d O V *43©3 d’a ."S o d 88 EXHIBIT 2—A CITY CLASSIFICATION T3 05 3 si £ -H ◄ o hH fe hH 02 0Q c p O £j h-l o co H H <1 Ph « <1 P H CD CD £ O CD O di o P H H Q 3 « o Ph p o « P H 02 h-( > P5 W CD P O w a CO <1 m o GO CO lO > ,£> CO P T3 CO '"P io CQ cO '~ A —^ O O O Fh 02 m Fh 3 Fh o CD >i . Pi DC O P P c3 K bJD p Td SQ u O 02 £ p 02 -P Fh P jS o & oT^iS* §35' W r Q 02 X | w o3 to 02 "P ® |g ?|8§30 2 02 05 P .9 C0l2 . 2 P P<3 M ^ o — m Fh 02 > Fh 02 > P P P _Sd P M P W P P ’0 Fh H-3 o Fh 02 Q) 1 —I p «H c3-h •p p p .2 02 P P 3 -h= CD OQ >, „ . £ 02 S 02 Q2 -h= O 'o P •J-< rP .p CO Ph P O QO^^WOFsqfcOiie M JLh , 292 1 • rH • <-H P P a 02 P ’So p W h*> Fh P P o • *H c3 H-3 > H W Eh O H P P .2 ^ -h3 ^ p p :a © -h= C2 00 p 0D 02 T3 p Fh Eh 'P 02 P3 * q 02 89 A City Classification. Exhibit 2 —Continued STANDARDIZATION OF PUBLIC EMPLOYMENTS az w < « P2 < d < OQ CQ £ O O PM Pm O H d Eh d O PP S >H oq S o M tf H 02 d o m 9 pH 02 <1^ CO 02 O O O O 00 O i—i iO NNH GO 02 O O O O (M 00 O 00 OJ(M(NO H N H H 00 >3 d ft lO CO CO (N CO O CO 000^0000 OO^0000(M(MO (NOOOOCICOCOOSIO r—I 1 —I H H H Tp 00 >» d ft o CO C20> * £ s rj d .2 ® faro Co v -+33 co d d a 02 d • pH b£) _ d fn W S2 b' c d^ d cd oft fa ft d v —' H-= co fH 02 ft o -*-= d ft 02 SO d d a 02 _d ‘Sd £3 r 3 a ft W 02 ft £p.a g d M faD ‘So CO ISh ft-a 2 o ft -Sh coOfa fn 02 fn ft 02 02 ft] ~d 02 d m—* ft g OQ ft ■ft GO Q s ft ftft d ft fH c3 g>a» i u > o fH „ 02 OQ 02 ?h d d ft 'ft- d 3 >> bCft d 02 CO fH ft fnft o o o y 02 H 02 fH • pH ft fH o fH . . 02 02 ft Eh d fH ^ CD CD 02 d fH d 02 ft 02 •pH ^h co d d fH 02 ft d 02 +3 d d a 02 d .3 d toil a d gw •+= a “ H m ^ dft e s ® fn.d o ! § ^o,»g += O 02 cd ft ft coOPhM S 02 d 02 02 02 02 ft d d ^ o.aco.s.s.s.a^ 02 ^^.2 ° d d d dJgd® 2 d OQ t. .2 g fH ft 02 d fa ft HH H IMP O 02^ wl'g &d^ mOO H d <| c3 O fa d fH d S 02 02 s O Eh W Eh fa fa £ fa O fa M fa 00 02 ft d fH fa ft "d~d 02 o ft o • pH Sw/ ft CO 90 A City Classification. Exhibit 2— Continued EXHIBIT 2—A CITY CLASSIFICATION go H Eh < Ph tf <1 4! < ca (8 £ O ca O P-i Ph O H H P <1 « O Ph P o tf o 4 o m a ca H o hH > « H CO GO c3 73 uo O o 02 !>> o3 CD o3 73 *< h . CD • rH 73 cd • rH —H o a • h !h oj rP g>43 o Mo o3 bC CD > • pH Ph o • rH S3 p rd CD CD • hl3 3 71 aSgS CO 44 CD P Fh CD 44 P CD ^ £^CD P43 ?h 4 4 0 Wpqo .a£ CD • Fh OD 44 Fh o Fh ^ | P > Fh CD GQ § r—H P too P 0DO2 Fh Fh o Fh O GQ P*> P 73 S 'P ^ rT 1 o O P Ph rH rH CO __ , P CD 2 CD .p £ § 344 o o o 0.2 a P o • rH • -4J <3 go . P CD ft a o. O GQ P^ P o PP -*-* 2‘p g §*1 P go p 8 « 5 CD p P CD • rH P P 43 CD CD Fh pH 44 P ® P bC Fh rrH CD .s rp h Opp PP p P CD Fh O PH OD Fh O pH pH Fh P OD a| OD X3 Fh Oh Fh CD > • rH Fh Q Fh O -4> o • rH $H Q Fh o M Eh XI Eh GQ CD 73 o3 Fh Eh 73 r2 • rH ' 44 m 91 A City Classification. Exhibit 2— Continued STANDARDIZATION OF PUBLIC EMPLOYMENTS gq — < PS t* PS <1 P < GO GO £ O GO O PU O w p H S O <1 PS o Pi p o PS O P o m 3 >-< CO H O M > PS w GO P o PS a p* CO o o o © o o O CO CO 00 O (M © rH rH i-H d r—I GO GO P'5 P'5 oG cG T3 T3 <1 <3 io iO O O O O O CO (M O O CO 0 . O O O O 05 T—1 * lO 1—1 © P> • pH u p © P Sh Eh P o o P ~ 4 & P o3 hC’-d £ p f^CQ CO <4—i «-*—• JJ? P O © © p IT-d© g gpp ® P o o P MrP a p , p © o P o p -p H • ■—i GO CO © P a p p © © P -H © -H -p • pH a^ Q© c3 *. Fh ?n . p*d o> © O o S& h-H « -i g£ "p *p s a aa a X <1 aa i—i Eh Eh Eh Eh Eh g © M p p © o +? M 9 ©PS o a PhP Eh Eh GO © cS P Eh 'p'p © o P3 © • rH P4 02 92 EXHIBIT 2 — A CITY CLASSIFICATION <» £ •«s> 1 B P5 HH W M W fc O B ◄ o 03 OQ ◄ d o & M O 03 B « £ 1 3 OQ o 03 O d d o H I l-H Eh H Q « O ooooooo ^OrHOOOO tJH OtNiiO|>in HHH HHHH (M'^co ■ ft ft _D 2 03 ft 'o SS § aS.SfS S«oQ d 'fh ft ft J T3o0.2!B s a ft O 03Q 03 03 - pH ^ ^ s rd Fh 03 -+J bfi fc* Fh 03 H-3 s & d ^fh 03 03 M 02 Fh 03 pft 03 03 M *d H-= .J ■*f ft ft !h .2 ps 03 03 -( So u i Oft3- d d a 03 Fh o +3 d d d. o .3 03 03 M 03 a Fh o d 03 Fh o d Fh d o tf H OQ d o m a GQ H M PQ w o M GQ 03 ■Td d Fh H n3 ^"d Pd 8 p2 w CQ d • pH nd o •+3 GQ d o w 7 93 STANDARDIZATION OF PUBLIC EMPLOYMENTS *03 CD £ • O 03 O -M lO M 1 GO ^ GO m u 02 i*A CO O co CO O CO $«< "5 m mm t -1 03 oO o o •3 o o ^ O ■ CO H H H H CO t—I i—I p 03 a o Fh 03 © 03 03 M 03 P bfl Fh o Fh 03 PH P P\ $ PMh .O o3 to bO 2 02 W s . S p p Pm £h C3 ^ p Fh o 03 I 3 H SoS^ F-h eS c3 P p 03 P « oww® O' . H—> o & 0Q P ->m< mO >' >• p • <-H c3 0Q • pH bfi O •sg ■gs o F-i Fh P 02 § S P Ph d §4 P P TJ OQ p p ca Mh a p o a P Fh o y oi -g 'P p 2 S 03 P 03 o m la. SO W Pm t^tsa M M M WW 94 * Positions and salary rates not determined. EXHIBIT 2—A CITY CLASSIFICATION ns £ •c^ o CO o o o CO 00 00 TP HH OO TjH CO CO 00 1> 1> 1> l> bfl d • pH d c<3 02 5^ . P^ «+H «4_i ‘o ° O o o +3 m • • Ph 02 02 60 « C2 02 CB Ph P 02 02 Ph C2 02 d Vi * 1 g-d % ° 02 • s & B d' o3 a 02 Ph O -h &0 o.S § •H H W h-3 W O d ■+? 