CIVIL SERVICE JOURNAL

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP78-03721A000600010004-9
• Release Decision: RIFPUB
• Original Classification: K
• Document Page Count: 36
• Document Creation Date: December 9, 2016
• Document Release Date: June 2, 1999
• Sequence Number: 4
• Publication Date: December 1, 1964
• Content Type: MAGAZINE

a
Vol. 5 No. 2 October-December 1964
The Federal Manager
and the
Third Revolution
by Glenn T. Seaborg
Page 1
 The Federal Manager and
the Third Revolution
by Glenn T. Seaborg ............. 1
"Thirty-eight Years is a Plenty"
by Elizabeth F. Messer............ 6
Man-Trap: The Deputy Chief
by David S. Brown ...............
Departments
CSC Checklist ....................... 12
A Look at Legislation ................ 13
The Awards Story ................... 18
Classification Topics .................. 25
Training Digest ..................... 27
Quotable ........................... 29
Recruiters Roundup .................. 30
Legal Decisions ...................... 31
Shelf-Help ......................... 32
U.S. Civil Service Commission
JOHN W. MACY, Jr...........Chairman
L. J. ANDOLSEK ........... Commissioner
ROBERT E. HAMPTON .... Commissioner
WARREN B. IRONS.... Executive Director
TWELVE GOVERNMENT AGENCIES have joined forces to
sponsor a Federal Science and Engineering exhibit that will be displayed
for 2 months in the Special Exhibits Hall of the Smithsonian Institu-
tion's Museum of History and Technology in Washington, beginning
March 15, 1965.
The Civil Service Commission is coordinating the effort with the aid
of a committee of agency representatives. Herbst-La Zar of Chicago
has been engaged to design the display.
The exhibit stems from a recommendation made by the Astin Panel
of the Federal Council for Science and Technology that urged the Civil
Service Commission to "provide leadership and assistance, in cooperation
with agencies and departments concerned, to communicate to scientists
and engineers as potential employees the opportunities and professional
challenges offered by science in the public service, and to inform the
general public more explicitly of the scope and achievements of Govern-
ment science and technology."
Departments and agencies participating in the exhibit are the Depart-
ments of Army, Navy, Air Force, Interior, Agriculture, Commerce, and
Health, Education, and Welfare, along with the National Science Foun-
dation, the National Aeronautics and Space Administration, the Atomic
Energy Commission, and the Smithsonian Institution.
The Commission also plans to offer the exhibit for display in museums
in several cities around the country.
FEDERAL EMPLOYEES have voluntarily contributed some $2 mil-
lion for the John F. Kennedy Memorial Library. This represents a fifth
of the estimated cost of the project and is double the estimate of an
early July report.
"This extraordinary response," said Postmaster General John A.
Gronouski, Chairman of the Federal Employees' Campaign for the
library, "exceeds our most optimistic estimates. I congratulate the Fed-
eral employees, and the key men and women who coordinated the drive
in each of the agencies."
Of the 102 agencies participating, the Department of Defense con-
tributed the most with $1,018,000, followed by the Post Office Depart-
ment with $410,337.
RISING COSTS of hospital facilities and medical care have caused
more than half the carriers of Federal Employees Health Benefit plans
to increase their premium rates effective November 1, 1964. In general,
the premium increases are in the high options of the plans, which pro-
vide greater benefits at higher cost.
In announcing the new premium rates, the Civil Service Commission
also said that an open season will be held February 1-15, 1965, during
which time eligible employees not now enrolled in a health benefits plan
may enroll, and both enrolled employees and annuitants may change
plans, options, or types of enrollment from self only to self and family.
This will be the first unlimited open season since October 1961 for an-
nuitants enrolled in the active Federal Employees Health Benefits
program.
(Continued-See Inside Back Cover)
The Civil Service Journal is published quarterly by the U.S. Civil Service Commission. Editorial inquiries should be sent to: James C. Spry, Public
Information Office, Room 5F07, U.S. Civil Service Commission, 1900 E Street (South), NW., Washington, D.C., 20415. Telephone [phone] or
Code 183, Extension 7392. No special permission necessary to quote or reprint materials contained herein; however, when materials are identified as
having originated outside the Civil Service Commission, the source should be contacted for reprint permission. The Journal is available on subscrip-
tion from the Superintendent of Documents, Government Printti~nO~ffi~ce Wash/~'p~~to^It 8 2p QZ el~r d s 'c BZ /~e t aa/d~t~oRall foipforeign
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 Approved For
understanding of the broader implications of present-day science and
technology and their potential effect on the social and economic charac-
ter of the modern society . . ."
T ODAY WE ARE all profoundly involved in the
fundamental changes being brought about by the
extremely rapid development of science and technology.
I have often referred to this new era in which we find
ourselves as the Third Revolution, thus in the perspective
of our national history distinguishing it from the first
or Political Revolution which gave birth to the United
States, and the second or Industrial Revolution through
which we achieved our tremendous economic and indus-
trial strength.
Science and technology are, of course, no strangers to
the Federal Government. As early as 1832, Jackson S.
Bache's Committee at the Franklin Institute studied
steam boiler explosions, and, besides reporting on their
scientific and engineering conclusions, the Committee
drafted a bill for the Federal regulation of steamboat
boilers. Their study was supported by a Federal grant
of $1,500. One of the first Federal grants for science,
minuscule by today's standards, it nevertheless resulted
in the enactment of the proposed legislation and the
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by GLENN T. SEABORG, Chairman
U.S. Atomic Energy Commission
establishment of the Steamboat Inspection Service, an
early regulatory agency.
From that day until this, the Federal Government's
role in the use and encouragement of science has con-
tinued to increase. Indeed, without such participation
American agriculture might be a far less potent force in
our own and the world's economy than it is today.
What has happened within recent years, however,
is by comparison so formidable and pervasive a
change as to constitute a revolution in our way of
life, differing by orders of magnitude from our pre-
vious experience.
In 1939 science was recognized by some parts of Gov-
ernment as a tool, but a tool limited in use to a few
areas in which the needs were readily apparent. The
Government assumed no continuing obligation, except
in these limited programs, either to develop or to im-
prove this tool. In the years preceding World War II,
1
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Federal budget for science.
Contrast that with the more than $14 billion a year
the Government now spends for research and develop-
ment and you will appreciate in some degree the dimen-
sions of science in the modern world.
Science and technology are no longer tools to be
used intermittently. They have been interwoven
with the entire fabric of our economic and Govern-
mental processes.
Scientific problems are continually debated at the
highest levels of both the executive and legislative
branches of Government. Scientists are advisors to the
leaders of Government and many are directly responsible
for the management and supervision of large portions of
Federal expenditures.
I have dealt elsewhere in speeches and articles with
the scientist's responsibility to participate in Govern-
ment. Here I am concerned with the equally vital need
for recognition by Federal managers-those people in
the executive branch of the Federal Government whose
decisions shape the course of major programs and ac-
tivities-of the importance of their role with respect to
the Scientific Revolution. Today the Federal manager's
understanding of scientific and technological trends sig-
nificantly affects the Nation's future economic and social
development. This fact makes it worthwhile to con-
sider the nature of these trends and to examine their
impact on the tasks of administration.
WANT TO OUTLINE some of the implications
I of these new developments by considering especially
one of the first Federal children of the Third Revolution,
the U.S. Atomic Energy Commission. The genesis of
its parent organization, the Manhattan Engineer District,
followed very closely after the first silent shot of this
quiet revolution in the year 1939. That was the year of
the discovery of the nuclear fission reaction in uranium
by Hahn and Strassmann.
Another early foray in the Scientific Revolution was
Albert Einstein's letter to President Roosevelt advising
him of the awesome prospects of nuclear energy. The
Atomic Energy Commission as such, of course, did not
come into being until after World War II.
The program which was to evolve into this agency
had begun during the war in extreme secrecy and with
expenditures of vast sums of money and a tremendous
outlay of human ingenuity and energy. There were
many special problems connected with the management
of this wartime effort which have no particular signifi-
cance for the Federal manager in today's scientific revo-
lution. But the major pattern which evolved and which
James Newman has called "the hybridization of Govern-
ow to expan
tant as a solution to the problem o
Government participation in large scientific and techni-
cal programs without corresponding increases in the size
and complexity of Government organization.
Farming out projects to industry under contract dur-
ing World War II was a development of great impor-
tance, both in Federal management and in its influence
on the pattern of our economy. The experience of the
Manhattan Project has proved to be of great value also
in developing the processes and patterns of cooperation
whereby personnel representing many scientific and en-
gineering disciplines have been able to coordinate their
efforts in completing very large and complex technical
projects over extended periods of time.
Initially the agency's major responsibility lay in the
production of special nuclear materials and nuclear
weapons, and its operations of necessity were conducted
entirely withdrawn from the public view. It was rec-
ognized early, however, that in addition to its military
applications nuclear energy held a great potentiality for
peaceful applications such as the production of electricity
from nuclear power, the use of nuclear energy for mari-
time and space propulsion, and a variety of applications
of radioisotopes in industry, agriculture, and medicine.
There was the immediate problem of assuring conti-
nuity of research and development in this field of such
great significance to our national security, as well as the
problem of assuring a continuing supply of trained scien-
tists and engineers. The Commission recognized this
responsibility and steps were taken to establish coopera-
tive arrangements with universities and colleges so that
these functions could be accomplished efficiently under
contract and without undue interference on the part of
the agency.
TRAINING SCIENCE ADMINISTRATORS-Courses such as
this Institute for Executives in Science Programs are strengthen-
ing skills of managers of Federal scientific and technical opera-
tions. Among trainees at this session was FDA's Dr. Frances O.
Kelsey, of thalidomide fame, shown listening to David Z.
Beckler, Assistant to the Director of the Office of Science and
Technology.
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 Ir pprgyA hFfgr"oRpKgSeA2t000/0951d1to C IA a Py Zs8 03d o 1 A00060010 0004-9 for this
permit the development of peaceful applications of nu- achievement can be given to the high caliber and re-
clear energy and the dissemination of technical informa- sourcefulness of the Commission's managerial staff and
tion concerning these applications both in the United to its experience in dealing over a number of years with
States and other countries, the difficulties and responsi- programs of broad technical scope.
bilities of the Ato
i
E
'
m
c
nergy Commission
s managerial
staff increased accordingly, as did their opportunities.
One of the remarkable phases of the new AEC pro-
gram was its charter for the development of civilian
nuclear power. Here for the first time a Government
agency was charged with the responsibility for promot-
ing a large-scale technical innovation. Ways had to be
found for undertaking the development of a new tech-
nology too massive for private industry to support un-
aided, and the program resulting from these efforts is
very interesting not only from a technical standpoint but
also in terms of the financial and managerial inventive-
ness required to bring it into successful operation.
A major ccnsideration from the beginning was the
ultimate goal of getting nuclear technology into the
mainstream of the American economy, the transfer of
federally financed and developed technology over to
private industry for further development and applica-
tion. There were, of course, many complexities added
by the relationship of this program of peaceful applica-
tion to the continuing program of military nuclear en-
ergy. There were also problems of establishing prices
for materials and services not yet a part of the competitive
economy, and difficulties to be overcome in making classi-
fied scientific and technical information available to
many technical people and industrial managers whose
prior experience with this field of information had been
limited.
It is remarkable in view of these difficulties and com-
plexities that the Atomic Energy Commission has been
able to achieve civilian nuclear power competitive with
conventional power in a number of high fuel cost areas
LEARNING TO USE NEW TOOLS-Interagency training pro-
grams help update Federal managers' knowledge of new ad-
ministrative tools which have been byproducts of the scientific
revolution. Here a panel of experts-(right to left, facing
camera) Dr. W. E. Cushen, Institute for Defense Analyses;
Mr. Willard Fazar, Bureau of the Budget; and Dr. William Dorf-
man, Hughes Aircraft Co.-explain the mysteries and potential
of operations research.
T HIS SAME SCIENTIFIC REVOLUTION which
has so greatly extended and diversified the responsi-
bilities of the Federal manager has also profoundly af-
fected the administrative process by providing it with
new tools. Some of these, and especially the growth of
information technology based on computer applications,
are already effecting fundamental changes in the char-
acter and structure of organization. Not quite so ob-
vious in its effects, but equally significant, has been the
necessary growth of long-range planning.
In the three major technically oriented Federal agen-
cies-the Department of Defense, the National Aero-
nautics and Space Administration, and the Atomic
Energy Commission-the very nature of their programs
forces them to engage in long-range planning. Not
only are these programs large and complex, but the time
period covered by the development of technology often
stretches several years beyond the operating budget.
For example, the period between the conceptual design
of a large nuclear power reactor and its initial operation
usually runs from 4 to 7 years.
The greatly advanced sophistication of facilities and
machines not only results in longer leadtimes but also
in greatly increased costs. In 1950 the physicist was
often carrying out his investigations with a particle ac-
celerator costing less than $1 million. The AEC now
has an accelerator under construction costing more than
$100 million and has plans to construct one late in this
decade costing about $800 million. The commitment in
money, materials, and staff represented by projects of
this scope becomes in the aggregate important not only
to the agency and Federal budgets but to the allotment
of resources within our overall economy.
AEC's formal efforts in long-range planning began
in 1958 and have undergone an evolutionary process to
keep pace with changing technology, taking into account
such new developments as studies and experiments in
the peaceful use of nuclear explosives for excavation
(PLOWSHARE), the increasing applications of nuclear
energy in space for satellite power sources and nuclear
rocket propulsion, and the rapidly increasing interest in
the use of nuclear energy for water desalination.
L ONG-RANGE PLANNING helps smooth the way
for these anticipated technological changes in op-
erations. Planning forces program directors and top
management to think ahead about technological changes
and predisposes them toward changes which they can
agree to and support financially. Without planning, the
program director will find himself reacting to changing
events rather than influencing them as he should. (Over)
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This management tool is not a universal panacea;
difficulties show up especially in developing long-range
plans for basic research, the breeding ground of the
Scientific Revolution. Nevertheless, even here the corn-
petition for basic research funds has already forced us
to look closely at objectives and criteria for the allocation
of resources. Thus, without regard to political philos-
ophy, the Federal manager finds himself faced with the
necessity of developing and following long-range plans
if he is to keep in step with the Third Revolution.