02 02 02 d c3 a 02 Ph O P m 02 O^O Ppoqcc £0* £Ph gcE CO p= ^ Ph ce 02 d o 02 P, 02 d . o'g be a P 02 • P Ph d r o c3 f£| 02 n d o • pH +» 02 02 m += m += co m d d a 02 d c3 02 o d o rH ■+3 02 02 CO Ph d W CB d jh 02 S > >’J3 • pH • H • pH IIi $H ^ PPP Ph d P CO O pi • PB^ 03 Ph Ph 52 Ph 4 -p d -p § gag ww w CB -d d o a rP 02 • ^H bD "bC.a d d *fl o8 2 02 c3 h-h ,020 o ■pi ^ ■qB d o3 a 02 03 d 02 02 d os p 3 += coco Ph 02 d c3 02 P' K *2 2 "I O 02 PhCO Ph O p 3 02 02 d3 O O 02 CB d «H-H 02 P4 tfO coco M CO bC d • ^H d c3 02 I—H o p= 02 02 Ph P 3 CO CO 95 A City Classification. Exhibit 2— Continued STANDARDIZATION OF PUBLIC EMPLOYMENTS GQ W Eh < Pi * Pi < a <5 OQ 1> 00 00 t-H rH o t-H 96 * Recruit Motor Driver, (Dept. St. Cleaning) is an office title for employes under assignment from positions in Grade I of the Street Cleaner, Refuse Collector or Refuse Disposer Groups of the Street Cleaning Service. A City Classification. Exhibit 2 — Continued EXHIBIT 2—A CITY CLASSIFICATION <1 << <1 <1 <1 <1 EG H CO CO CO CO CO CO CO CO CO CO CO CO o o o o o o o o o o o o Eh TJH Hf 03 TtH rH T*H TtH CO CO CO P lH rH rH (N (M (M H P *• i H EQ H O t-i i> P w OQ P o « S h EG cj > O a 03 Ph -M3 CO p P P P P es St M o • rH 0) 03 03 • pH -M3 o. 8 8 8 43 GO O o . # ft ft Q -M3 CO -M3 CO 43 CO 03 n GO • rH £ o P CO bfi p • •P +3 p ft P 3 , 2^0 ! . o fn P PQ 43 ft Fh ^ P t 3 cq ■ pw o ■ 43 ft 03 o Fh 03 r P Fh o 03 03 Ph CO 43 bfi P ..ss.gco gP § O P'S O "qq EG vri <1 Q a • OQ +3 •s P ft ft Q3 •+3 ft P CO d P bJD £ bc>; .p P ° p •pH d § *« | § s .Jrt o •3 g'&H S'Sd* a *y a ^ p p 0*43 o o bfi Fh fcdO fn ai.a^. Q Q < <1 <3 <1 Fh o .a Fh 03 ft P CO CO CO b£ P • i—i P cs 03 ^ 6 ? ■+3 P 03 O 03 03 Ft '— -M3 CO CO p 5 ft O -2 a c3 03 fn ftj 03 =CS £ H § CO • «+H P o .2 n 3 p co T3 'P ** a o a $ ©Ph O m 03 03 • rH > fH g 03 2 *J3 r P >-> 0.3 — 1 2 g*S .& o 03 m •H • rH S P a a ■5 p ^ 03 >> P P2--H 03 03 • S 03 S)p 3 g ^ 03 cn fn p 02 *c3 p -2 . 2 ^ +3 O ’m-d O 03 ft P fH M Tl • rH 03 CG rP +3 CO ® cn a a o fH 03 03 O -M3 p 0> H, If bC 03 •3 g EG rP <33 H-3 fH rP 03 03 13 3 S 03 P 03« >» 2 O m3 'ft P a.j 03 .P MH 2 ° O 03 .P P p g a ^a 2 # -M3 P 97 STANDARDIZATION OF PUBLIC EMPLOYMENTS ns <» ns 3 o O H PS fa 43 Q 43 fa -fa - < PhO ft<3> ShP^ fa fa fa m m m 00000 00000 ft ft ft Pi ft OQ 02 OQ 0Q 02 OOOOO £££££ > CO cc bfi fa o 3 O ^ O? -fa fa o o o o fa '— 4-3 m m o ► ■— 1 T! O 0Q O o *a^a g-o O 3 O.H oi ^ Pm Pjh j 98 ject of individual appraisal. The letters R N refer to registered nurse. The abbreviation “Maint.” refers to maintenance, indicating that maintenance is allowed in addition to the rates given. EXHIBIT 3 STATE SPECIFICATIONS Types of Representative Specifications Used in the Stand¬ ardization of Public Employments Proposed for New York State CLERK GROUP DEFINITION OF CLERK GROUP The term “Clerk Group” is used to identify those employments of the Clerical Service, the duties of which require the performance of routine or specialized office work not included in other groups of the Clerical Service. GRADE I TITLE OF POSITIONS— PAGE DUTIES— Definition: The duties of these positions are to perform, under supervision, the simplest kinds of office work. Examples: Addressing and mailing letters. Keeping office in order. Running errands. Receiving visitors. Distributing and collecting mail. Letter press copying. QUALIFICATIONS— Persons holding these positions shall have: 1. Such qualifications as may be required by the State Civil Service Commission. COMPENSATION— The range of annual compensation of this grade, with standard salary rates, is as follows: $360. 420. 480. 99 STANDARDIZATION OF PUBLIC EMPLOYMENTS GRADE II TITLE OF POSITIONS- JUNIOR CLERK DUTIES— Definition: The duties of these positions are to perform, under supervision, rou¬ tine clerical work of minor consequence but exacting some skill and exper¬ ience. Examples: Verifying extensions, additions, etc. Preparing simple tabulations. Assisting in filing. Assisting in operating mechanical office devices. Messenger duties in relation to transfer of papers, documents, etc. QUALIFICATIONS— 1 . As a basis for appointment for promotion: (a) Not less than one year of service in Grade I. (b) Such additional qualifications as may be required by the State Civil Service Commission. 2. As a basis for original entrance: (a) Such qualifications as may be required by the State Civil Service Commission. COMPENSATION—• The range of annual compensation of this grade, with standard salary rates, is as follows: $540. 600. 660. 720. 100 EXHIBIT 3—STATE SPECIFICATIONS GRADE III TITLE OP POSITIONS— CLERK DUTIES— Definition: The duties of these positions, which may call for limited supervision, are to perform clerical duties requiring familiarity with general depart¬ mental practice or knowledge of and training in prescribed office proce¬ dures relating thereto. Examples : Filing and custody of correspondence and other documents. Answering routine correspondence on the basis of prescribed payrolls. Preparing payrolls. Keeping time records. Operating intricate mechanical office devices, such as tabulating machines. Elementary statistical work. QUALIFICATIONS— 1. As a basis for appointment for promotion: (a) The minimum qualifications for Grade II. (b) Not less than one year of service in Grade II. 2. As a basis for original entrance: (a) Not less than one year of experience in work of Grade II character. 