The continuing management of complex technical
and research and development projects has brought
about problems encouraging the development of
other new management techniques.
The Commission very early in its history found valu-
able applications for operations research and analysis, a
wartime outgrowth of the interdisciplinary approach to
the solution of operational problems, and continues to
rely heavily on its specialists in this field for studies
laying the basis for policy and programing decisions.
These studies have been especially useful in dealing with
complex issues relating to the pricing of special nuclear
materials, alternative uses of production facilities, the
economic and technical evaluation of proposed reactor
projects, and similar efforts.
The AEC is also finding increasing use for new indus-
trial management systems and practices-PERT and
allied network analysis techniques-as control tools for
the larger scientific, engineering development and con-
struction projects, for maintenance work, and for the
disposal of major real property holdings such as the
community of Los Alamos. At the National Reactor
Testing Station in Idaho, using PERT, the shutdown
times on two reactors were reduced 10 to 15 percent,
saving an estimated. $3,000 every 4 weeks on one re-
actor, and $14,500 every 6 weeks on another. In addi-
tion to better management, other benefits included better
utilization of manpower, reduction in radiation exposure
of craftsmen, and improved quality of workmanship.
In the case of a $2.3 million complex construction
project scheduled to be completed in 240 days, the major
construction contractor was required by specification to
submit a network-type schedule to the contractor within
15 days after notice to proceed, and thereafter to keep it
current. As a result, communication was improved,
partial pay estimates were almost automatic, and produc-
tion planning to minimize power, water, air-condition-
ing, and process gas service interruption was successful.
Difficulties in planning, procurement, and overall ad-
ministration were anticipated but have not occurred.
The Commission entered into the expanding field of
information technology, including systems analysis and
automatic data processing, somewhat more tardily than
would have been expected of the agency which has been
CI)tq
in Qj"Q~N 01 d9)nic
computers for research and development applications.
In recent months, however, we have moved ahead rapidly
in the use of automatic data processing for payroll op-
eration, personnel selection processes, and financial and
management reporting.
We are presently developing a plan for the application
of these methods to the continuous inventorying of
special nuclear materials. The Commission has also for
a number of years worked to develop improved methods
of handling technical information. In addition to its
support of research on machine translation, the AEC
has used computers experimentally to construct "semi-
automatic" indexer of its research and development ab-
stracts and to match the information content of Commis-
sion reports with the expressed information needs and
interests of AEC scientists and engineers.
The AEC search for better tools to provide timely
information for rational decisions, to assist in maintain-
ing schedules, and to reduce costs will continue.
Through active participation in seminars sponsored by
the Government, universities, and professional associa-
tions-as well as the constant exchange of experience
among the AEC organizational units-AEC Government
and industrial managers keep informed of new develop-
ments in the science of industrial management for re-
search and development and construction projects. In
addition, AEC has joined with other Government agen-
cies concerned with major research and development
programs in a task group to develop reasonable uni-
formity in requirements and reporting of data under
Government contracts. The current effort is to establish
uniform principles and practices for cost and time sched-
ule control. In this way, contractors doing business for
the Department of Defense, AEC, NASA, or FAA will
not be faced with contractual requirements for signifi-
cantly different project control tools.
T HIS RAPID SURVEY of ways in which the trends
of the Scientific Revolution have affected, as an
example, the AEC in its programs and management
processes cannot exemplify or detail a number of signifi-
cant changes already impinging on Federal managers.
Most complex and perhaps most difficult to cope with
in the long run will be the effects of these changes, par-
ticularly in information technology, on the structure and
staffing of Government agencies and what might- be
called the sociology of management. These latter are
questions that deserve the administrator's careful atten-
tion.
There is a further limitation in looking at things from
the perspective of the Atomic Energy Commission in
the very fact that it is a child of the Third Revolution
and belongs with the group of Federal agencies that are
predominantly scientific and technical in outlook.
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 Sot
SPANNING KNOWLEDGE GAPS-Specialized courses for
Federal officials and employees at various levels have been de-
veloped at a rapid rate to help keep key personnel abreast of
unprecedented scientific, technological, and socioeconomic changes
affecting Government operations. Here are just a relative few
of the courses offered through the Interagency Training Program
to meet career development needs in recent years.
The managers of other agencies will deal with
programs different in substance but all affected in
varying degrees by the trends I have discussed.
What can be said about requirements placed on Fed-
eral agencies in general at this stage of our national
development and more specifically about the men and
women who are directing their activities?
Speaking very broadly of what we must all do to meet
the challenge of continuing innovation in our national
affairs, Donald A. Schon in a recent article in Inter-
national Science and Technology, "Innovation by In-
vasion," outlined a number of problems and some steps
that need to be taken.
He mentioned the increase of automation and numeri-
cal controls in production and the extent to which these
might reduce our capacity to build new markets for in-
dustrial labor. He wondered to what extent disarma-
ment might produce dislocations of labor and techno-
logical resources and especially the extent to which it
could "complicate the problem already at hand of coping
with existing dislocations which are the products of
technical change."
"Henceforth," he says, "we must plan to meet the
social costs of technical change by promoting industrial
mobility in a new way, with the tools of prediction we
have at hand. This means coordinating the currently
fragmented efforts of a Federal Government, through
establishing interagency committees, or nominating one
agency as the coordinating body for Government. It
means relating State programs to one another for effec-
tive regional action. And on both Federal and regional
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evels, it means connecting Government and private
programs."
This is a broad perspective-yet not broad enough to
encompass the full range of programs and policies which
devolve upon the Federal manager in the many agencies
of our Government. Nothing is said about our national
involvement in a wide range of international programs.
Many aspects of the Government's work in education,
health, and social welfare are not included.
It is manifestly impossible for the Federal manager
confronting the challenge of the Scientific Revolution to
become knowledgeable in all of the scientific and techni-
cal fields with which he must deal. Indeed it is becom-
ing increasingly hard for the scientist to keep current
in his own specialized niche of scientific learning.
Scientific literacy is the real need for today's Fed-
eral manager-an understanding of the broader im-
plications of present-day science and technology and
their potential effect on the social and economic
character of the modern society.
He will need to repair this understanding from time
to time and maintain an active curiosity about what is
going on in science-especially at its growing tips.
T HE FEDERAL MANAGER'S need for knowledge
becomes more specific as he turns his attention
toward technological changes affecting the administrative
processes as such. Here his knowledge needs to be
sufficiently detailed, technical, and accurate to enable
him to deal intelligently with the alternatives and op-
portunities these new techniques provide for his use. In
view of the dependence of most of these newer methods
on some of the more basic areas of modern mathematics,
he might do well to acquaint himself with these areas-
not an insurmountable task by any means.
But I would like to stress most of all the breadth
of education needed today by every manager of a
significant portion of the Federal Government's ac-
tivities. To my mind, this means a liberal education
in the true sense, encompassing adequate courses in
the basic sciences and mathematics, economics and
social studies, not forgetting history-public admin-
istration and management sciences, certainly, but first-
hand educational experience also with literature and
the arts.
I would say that the Federal manager can be and often
is drawn from any of the widest range of professional
backgrounds. For a particular job he may need profes-
sional training in a given field but, at the higher execu-
tive levels, he will need the perspective and capabilities
that go with a wide range of interests.
Only this kind of man can meet the challenge of
the Federal administrator in today's world.
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Early Retirement Survey
"THIRTY-EIGHT YEARS
IS A PLENTY"
by ELIZABETH F. MESSER
Assistant to the Deputy Director
Bureau of Retirement and Insurance
U.S. Civil Service Commission
"Thirty-eight years is a plenty."
,,if you work to the day you die, you're missing some-
thing good-like never being a boy."
That is the way two annuitants answered the Civil
Service Commission's question about why they retired
early from their Government jobs. "Early" means be-
tween the ages of 55 and 60, after at least 30 years of
work in the Federal service.
And would they do it again, if they had it to do
over? They would., indeed! Said one homespun phi-
losopher: "I live alone and am as happy as two bugs
in a rug. I have my flowers and cameras and hi-fi, and
I do not have to answer to anyone. I am in Hog Heaven.
I am healthy and ornery as they come, do my own cook-
ing ... sleep as late as I want ... give the housework a
lick and a promise when it gets too bad ... watch any
TV program I desire, cuss the TV commercials-who
would want more?"
THESE ANNUITANTS, and the 2,999 others who
responded to a recent Civil Service Commission
questionnaire about early retirement, recount an absorb-
ing and richly human story of their motivations, their
post-retirement life, and their attitudes about early re-
tirement. This is the story, told partly in their own
down-to-earth words.
All of them retired between the ages of 55 and 60,
and all had at least 30 years of Federal service. Because
they had not yet reached the "normal" retirement age of
60, the annuities of all were permanently reduced a speci-
fied percent for each year or part of a year they were
under age 60. Those who retired in 1956 did so under
considerably less liberal provisions of law than the others:
they took a greater reduction for each year they were
under 60, their annuities were computed under a less
generous formula, and exercise of the right to provide an
annuity for their survivors cost them more.
THE EMPLOYEES WHO RETIRED EARLY
Many of the early retirees had more than 30 years of
Federal service to their credit when they left, and some
had as much as 40, 41, and even 42 years.
Most left jobs that paid in the $4,000 and $5,000
brackets and that offered limited promotion opportuni-
ties. A surprising 4 out of 1.0 had been post office
clerks or carriers, and an additional 1 had done other
postal field work; 2 had been in trades or technical fields
or were unskilled workers; 2 had been in nonprofessional
white-collar jobs; and 1 had been an engineering, scien-
tific, or other professional worker. Most said that they
were foremen, supervisors, managers, or executives at
the time they retired, and most were men.
Their civil service annuities ranged from less than
$100 a month in 19 instances to as much as $1,000 a
month in 2 instances, but 6 out of 10 received annuities
between $200 and $299 a month.
A third of them retired during their 55th year, the
earliest in which they were eligible. A fifth (631) of
them, however, were already in their 59th year before
they exercised the option and so had worked practically
to normal retirement age.
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WHY THEY RETIRED EARLY
Most said they left early because they wanted to enjoy
retirement before it was too late, but economic reasons,
dissatisfaction in Government, and health and family
reasons were cited frequently. Their views of the rea-
sons others retire early followed the same pattern.
The one most frequently given reason was "wanted
to quit while still able to enjoy retirement." Over half
of all who responded gave this as one of the reasons, and
over a fourth gave it as the main one. They often
elaborated:
I was spending all my time making a living,
so that I had no time to live. When I found
myself going to sleep over the newspaper, I
decided it was time to quit.
I wanted to travel more. I had never been
abroad and I knew that if I waited too long I
would never make it.
I was tied down to work and studying from the
age of 14 years until I had 33 years of service.
. . . It was a long drag, and I felt that I would
like more time to myself.
"EARLY RETIREMENT" SURVEY
The "Early Retirement" survey reported in this
article was made at the request of the Subcommit-
tee on Retirement of the Senate Committee on
Post Office and Civil Service. Subcommittee
members asked repeatedly, during 1963 hearings
on bills to liberalize the 30-year optional retirement
provisions of the Civil Service Retirement Act,
why employees elect to retire early; how many work
elsewhere after retiring, in what kinds of jobs.
They wanted this information to assess better the
magnitude and the probable impact on the legis-
lative changes being considered. Since the an-
swers were nowhere available, Civil Service Com-
mission Chairman Macy agreed to obtain them
from a sample group of "early" Federal retirees.
Questionnaires were sent to half of all the still-
living annuitants who retired in 1956, 1959, and
1962 under the "55-30" optional retirement pro-
visions. (About 665 of the 7,859 who originally
retired in those years and under those provisions
are no longer living.) A total of 3,002 usable
responses, more than a 91-percent return, had
been received by the time tabulations began. They
provide a wealth of information that will undoubt-
edly have interest far beyond that of the Senate
Subcommittee which requested the survey. A sta-
tistical summary of responses to the key questions
is given at the end of the article.
C A-rrP7~-0317n1A09
ns ni ~IPOs daen
y a er s ami y as a n9 is o
death from heart attacks. . . . I was not going
to take a chance with suddenly dying without a
few years of not working.
Lots of my coworkers have kept on working
since I retired, and today they are dead. I
had my home paid for, a small farm, three
rental units, and have a garden, chickens,
birds, pigeons, and geese. Do lots of fishing,
hunting, trapping, and enjoy myself generally.
I have not worked one day since retiring except
a few days jury duty. I enjoy raising flowers
and have a mint julep at the end of my day.
Many, especially ex-postal workers and professionals,
left for economic reasons (the second most frequently
cited reason) :
I put in over 39 years and had to quit and get
another job to have a living salary for my old
age. I have enough quarters now for social
security, but I had to quit my lifetime job to get
it.
My wife is a registered nurse. For us to get
some place where she could work as much as
required is the only way we could give our
three children a college education. Merely a
business matter.
I worked 36 years; 16 of that I was compelled
to work a dual job. Having a family, I
decided at 55 to retire. My pension plus a job
would enable me to live better, and my health
would not be impaired by two jobs.
As a trial lawyer for the Government, I dealt:
continuously with outside lawyers who were
getting from two to five times my salary for
comparable work. On my frequent assign-
ments away from home, I had to stay in third-
rate hotels and eat cheap meals, and still pay
an average of $5 to $10 for the privilege, while
opposing counsel on the same cases lived well
at the expense of their clients. . . .
Why shouldn't employees retire early when they
can earn more than half as much social
security in 6h years as they acquire in 37 years
of Federal service? And I have earned these
benefits So- So- much easier!
Some-the professionals more than others-had be-
come dissatisfied:
Believed I had reached the end of the road at
GS-16, wanted a new challenge.
I served 38 years, 3 months, 10 days in the
service, and felt tired of the same job. I was
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 ApirO~/oP,f 1For same Relo sari 000/090/1 ns CIAoRDSPm8 03721iAg00work-, or 060001t0004 9 working con-
Too much time spent justifying your existence.
Not enough time spent on work which has
taken years to learn and for which you are
qualified. Too many persons not
telling engineers how, and where,
much. Too many auditors with
power.
engineers,
also how
too much
I hated junk mail. . . .