3. Such additional qualifications as may be required by the State Civil Service Commission. Provided, however, appointment to vacancies of new positions within this grade shall be filled from original entrance eligibility lists, except where the departmental executive shall certify. This certification must be approved by the State Civil Service Commission that it is not practicable to fill such position from an eligibility list. COMPENSATION— The range of annual compensation of this grade, with standard salary rates, is as follows: $840. 900. 960. 1080. 1200. Special Regulation Governing Maximum Rates: The fourth salary rate, $1080., is designated as the maximum rate for the Third Grade of the Clerk Group. Where positions within this grade involve supervisory or other independent responsibility, the fifth rate, $1200., may be designated as the maximum therefor after individual appraisal. 101 STANDARDIZATION OF PUBLIC EMPLOYMENTS GRADE IV TITLE OF POSITIONS— SENIOR CLERK. DUTIES— Definition: The duties of these positions are to perform highly specialized clerical work calling for the exercise of independent judgment and continuing responsibility, or to supervise and be accountable for the clerical work of a large bureau or small department. Examples: Answering important correspondence. Installing, revising, and taking charge of complicated departmental filing system. Passing upon vouchers for official signature. QUALIFICATIONS— Persons holding these positions shall have: 1. The minimum qualifications prescribed for Grade III. 2. Not less than one year of experience in Grade III, or similar experi¬ ence in work of an equivalent character. 3. Such additional qualifications as may be required by the State Civil Service Commission. COMPENSATION— The range of annual compensation of this grade, with standard salary rates, is as follows: $1320. 1440. 1560. 1680. 1800. Special Regulation Governing Entrance and Advancement: The entrance or advancement salary rates within this grade are con¬ ditional upon appraisal, under the rules of the Civil Service Commission, indicating that the rate requested does not exceed the value of the work to be performed. 102 EXHIBIT S—S T A TE SPECIFICA TION GRADE V TITLE OF POSITIONS— CHIEF CLERK DUTIES- Definitions: The duties of these positions are to assume complete responsibility for the clerical work of a large department, involving the highest degree of clerical knowledge and experience, and requiring administrative ability of a high order in the direction of clerical procedures. Examples: Chief Clerk, State Board of Charities. QUALIFICATIONS— Persons holding these positions shall have: 1. The minimum qualifications prescribed for Grade IV. 2. Not less than two years of experience in Grade IV, or similar ex¬ perience in work of an equivalent character. 3. Such additional qualifications as may be required by the State Civil Service Commission. COMPENSATION— The range of annual compensation of this grade, with standard salary rates, is as follows: $1980. 2160. 2340. 2580. 2820. Special Regulation Governing Entrance and Advancement: The entrance or advancement salary rates within this grade are con¬ ditional upon appraisal, under the rules of the Civil Service Commission indicating that the rate requested does not exceed the value of the work to be performed. 103 STANDARDIZATION OF PUBLIC EMPLOYMENTS Proposed, for New York State ENGINEER GROUP (D io) Professional and Scientific Service Engineer Group Definition: The term Engineer Group is used to identify those authorized employ¬ ments of the Professional and Scientific Service, the incumbents of which are required to perform duties which involve training or experience in civil, mechanical, electrical, sanitary, chemical or other specialized en¬ gineering branches. GRADE I (D io I) TITLE OF POSITIONS— ENGINEERING ASSISTANT DUTIES- Definition: The duties of incumbents of these positions are to perform, under in¬ struction and supervision, elementary or apprentice work in field or office in one or more of the specialized engineering branches. Examples: Holding a rod. Making measurements with a steel tape. Tracing simple designs. Tabulating estimates. Inspecting minor details of engineering work. QUALIFICATIONS— Persons holding these positions shall have: 1. Such qualifications as may be required by the State Civil Service Commission. COMPENSATION— The range of annual compensation of this Grade for full time service is from $720 to $1080, inclusive, with standard salary rates as follows: $720, $780, $840, $900, $960, $1020, $1080. SPECIAL REGULATION GOVERNING THE INITIAL RATE— Such training in civil, mechanical, electrical, sanitary or other engineer¬ ing branches as is evidenced by a degree granted on the completion of a standard course of instruction in an engineering school of recognized standing will be accepted as the equivalent of the first three years of serv¬ ice in this Grade. Three years of practical experience in engineering apprentice work in addition to the minimum requirements of the State Civil Service Com¬ mission for appointment at the initial rate will be accepted as the equiv¬ alent of three years of service within this Grade. Where allowance is made for technical training or practical experience under this special regulation, the State Civil Service Commission will add such tests to the competitive examination for this Grade as are necessary to determine the compliance with the prescribed training or experience standards. SPECIAL REGULATION GOVERNING TEMPORARY EMPLOYMENT- Standard salary rates for temporary service in this Grade shall be designated under the rules of the State Civil Service Commission on the basis of existing conditions provided that the third rate, $900, shall be the maximum for any such employment. 