If Post Office would stop counting the mail and
start delivering it, the unemployment figure
would probably rise to an all-time high. . . .
Anyone who doesn't retire from a large post
office at the earliest possible date either can't
affordit or is already crazy.
And some retired for health and family reasons:
The winters seemed to get longer, the weather
colder, the load heavier, and the strain greater.
And just the opposite in summer-hotter and
more miserable. [A former letter carrier.]
I did piecework for 39 years and piecework is a
very nerve-racking job. It is especially hard to
keep up the pace after you are 50. . . .
I had an invalid father to take care of, my
wife was sick in the hospital, I was run down
because of the strain. . . .
. . . tension kept mounting so as to be almost
unbearable. :[f you made a mistake, it could
cost 150 to 200 lives and several millions of
dollars worth of equipment. [A former air
traffic controller.]
There were a variety of other reasons: desire to de-
vote more time to farming or other family business;
dislike of "bumping" other employees during reductions
in force; a feeling that good performance on the job
demanded a younger, more vigorous person. On this
latter point, one annuitant said: "I saw older people in
the same work trying to hold on and having to be carried
by the balance of the crew, and I knew how much extra
work I had to do to carry them. That helped me decide
to retire before I got in that class." And several men
suggested to the Commission that perhaps its question-
naire designers weren't really on the ball: "This ques-
tionnaire seems to assume that all of the decisions are
made independently by the subject. Can it be that the
U.S. Civil Service Commission underestimates the power
of a woman?"
No change in work, or in working conditions in Gov-
ernment, would have held them longer, said 4 out of
10. But some others said that they might have stayed
if they'd had a raise in pay, different supervisors or co-
ditions (traffic and transportation problems were often
mentioned here).
Three out of 10 reported that they made the retire-
ment decision rather suddenly, but 2 had made definite
plans, far in advance, to retire as soon as they could.
The required reduction in annuity delayed the retire-
ment of over a fourth of them (28.8 percent) until
some time after they first became eligible.
THEIR EMPLOYMENT STATUS
The majority of those who retired early have worked
some since leaving Government-usually for short peri-
ods of time and in less demanding and less than full-
time jobs. A higher proportion of postal employees,
especially clerk-carriers, worked than did employees in
any other pay system or occupation. Those who held
scientific, engineering, or other professional positions in
Government ranked next highest, followed by blue-collar
and technical workers, and other white-collar workers.
Over half of all who have worked at any time since
leaving Government, however, did so only temporarily,
part-time, or occasionally (Figure 1). An unknown,
but substantial, number of those who worked at some
time after retiring no longer do so. Well over half put
in fewer hours on the job than they did in Government;
only 187 worked more hours outside than in the Federal
service (Figure 2).
Most who have worked seem to have taken easier jobs
than they had in Government. Many have been self-
employed, and many others went into service occupa-
tions. Most of the post-retirement jobs have been in
clerical or administrative fields, with unskilled, semi-
skilled, and technical employment next most frequently
reported. Very few early retirees (218) said that they
have done professional work since they left. The
kinds of post-retirement jobs listed and the write-in
comments indicate clearly that post-retirement earnings
are usually modest. One person explained that there
is quite a demand in private industry for retired civil
servants because "salaries are not high (mostly nearer
the minimum wage law), and young people cannot raise
families on the small income."
THE JOBS THEY'VE HELD
The specific kinds of jobs early retirees have held since
leaving Government have been even more varied than
their reasons for retiring:
Bought a farm and raised Christmas trees. . . .
I sold my Christmas tree business last year and
have retired or good, I think.
I have a small route of coin-operated vending
and service machines.
(Continued-See RETIREMENT, page 20.)
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 Approved For Release 2000/09/11 : CIA-RDP78-03721A000600010004-9
by DAVID S. BROWN
Professor of Public Administration
The George Washington University
ORGANIZATIONAL
MANTRAP:
THE DEPUTY CHIEF
A CHARACTERISTIC OF TODAY'S large organi-
zation, both private and public, is the manner in
which the position of deputy or assistant chief has pro-
liferated.
Indeed, a sufficient number of deputy directors, ad-
ministrators, managers, superintendents, chiefs, and de-
partment or division heads is already on hand to form a
new professional association concerned exclusively with
the problems and preservation of the species.
Many of these deputies are, of course, badly needed,
but many others are not. What is worse, they are get-
ting in the way of effective performance by confusing the
leadership role while at the same time adding another
hierarchical level to the organization. Consider the
cases of the following:
-The head of Staff Service Division A, consisting of
only four branches, has a deputy. The boss explained
that he was needed to "man the fort" when the former
was away from his desk.
-A field division of five elements has a chief and
deputy although both readily admit that they are not
overburdened with work. Reason : field offices in this
agency follow a standard organizational pattern regard-
less of workload.
-A leader of five units (a total of 15 people) saw
himself as the policymaker and his deputy as the person
in charge of operations. Both, of course, became in-
volved with policy and operations, and things some-
times became badly tangled.
These illustrations are by no means unusual. There
are many instances of organizations with three, four, or
five divisional units, or people, which have both chiefs
and assistant chiefs. Occasionally, there will even be
cases of a deputy in organizations with as few as two
divisions.
On the face of it, of course, there seems much to
recommend the single deputy arrangement. It has his-
toric roots, as military experience suggests. It is a de-
vice for sharing the leadership load as that load multi-
plies in volume and complexity. It provides a "spare
tire" for security coverage when the boss is absent, as
THE AUTHOR
DR. BROWN, Professor of Public Administration at The
George Washington University, has held a variety of positions
in the Federal service-two of which were at the deputy level.
This, he says, has given him "an opportunity to observe firsthand
some of the problems of relationship to be encountered."
He has also served in Pakistan with a party from the Univer-
sity of Southern California and in Scotland at the Centre for
Management Studies at the Royal College of Science and
Technology.
October-December 1964 9
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 our oqWprrqv&tdgfvi rirgigl"ggts2PiQW09/all : --RfQPoX~dQ~72ol1O0940WV9,Qs4aRat is
Vice President testifies. It brings additional expertise left.
to the top levels. It is a "proving ground" for executive The likelihood of conflict between chief and deputy
training. Indeed, one of its illusions is that its rationale is increased when any of a number of circumstances pre-
is so easy to support. vail. When the leadership workload is light, there is a
A closer look, however, at the manner in which the
chief and deputy actually work together will often show
another and less convincing side of the picture, as the
following criticisms suggest:
(1)
Division-of-labor problems are created between
chief and deputy which are always difficult, some-
times impossible, to resolve.
A new, and often unneeded, hierarchical level is
added to the organization.
The span of control is reduced at a time when
organizational theory is seeking to expand it.
Duplication of effort and overlap of duties fre-
quently result.
Uncertainty and confusion take place among
those at the lower working levels.
Disagreement, and sometimes open conflict, is
encouraged between the boss and his chief sub-
ordinate.
These are serious charges. Not only do they place
large requirements on the individuals who are called
upon to fill the principal and deputy roles, but, if proven,
they also place dubious burdens on the organization as a
whole. Let us examine each in greater detail.
(1) Division of Labor. For the principal and his
deputy to function properly, there must be some kind of
workable division of labor between them. This means
that there must be some way of dividing up the tasks to
be undertaken so that others will know with whom to
deal on specific matters. One hears occasionally of two-
man teams which have worked together over a period
of time without such an arrangement-that is, with no
discernible pattern regulating what each is to do--but
my own observation is that this does not happen as fre-
quently as is claimed.
Sometimes the workload is split between "inside" and
"outside" activities, between "policy" and "operations,"
between "big" issues and "lesser" ones, or between di-
visions. The last sometimes occurs because one man
(often the chief) prefers, or thinks he is better at, one
10 Approved For Release 2000/09/11
tendency to compete for what is left. Differences can
also arise over policy and methods, or when, as is some-
times the case, the deputy stands higher in the views of
either superiors or subordinates than does the chief. If
the deputy is given operations-which is usually thought
of as the least desirable share of the assignment-he may,
in fact, turn out to be more influential than his boss.
(2) A New Hierarchical Level. The existence of
a deputy with real authority inevitably introduces an-
other hierarchical level into the organization. His work
must be reviewed in some form or other by the chief,
and, of course, he can be reversed. Some chiefs actually
encourage appeal from their subordinates' judgments
without really seeming to do so, to show their fairness
to others.
For whatever reason, another hierarchical level has
been added to the organization. One more step has
been put into the communicational and decision-making
processes; one more filter has been inserted.
Those who have tried to visualize these relationships
on the organization chart are quite aware of the problem.
Should the chief and the deputy both be in the same
"box," or should there be a separate "box" for each?
Should one overlay the other? General practice is to
box them together but this does not mean this is the
way things actually work out. Whether a new level, or
only half a one, has been added, there is always one ad-
ditional person in the pecking order.
(3) Shortening the Span of Control. Having a
single deputy shortens the span of control and lessens
the delegation which would ordinarily be extended to
the operating levels. This can have repercussions in a
number of ways. The deputy is seen as a bottleneck by
those whose authority has been lessened by his presence,
and perhaps as a usurper by his boss. It is easy for both
to resent him.
(4) Duplication of Effort. The principal-deputy
relationship often produces costly duplication of effort.
Consider, for example, the need for informing each of
what is going on in the organization, as well as what the
other is doing. Much paper must be seen by two people.
Both must be briefed. Many times both must attend
meetings. Such practices occur frequently and routinely.
Over a period of time, they can become very costly.
(5) "Deputy Problems." The existence of an as-
sistant chief creates a special type of problem relation-
ship between the assistant and his subordinates which
may be identified as "deputy problems." These may
appear in a variety of forms, but whatever their base, they
detract from the deputy's usefulness as well as his status.
CIA-RDP78-0372f4V60J,& fiJb68 AL
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Ifh~is seen as an "heir apparent," as some assistants chiefs? Some of the reasons are good ones, but others
are, he becomes the object of the familiar "testing" are more likely to be rationalizations and well after the
phenomenon. What are his areas of weakness, of un- fact at that.
certainty? How well does he really stand with the boss? An honest explanation in a great many cases will be,
Jealous subordinates know many ways of making life "Why, we've always had an assistant chief, or at least as
unhappy for fledgling executives. long as I can remember." In one bureau, the regional
If there are difficulties between the two principals, no office's explanation was that national office instructions
matter how slight, these will be picked up by those below called for one. Those in the position-both chief and
them and almost certainly amplified. An interesting deputy, incidentally-admitted they were not happy with
side effect is that subordinates are given the opportunity the arrangement, but SOP called for it. They would
under bifurcated leadership to select the superior he re- not think of questioning Washington-at least, in this
t
t
i
i
l
por
s
o on a g
ven
ssue. Natura
ly, he picks the one matter.
most likely to agree with his point of view.
One more point should be mentioned: when father
and mother disagree, the children are more than likely to
fight among themselves. Differences between superiors
in the administrative organization result accordingly in
disagreements between subordinates. This is a byproduct
of the system.
(6) Conflicts Between Chief and Deputy. Last
but by no means least are the possibilities of conflict be-
tween chief and deputy. Indeed, as the above suggests,
the situation is built to order for them. Consider the
following:
-The boss gives the deputy the unpleasant jobs-the
ones fraught with "danger," or the ones he doesn't
want to do.
-The boss takes the credit, or seems to, for successes,
but blames his assistant for the failures. Although
the two are expected to complement each other, they
really disagree on some rather basic issues.
-The deputy is considerably more successful in deal-
ing with people (key people?) than the boss, so
jealousy develops.
-Or, if you like, the boss himself is more successful
in his relationships, so the deputy is the failure.
-The deputy is seen as a rival for the boss's job.
Such situations, of course, do not always occur, but
they appear frequently enough to raise major questions
concerning the use of the single deputy.
If the single deputy role has so many defects, why are
there so many of them in public administration today?
Why does the organization telephone book continue to
list the names of so many deputy directors and assistant
A good case for a deputy is often made because of the
volume of the work to be done. The Forest Service,
after a major study of its field installations, concluded
that this was the case. The boss cannot be expected to
be everywhere at once. So an assistant chief was created
to help share the load. Sometimes also the case is made
for an "inside" man and an "outside" man, which is,
of course, another variation of the work volume idea.
The deputy may be a "spare tire" or "stand-in" when the
boss is away a good deal of the time. Considerations
such as these may have a great deal of merit, but each
needs to be examined carefully to see whether or not
some other arrangement might be more satisfactory.
There are other reasons for having a deputy, some of
them hidden ones. Take, for example, the matter of
status. "I'll have my assistant take care of that," a
division director may say, implying that his role is of a
loftier nature. The principal may feel insecure in cer-
tain areas, or not want to do certain things, such as pro-
viding supervisory leadership. There are the cases also
where the chief is given a deputy by those above him.
They no longer trust him and, like the central committee
of the Russian Communist Party, want their own man
in the organization.
These are some of the reasons why it is so easy to add
an assistant or deputy to one's organizational directory.
All chief-single deputy arrangements, of course, are
not bad, nor are all deputies a burden on management.
The fact that there are defects in the system should serve
as a reminder, however, that each case should be looked
at on its own merits.
Situations where the use of the deputy may be war-
ranted will include the following:
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 Approved For Release 2000/09/11
(1) Where there is a large amount of work to be
done in the leadership of a large organization. The
top man may concern himself with outside (or clientele)
affairs, while the deputy will spend most of his time with
internal operations. Thus, opportunities for conflict or
overlap are minimized.
(2) Where the work of the organization readily di-
vides itself into major, logical groupings. Each can
then provide leadership to an appropriate segment of it,
although the primacy of one of the two is recognized.
(3) Where the organization (or division) is new or
expanding and a premium is placed on getting things
under way.
(4) Where geographical considerations apply. The
deputy may be head of a major field installation, or
responsible for certain area activities.
(5) Where the single deputy is in training, although
not necessarily for the job the principal holds.
(6) Where there is a record of two men having
worked well together before in team relationship, and
where the volume or priority of work calls for more than
one man.
Whatever the arrangement, its terms must be under-
stood, and accepted by all of those concerned, including
those subordinate to both principal and deputy.