104 EXHIBIT 3—STATE SPECIFICATIONS GRADE II (D io II) TITLES OF POSITIONS- JUNIOR ASSISTANT ENGINEER JUNIOR ASSISTANT CIVIL ENGINEER JUNIOR ASSISTANT ELECTRICAL ENGINEER JUNIOR ASSISTANT MECHANICAL ENGINEER JUNIOR ASSISTANT SANITARY ENGINEER DUTIES— Definition: The duties of incumbents of these positions are to assume responsibility for the execution of definite instructions in a minor section or division of an engineering project in the field or office. Examples: Running a transit or level. Preparing or examining plans and designs, under supervision, for con¬ crete construction, bridges, mechanical and electrical appliances. Inspecting engineering work and materials. Preparing general working drawings for engineering projects. Making computations and compiling data for reports and cost records. Directing the operation of electrically driven machinery. QUALIFICATIONS— Persons holding these positions shall have: 1. As a basis for promotion: (a) The minimum qualifications prescribed for Grade I. (b) Not less than four years of service in Grade I; or (c) Such training in civil, mechanical, electrical, sanitary or other engineering branches as is evidenced by a degree granted on the com¬ pletion of a standard course of instruction in an engineering school of recognized standing, and in addition not less than two years of service in Grade I. (d) Such additional qualifications as may be required by the State Civil Service Commission. 2. As a basis for original appointment: (a) Not less than four years of experience in the particular branch of engineering work covered in the position to be filled. (b) Such additional qualifications as may be required by the State Civil Service Commission. COMPENSATION— The range of annual compensation of this Grade for full time service is from $1200 to $1680, inclusive, with standard salary rates as follows: $1200, $1320, $1440, $1560, $1680. SPECIAL REGULATION GOVERNING TEMPORARY EMPLOYMENT- Standard salary rates for temporary service in this Grade shall be designated under the rules of the State Civil Service Commission on the basis of existing conditions provided that the third rate, $1440, shall be the maximum for any such employment. 105 STANDARDIZATION OF PUBLIC EMPLOYMENTS GRADE III (D io III) TITLES OF POSITIONS— ASSISTANT ENGINEER ASSISTANT CIVIL ENGINEER ASSISTANT ELECTRICAL ENGINEER ASSISTANT MECHANICAL ENGINEER ASSISTANT SANITARY ENGINEER DUTIES— Definition: The duties of incumbents of these positions are to assume responsibility for the making of surveys or the preparation of plans, designs, specifica¬ tions and contracts for a minor section of a large engineering project or the major section of a small engineering project; to supervise or in¬ spect construction work of such project; to operate a completed section of such project; and to make investigations of and reports upon engineer¬ ing projects, as a basis for executive action. Examples: Directing, a field party on surveys, construction or repair work. Supervising a squad or division in designing and preparing plans, estimates and specifications. Assuming responsibility for the construction, installation or operation of a minor division under a pumping, watershed, power production, purification or sewage disposal project; or the installation of a heating, lighting, plumbing or electrical plant. Preparing highway lay-outs and grades. Making engineering investigations and reports relating to building encroachments, sewer construction, sewage disposal, traffic conditions, highway opening proceedings, applications for franchises. QUALIFICATIONS- Persons holding these positions shall have: 1. As a basis for promotion: (a) The minimum qualifications prescribed for Grade II. (b) Not less than three years of service in Grade II. (c) Such additional qualifications as may be required by the State Civil Service Commission. 2. As a basis for original appointment: (a) Not less than seven years of experience in the particular branch of engineering work covered in the position to be filled. (b) Such additional qualifications as may be required by the State Civil Service Commission. COMPENSATION- The range of annual compensation of this Grade for full time service is from $1800 to $2580, inclusive, with standard salary rates as follows: $1800, $1980, $2160, $2340, $2580. SPECIAL REGULATION GOVERNING SALARY RATES- The entrance and other salary rates of positions classified within this Grade are conditional upon appraisal, under the rules of the State Civil Service Commission, indicating that the rates to be designated do not exceed the value of the work to be performed. 