The alternative to the use of the single deputy is really
quite simple. Get rid of the position. The leadership
role belongs clearly to the chief. The operational re-
sponsibility lies with the heads of the next-level units
below him.
The deputy is no substitute for an ineffective chief.
Neither should he be asked to do the work of the unit
heads. They will never do better than they are currently
doing if they are not given the opportunity to do so.
Management will never develop the future talent it needs
unless it works positively toward such a goal.
If the chief needs assistance in being informed, in
informing others, or in performing particular services,
special assistants can be added. These, however, are not
the same as a deputy, even though, unhappily, many
deputies seem to have become personal assistants to their
supervisors.
The rewards of a campaign to reduce the number of
assistant chiefs in an. organization may not be immedi-
ately seen but they are sure to be felt over a period of
several months. Not only does a saving in manpower
A selection of recent CSC issuances that may be of
special interest to agency management:
? FPM Letter 531-30, Appointments Above Mini-
mum Rate of Grade Because of Superior Qualifications:
-authorizes, when necessary to meet the needs of the
Government, appointments at above-minimum
rates of grades when candidates for certain posi-
tions possess unusually high or unique qualifica-
tions.
? Bulletin 550-9, The Dual Compensation Act:
-transmits detailed summary of the provisions of
the new Dual Compensation Act, an act designed
to aid the Government in obtaining well-qualified
persons for civilian positions through modification
of prohibitions on the hiring of certain retired
military officers, and to regulate the holding of
two civilian offices by one employee.
? FPM Letter 290-1, Automatic Data Processing in
Personnel Administration:
-provides guidelines on the use of ADP equipment
in personnel management and administration.
? FPM Letter 571-19, Payment of Travel and Trans-
portation Expenses Under Public Law 86-587; Additions
to theList of Manpower Shortages:
-adds clerk-dictating machine transcribers, GS-3,
and GS-2 trainees for the same position to the
shortage list for which appointees may be paid
travel and transportation expenses to their first
duty stations.
-Mary-Helen Emmons
result in a saving in dollars, but a reduction in the num-
ber of hierarchical levels and a broadening of spans of
control will almost certainly help to develop personnel
at all levels of the organization.
It is easy to remark in this day and age on the vestigial
characteristics of the locomotive fireman, the hand-set
printer, or the elevator operator. It is far more painful
to find that other kinds of featherbedding may be taking
place on one's own premises, and that we also, either as
chiefs or deputies, may be personally involved.
Of all the mantraps in large organizations, the single
deputy is one of the most insidious.
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 Approved For Release 2000/09/11 : CIA-RDP78-03721A000600010004-9
A Look at
?(vNF 1"I:FU[I 1 l1 ff r CI "ilp ~~~~f
LEGISLATION
Legislation enacted by the 88th Congress, second ses-
sion, as of September 21, 1964:
Public Law 88-459, approved August 20, 1964,
clarifies existing statutory authority and regulations which
authorize the Government to provide rental quarters and
certain related services for Government personnel. Pro-
hibits forced occupancy of Government rental quarters
unless the head of the agency concerned determines that
such occupancy is necessary to render proper service or to
adequately protect property. Such prohibition, until
recent years, appeared in annual appropriation acts.
Public Law 88-519, approved August 30, 1964, gives
to United States District Courts concurrent jurisdiction
with the Court of Claims to hear civil actions or claims
against the United States to recover fees, salary, or com-
pensation for official services of officers or employees of
the United States where the claim does not exceed the
amount of $10,000.
Public Law 88-558, approved August 31, 1964-The
Military Personnel and Civilian Employees' Claims Act of
1964-extends to other agencies of the Government the
authority now possessed by the military departments to
settle claims, not to exceed $6,500, against the United
States by members of the uniformed services and civilian
officers and employees of the United States for damage to
or loss of personal property incident to their services.
DUAL COMPENSATION-DUAL EMPLOYMENT
Public Law 88-448, .approved August 19, 1964-The
Dual Compensation Act-simplifies, modernizes, and
consolidates the laws relating to the employment of civil-
ians in more than one position and the laws concerning
the civilian employment of retired members of the uni-
formed services. The law among other things (1) re-
peals the obsolete laws which have prevented the Govern-
ment from recruiting many retired military personnel
who possess special skills; (2) provides appropriate safe-
guards so that retired military personnel so employed will
not have an unfair advantage over civilian employees in
such areas as reduction in force, leave accruals, and career
opportunities in the Department of Defense; (3) provides
reasonably uniform treatment for the various categories of
October-December 1964
retired military personnel who are employed in Federal
civilian positions; and (4) provides that a person holding
more than one civilian position will be entitled to receive
basic compensation for not more than 40 hours of work
in any calendar week (Sunday through Saturday).
HEALTH BENEFITS
Public Law 88-284, approved March 17, 1964, amends
the Federal Employees Health Benefits Act of 1959-to
remove certain inequities. Permits enrolled employees
to continue their coverage when placed on employees com-
pensation even though the injury giving rise to compensa-
tion benefits occurred prior to enactment of the Health
Benefits Act. Eliminates lower Government contribution
for female employees with nondependent husbands; pro-
vides that employees who enroll up through December 31,
1964, who otherwise might be ineligible to do so because
they did not enroll at the first opportunity, may continue
their coverage after retirement; includes foster children
under family enrollments; continues coverage under
family enrollments for unmarried children up to age 21;
grants to an enrolled employee who is erroneously re-
moved or suspended and then restored an option of
enrolling as a new employee; and authorizes the Civil
Service Commission to transfer expenses from the ad-
ministrative reserve fund under the Federal Employees
Health Benefits Act of 1959 to the contingency reserve of
the various health plans in proportion to the subscription
charges.
Public Law 88-426, approved August 14, 1964-Gov-
ernment Employees Salary Reform Act of 1964-con-
sists of 5 titles. The first four are separate salary acts and
the fifth fixes the effective dates for the provisions con-
tained in the other four titles.
Title 1.-The Federal Employees Salary Act-provides
salary increases for Classification Act employees, em-
ployees in the postal field service, those paid under the
Foreign Service Act, physicians, dentists, and nurses in the
Department of Medicine and Surgery of the Veterans
Administration, and employees of the Agricultural
Stabilization and Conservation County Committees. The
increases in these statutory schedules were designed to
implement the comparability principle set forth in the Fed-
eral Salary Reform Act of 1962. Title I also authorizes
the recruitment of personnel with unusually high or
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 unique "a cgyRis4oFp2fit1o13SIlg l?9iffl`Ai6$ 1t1
rates higher than the normal entry salary.
Title 11.-The Federal Legislative Salary Act--in-
creases salaries for Senators, Representatives, the Speaker
of the House, Congressional employees, and heads and
assistant heads of legislative branch agencies.
Title III.-The Federal Executive Salary Act-increases
the salary of the Vice President, cabinet officers, under and
assistant heads of departments, heads and assistant heads
of independent boards and commissions, and certain
other appointive officers; creates a Federal Executive
Salary Schedule consisting of five levels; statutorily places
most of the positions, except that of the Vice President,
in one of the five levels; authorizes the President under
certain circumstances to place up to 60 additional positions
in levels IV and V of that schedule.