106 EXHIBIT 3—STATE SPECIFICATIONS GRADE IV (D io IV) TITLES OF POSITIONS- SENIOR ASSISTANT ENGINEER SENIOR ASSISTANT CIVIL ENGINEER SENIOR ASSISTANT ELECTRICAL ENGINEER SENIOR ASSISTANT MECHANICAL ENGINEER SENIOR ASSISTANT SANITARY ENGINEER DUTIES— Definition: The duties of incumbents of these positions are to supervise and as¬ sume complete responsibility for the work of a main division of a small organization, or a large subdivision of one of the main divisions of a large organization, involving surveying, designing or construction; to main¬ tain or operate a major section of a large engineering project; and to make independent investigations of and reports upon engineering projects as a basis for executive action. Examples: Supervising a main division of a large bureau of design. Supervising the construction, installation or operation of a major divi¬ sion of a large power production, purification or disposal plant. Supervising the installation of a major division of a heating, lighting, plumbing or electrical plant. Supervising the construction, operation, maintenance or repair of a major division of sewers, highways, bridges, aqueducts, reservoirs, tunnels or public buildings. Supervising engineering investigations, inspections, estimates and re¬ ports for municipal improvements. Taking charge of a section of the work on the Barge canal, such as assuming charge of a residency of the State Engineer’s office. QUALIFICATIONS- Persons holding these positions shall have: 1. As a basis for promotion: (a) The minimum qualifications prescribed for Grade III. (b) Not less than three years of service in Grade III. (c) Such additional qualifications as may be required by the State Civil Service Commission. 2. As a basis for original appointment: (a) Not less than ten years of experience in engineering work, at least half of which must have been in the particular branch of engineering work covered in the position to be filled, and three years of which must have been in a minor executive capacity. (b) Such additional qualifications as may be required by the State Civil Service Commission. COMPENSATION- The range of annual compensation of this Grade for full time service is from $2208 to $3600, inclusive, with standard salary rates as follows: $2820, $3060, $3300, $3600. SPECIAL REGULATION GOVERNING SALARY RATES- The entrance and other salary rates of positions classified within this Grade are conditional upon appraisal, under the rules of the State Civil Service Commission, indicating that the rates to be designated do not exceed the value of the work to be performed. 107 STANDARDIZATION OF PUBLIC EMPLOYMENTS GRADE V (D io V) TITLES OF POSITIONS— ENGINEER CIVIL ENGINEER ELECTRICAL ENGINEER MECHANICAL ENGINEER SANITARY ENGINEER DUTIES— Definition: The duties of incumbents of these positions, which require a high degree of executive ability and specialized engineering technique, and which involve the making of decisions in administrative and engineering mat¬ ters, subject to statutory limitations only, are to supervise and assume entire responsibility for the work of a small independent organization; to supervise and assume complete responsibility for the work of a primary division of a large organization; and to make independent investigations of and reports upon engineering projects, as a basis for executive action. Examples: Acting as chief engineer of a bureau of a large department. Acting as a division engineer of one of the three divisions in the State Engineer’s office; or as division engineer in the Department of Highways. QUALIFICATIONS- Persons holding these positions shall have: 1. As a basis for promotion: (a) The minimum qualifications prescribed for Grade IV. (b) Not less than three years of service in Grade IV. (c) Such additional qualifications as may be required by the State Civil Service Commission. 2. As a basis for original appointment: (a) Not less than thirteen years of experience in engineering work, at least half of which must have been in the particular branch of engineering work covered in the position to be filled, and four years of which must have been in a major executive capacity. (b) Such additional qualifications as may be required by the State Civil Service Commission. COMPENSATION- The range of annual compensation of this Grade for full time service is from $3900 to $5400, inclusive, with standard salary rates as follows: $3900, $4200, $4500, $4800, $5100, $5400. SPECIAL REGULATION GOVERNING SALARY RATES- The entrance and other salary rates of positions classified within this Grade are conditional upon appraisal, under the rules of the State Civil Service Commission, indicating that the rates to be designated do not exceed the value of the work to be performed. 108 EXHIBIT S—STATE SPECIFICATIONS (GRADE VI D io VI) TITLES OF POSITIONS- CHIEF ENGINEER CONSULTING ENGINEER SUPERVISING ENGINEER DUTIES— Definition: The duties of incumbents of these positions, which require the highest order of executive or advisory ability, and which involve the making of final decisions in administrative and engineering matters, subject to statutory limitations only, are to supervise and assume entire responsi¬ bility for all the engineering work of a large independent organization; or to supervise the construction of engineering projects or works of great magnitude and complexity; or to give independent, expert or critical engineering advice of the highest order, as a basis for executive action relative to work of this scope. Examples: Acting as State Engineer. Acting as consulting engineer to a State department. Acting as engineer of a division of subway construction. QUALIFICATIONS- Persons holding these positions shall have: 1. As a basis for promotion: (a) The minimum qualifications prescribed for Grade V. (b) Not less than five years of service in Grade V. (c) Such additional qualifications as may be required by the State Civil Service Commission or the appointing agency. 2. As a basis for original appointment: CHIEF ENGINEER (a) Not less than eighteen years of experience in engineering work, at least half of which must have been in the particular branch of engineer¬ ing work covered in the position to be filled, and five years of which must have been in a major executive capacity. (b) Such additional qualifications as may be required by the State Civil Service Commission. CONSULTING ENGINEER SUPERVISING ENGINEER (a) Not less than eighteen years of experience in the particular branch of engineering work covered in the position to be filled. (b) Such additional, qualifications as may be required by the State Civil Service Commission. COMPENSATION- The annual compensation of this Grade for full time service with stand¬ ard salary rates, is as follows: $5700 and up. SPECIAL REGULATION GOVERNING SALARY RATES- The entrance and other salary rates of positions classified within this Grade are conditional upon appraisal, under the rules of the State Civil Service Commission, indicating that the rates to be designated do not exceed the value of the work to be performed. 109 8 EXHIBIT 4 CITY SPECIFICATIONS Types of Representative Specifications Used in the Stand¬ ardization of Public Employments (Prepared jor New York City, New York, 1915) CLERK GROUP SYMBOL (CC) The term Clerk Group is applied to those offices or employments of the Cler¬ ical Service in which incumbents are required to perform routine or special¬ ized clerical work not included in the other groups of the Clerical Service. The training and experience which are required for admission to positions in the various grades and the specific duties of incumbents of these positions are set forth in the several grade specifications which follow. GENERAL REGULATIONS GOVERNING ADVANCEMENT- Beginning with the lowest rate, advancement from rate to rate within each grade shall be made regularly in the preparation of the annual tax budget upon the completion of a term of at least one year of satisfactory service. Proof of satisfactory service shall be established by the efficiency records of the Municipal Civil Service Commission supplemented by investigation under the rules of the Board of Estimate and Apportionment. The standard of satis¬ factory service, which shall entitle an employe to an increase, shall be deter¬ mined annually in the preparation of the tax budget and shall be progressively higher in each succeeding grade. Exceptions: 1. In cases of conspicuous service or achievement recognized by the Board of Estimate and Apportionment, advancement may be made after the prescribed interval to a rate higher than the one immediately above^ 2. In those grades specifically designated, advancement shall be made only after an appraisal of the value of the work to be performed. In other grades specifically designated the initial rate also shall be deter¬ mined after an appraisal. These appraisals shall be made under the rules of the Board of Estimate and Apportionment. 3. Appointments to vacant positions made prior to February 1 of each year will be regarded as dating from January 1, when considering length of service in connection with salary increases. 110 EXHIBIT 4 —CITY SPECIFICATIONS GRADE i (C C i) TITLES OF POSITIONS— OFFICE BOY DUTIES— The duties of incumbents of these positions are to perform under supervision the simplest kinds of office work. Examples: Addressing. Mailing. Letter-press copying. Indexing. Ordinary filing. Keeping office in order. Running errands Receiving visitors. Distributing mail. Operating office telephone switchboards. QUALIFICATIONS- 1. Such qualifications as may be required by the Municipal Civil Serv¬ ice Commission. COMPENSATION— Range of annual compensation—$300 to $480 inclusive. Salary rates—$300, $360, $420, $480. Ill STANDARDIZATION OF PUBLIC EMPLOYMENTS GRADE 2 (C C 2) TITLES OF POSITIONS— JUNIOR CLERK DUTIES— The duties of incumbents of these positions are to perform under supervision prescribed routine clerical work of minor consequence. Examples: Plain longhand copying. Keeping card indices. Recording, indexing and filing correspondence. Receiving and distributing routine reports and applications. Making out and tabulating daily, weekly and monthly reports, simple charts and statistics. Registering and verifying extensions and additions on orders and in¬ voices. Writing, registering and scheduling vouchers. Recording and filing inspectors’ reports. Operating tabulating machines, adding and scheduling machines and addressographs. Performing simple or apprentice work on Hollerith or multigraph machines. Verifying time sheets and payrolls. Writing notices and permits on prepared forms. Acting as information clerk for a department in outer office. QUALIFICATIONS- 1. The minimum qualifications prescribed for Grade 1. 2. Not less than one year of experience in Grade 1, or if appointed other¬ wise than by promotion from Grade 1, in work of the character and stand¬ ard of Grade 1. 3. Such additional qualifications as may be required by the Municipal Civil Service Commission. C OMPENSATION— Range of annual compensation—$540 to $720 inclusive. Salary rates—$540, $600, 660, $720. 112 EXHIBIT 4—CITY SPECIFICATIONS GRADE 3 (C C 3) TITLES OF POSITIONS— ASSISTANT CLERK ASSISTANT CLERK (HOLLERITH OPERATOR) ASSISTANT CLERK (MULTIGRAPH OPERATOR) DUTIES— Assistant Clerk: The duties of Assistant Clerks, which may involve limited supervision, are to perform clerical work incident to preparing, compiling, entering or verifying routine office information, reports, records and forms, and to dealing with the public on routine departmental matters. Examples: Reviewing inspectors’ reports. Copying and compiling cost account records under supervision. Calculating and scheduling penalties and arrears. Filing and keeping in custody important papers and records. Checking work of diagnosticians. Selling tickets. Receiving for custody and returning property in small property divi¬ sions. Receiving and referring complaints and giving out information. Keeping time records of per diem employes. Issuing permits and notices according to prescribed regulations. Making up and verifying payroll. Filing and indexing medical records. Searching wills and corporation records. Explaining building plans to applicants. Receiving applications and issuing certificates for commissioners of deeds. Keeping cost records of mechanics’ work. Assistant Clerk (Hollerith Operator): The specialized duties of Assistant Clerks (Hollerith Operator) are to operate complicated Hollerith systems in the performance of work re¬ quiring great expertness in punching, sorting, tabulating and checking, and involving considerable responsible clerical work. Assistant Clerk (Multigraph Operator): The specialized duties of Assistant Clerks (Multigraph Operator) are to operate multigraph machines in the performance of work requiring great expertness and involving considerable responsible clerical work. QUALIFICATIONS- 1. The minimum qualifications prescribed for Grade 2. 2. Not less than one year of experience in Grade 2, or if appointed otherwise than by promotion from Grade 2, in work of the character and standard of Grade 2. 3. Such additional qualifications as may be required by the Municipal Civil Service Commission. COMPENSATION— Assistant Clerk: Range of annual compensation—$840 to $1200 inclusive. Salary rates— $840, $960, $1080, $1200. Assistant Clerk (Hollerith Operator): Assistant Clerk (Multigraph Operator): Range of annual compensation—$720 to $960 inclusive. Salary rates—$720, $840, $960. Special Regulation Governing Advancement — Beginning with the lowest rate advancement within this grade is con¬ ditional upon appraisal under the rules of the Board of Estimate and Ap¬ portionment, indicating that the rate requested does not exceed the value of the work to be performed. 113 STANDARDIZATION OF PUBLIC EMPLOYMENTS GRADE 4 (C C 4) TITLES OF POSITIONS— CLERK CLERK (BERTILLON) CLERK (FINGER PRINT) DUTIES— Clerk: The duties of Clerks, which may include taking charge of the clerical force in divisions and in minor bureaus or departments, are to exercise continuing judgment and responsibility either in independent work or in the supervision of other employes. Examples: Preparing specifications, requisitions, orders of advice of awards. Opening and tabulating bids. Receiving and finally disposing of routine complaints. Summarizing reports. Computing financial or cost statistics, estimates, etc. Receiving and assuming responsibility for the safekeeping of money in payment of taxes, water bills, permits, dock and pier fees, etc. Certifying correctness of payrolls as to proper charges of salaries, wages, time, etc. Collecting and computing data for budget estimates. Supervising employes charged with renovations, disinfections, inven¬ tories, stores and expense accounting. Directing payroll divisions in large departments. Issuing and keeping record of electric sign licenses. Sealing and keeping record of corporate stock, etc. Taking charge of central property division of Police Department. Keeping record of cases and issuing papers for courts. Preparing contracts according to prescribed specifications. Acting as Clerk to Board of Aldermen. Issuing legal notices for street openings. Searching deeds, mortgages and tax records. Installing, revising and taking charge of complicated departmental filing systems. Collecting rentals at City markets. Taking charge of large stenographic bureau. Clerk ( Bertillon ): The specialized duties of Clerks (Bertillon) are to take and develop photographs of prisoners, to take, record and file Bertillon measurements, and to identify prisoners from measurements and photographs on file. Clerk (Finger Print): The specialized duties of Clerks (Finger Print) are to take, classify and identify finger prints. QUALIFICATIONS— 1. The minimum qualifications prescribed for Grade 3. 2. Not less than one year of experience in Grade 3, or if appointed otherwise than by promotion from Grade 3, in work of the character and standard of Grade 3. 3. Such additional qualifications as may be required by the Municipal Civil Service Commission. COMPENSATION- Range of annual compensation—$1320 to $1800 inclusive. Salary rates—$1320, $1440, $1560, $1680, $1800. SPECIAL REGULATION GOVERNING ADVANCEMENT— Beginning with the lowest rate advancement within this grade is con¬ ditional upon appraisal under the rules of the Board of Estimate and Apportionment, indicating that the rate requested does not exceed the value of the work to be performed. 114 EXHIBIT 4—CITY SPECIFICATIONS GRADE 5 (C C 5) TITLES OF POSITIONS— SENIOR CLERK SENIOR CLERK (FINGER PRINT) DUTIES— Senior Clerk: The duties of Senior Clerks, which require a high degree of clerical knowledge and administrative ability, are to assume complete responsi¬ bility for the clerical work of entire bureaus or departments other than those mentioned in Grades 4 and 6. Examples: Taking charge of a central departmental stenographic bureau, as in the Department of Health. Senior Clerk (Finger Print): The specialized duties of Senior Clerks (Finger Print), which require a high degree of technical knowledge and ability, are to supervise the routine work of taking, classifying and identifying finger prints, and to perform exceptionally difficult fingerprint work requiring special skill. QUALIFICATIONS- 1. The minimum qualifications prescribed for Grade 4. 2. Not less than two years of experience in Grade 4, or if appointed otherwise than by promotion from Grade 4, in work of the character and standard of Grade 4. 3. Such additional qualifications as may be required by the Municipal Civil Service Commission. COMPENSATION— Range of annual compensation—$1980 to $2580 inclusive. Salary rates—$1980, $2160, $2340, $2580. SPECIAL REGULATION GOVERNING ADVANCEMENT- Beginning with the lowest rate advancement within this grade is con¬ ditional upon appraisal under the rules of the Board of Estimate and Apportionment, indicating that the rate requested does not exceed the value of the work to be performed. 115 STANDARDIZATION OF PUBLIC EMPLOYMENTS GRADE 6 (C C 6) TITLES OF POSITIONS— CHIEF CLERK DUTIES— The duties of incumbents of these positions, which require the highest degree of clerical knowledge, administrative ability and experience, are to assume complete responsibility for the clerical work of large depart¬ ments composed of several bureaus under the direction of clerks in Grades 4 and 5. QUALIFICATIONS- 1. The minimum qualifications prescribed for Grade 5. 2. Not less than three years of experience in Grade 5, or if appointed otherwise than by promotion from Grade 5, in work of the character and standard of Grade 5. 3 . Such additional qualifications as may be required by the Municipal Civil Service Commission. COM PENSATION—- Range of annual compensation—$2820 to $3540 inclusive. Salary rates—$2820, $3060, $3300, $3540. SPECIAL REGULATION GOVERNING ADVANCEMENT- Beginning with the lowest rate advancement within this grade is con¬ ditional upon appraisal under the rules of the Board of Estimate and Ap¬ portionment, indicating that the rate requested does not exceed the value of the work to be performed. 116 EXHIBIT 4-A TYPE OF CHICAGO CLASSIFICATION Representing Classification According to Class of Em¬ ployment (See page 23) CLASS C—CLERICAL SERVICE Positions of persons rendering clerical service or service in connection with general office work or management which does not require knowledge of any of the specialties included in other classes. Grade I: Positions the duties of which are of general routine. The following positions are hereby classified in Class C, Grade I, and placed in the following salary schedule within Grade I: Office attendant Page Group D. $300 Group C (at least three months’ service in lower group). 360 Group B (at least six months’ service in next lower group). 420 Group A (at least one year’s service in next lower group). 480 Grade II: Positions the duties of which require some skill and accuracy but not necessarily much practical experience, involving simple office routine. The following positions are hereby classified in Class C, Grade II, and placed in the following salary schedule within Grade II: Messenger Multigraph Operator Stenographic assistant (enters Group C) Group D. $540 Group C (at least 1 year’s service in lower group). 600 Group B (at least 1 year’s service in next lower group). 660 Group A (at least 1 year’s service in next lower group). 720 Grades III, IV, V, VI, VII and VIII are developed on this basis, and con¬ stitute the specifications covering the entire clerical service. 117 i