Title IV.-The Federal Judicial Salary Act-increases
the salary of the Chief Justice of the United States, as-
sociate justices of the Supreme Court, judges of Circuit
and District Courts, judges of certain other courts, and
other personnel in the judiciary branch.
Title V.-Establishes the effective date of increases in
Titles I, III, and IV, as the first pay period after July 1,
1964, and those in Title II as January 1965.
SECURITY
Public Law 88-290, approved March 26, 1964, amends
the Internal Security Act of 1959 to establish a base for
enforcing security standards for employment of persons
in the National Security Agency; excepts positions in the
agency from the provisions of the Civil Service Act and
the Performance Rating Act of 1950; authorizes the Secre-
tary of Defense summarily to terminate the services of
employees of the agency when such action is deemed
necessary in the interests of the United States but provides
that individuals whose employment has been terminated
may seek or accept employment in any other Government
agency if the Civil Service Commission determines that
they are eligible for such employment.
TRAVEL
Public Law 88-266, approved February 5, 1964,
amends the Administrative Expenses Act of 1946 to
permit at Government expense the transportation of
privately owned automobiles, and the storage of house-
hold goods and personal effects, of existing and newly
appointed Federal civilian employees when they are as-
signed to duty in Alaska.
Status of legislation pending as of September 21, 1964:
BACK PAY
H.R. 4837 provides for the payment of compensation
and restoration of employment benefits to certain Federal
QJM rPrr r72 QQ P Q ain
provisions of the bill retroactive.
Passed House; hearings completed in Senate; pending be-
fore Senate Post Office and Civil Service Committee.
COST-OF-LIVING ALLOWANCES
H.R. 7401 terminates the cost-of-living allowances for
statutory-salaried Federal civilian employees in nonforeign
areas.
Hearings completed in House; pending before House
Post Office and Civil Service Committee Subcommittee.
EMPLOYMENT
H.R. 10 requires that summer temporary appointments
to positions in the competitive service in the District of
Columbia area be apportioned among applicants from the
several States on the basis of population; requires that the
appointments be made after nationwide open competitive
examinations have been held for the temporary summer
positions.
Passed House; hearings completed in Senate; pending be-
fore Civil Service Subcommittee, Senate Post Office and
Civil Service Committee.
H.R. 8544 permits former employees of the Agricul-
tural Stabilization and Conservation County Committees
who become Federal employees to count committee service
for leave and reduction-in-force purposes, to transfer leave
credits, and to enter Federal service at a rate above the
minimum rate of their grade which does not exceed the
highest previous rate as a county employee.
Reported to the House; pending House action.
HAZARDOUS PAY
H.R. 1159 authorizes the Civil Service Commission to
establish a schedule of pay differentials for employees
under the Classification Act who perform irregular or in-
termittent duties involving unusual physical hardship or
hazard not involved in the usual duties or classification of
their positions.
Passed House; pending before Senate Post Office and
Civil Service Committee.
MOVING EXPENSES
S. 2670, H.R. 10076, and H.R. 10640 amend the Ad-
ministrative Expenses Act of 1946, as amended, to provide
for reimbursement of certain moving expenses of em-
ployees and to authorize payment of expenses for storage
of household goods and personal effects of employees as-
signed to isolated duty stations within the continental
United States, excluding Alaska.
Pending before Senate and House Government Opera-
tions Committees.
14 CIVIL SERVICE JOURNAL
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H.R. 2155 provides certain increases in annuities pay-
able from the civil service retirement and disability fund,
Generally, the increase is 10 percent on the first $2,400
for annuities commencing before February 1, 1965, and
on a graduated reduction percentage basis for those com-
mencing during 1965-68. The bill also eliminates the
existing requirement for a 21/2-percent reduction of the
first $3,600 of annuity to provide survivor benefits.
Reported to House; pending House action.
H.R. 5376 amends the Civil Service Retirement Act to
provide for the inclusion in the computation of accredited
service of certain periods of service rendered States or
instrumentalities of States.
Reported to House; pending House action.
H.R. 5569 amends the Civil Service Retirement Act so
as to permit the recovery by the Government of amounts
due the Government in the settlement of claims under
such Act.
Passed House; pending before Retirement Subcommittee,
Senate Post Office and Civil Service Committee.
COURTSHIP OF YOUTH-Delegates to Boys Nation 1964,
the American Legion's education-for-citizenship program that
assembles in Washington every summer, got a red-carpet recep-
tion on their first visit to Civil Service Commission's new head-
quarters building. The young delegates, two outstanding high
school juniors from each State, saw a window-card welcome
across the CSC building and were greeted by Commissioner L. J.
Service Retirement Act to provide for retirement on full
annuity after 30 years' service. Some of the bills provide
limitations of age 55, others provide no age restrictions.
Hearings completed; pending before House and Senate
Post Office and Civil Service Committee Subcommittees.
S. 1562, H.R. 6366, and H.R. 6412 improve the financ-
ing of the civil service retirement system.
Hearings completed in Senate; pending before Senate and
House Post Office and Civil Service Committees.
H.R. 5929 and S. 1896 amend the Administrative Ex-
penses Act of 1946 to provide for the payment of travel
costs for applicants invited by a department to visit it for
purposes connected with employment.
Hearings completed in House; pending before House and
Senate Government Operations Committee Subcom-
mittees.
-Mary V. Wenzel
Andolsek after filing through an avenue of State flags. They
were briefed on Federal research of "inner space" by Coast and
Geodetic Survey oceanographer Harris B. Stewart, Jr., and
lunched in the Commission's executive dining room. CSC has
hosted Boys Nation annually since 1958, but had to use audi-
torium facilities of other agencies until this year.
(CSC photo)
October-December 1964 15
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 RESEARCH FOR
AMERICA'S DEFENSE
N ESTLED IN THE ROLLING MARYLAND
countryside some 10 miles north of Washington,
D.C., the U.S. Naval Ordnance Laboratory at White Oak
is the working home of more than 3,000 Federal civil
servants and the birthplace of some of America's most
vital weapons.
NOL, as the Laboratory is called in the alphabetical
lingo, looks like a quiet and rambling college campus.
Inside its doors, however, the pace suddenly quickens as
civil servants go about their work in developing weapons
to preserve other peaceful countrysides throughout the
free world.
The highly creative NOL staff is comprised of over
1,000 scientists and engineers and about 2,000 other
skilled persons working in supporting roles. Under
the technical and administrative control of Navy's Bureau
of Naval Weapons, the Laboratory has an annual budget
of $45 million-enabling the staff to pursue weapons
development from preliminary studies to the point of
readiness for fleet use. And a portion of each year's
budget is allocated to "foundational research"-free,
basic inquiry into aeroballistics, chemistry, mathematics,
and physics, with no direct weapons system or ordnance
project goal foreseen.
IN THE 15 YEARS the Laboratory has been at White
Oak it has completed and released to production 157
new weapons and. ordnance devices, approximately two-
thirds of which are currently in service.
Civil servants at NOL developed SUBROC (the
Navy's newest and deadliest antisubmarine weapon sys-
tem), the arming and fuzing mechanism for POLARIS,
17 new mines, 2 nuclear depth bombs, a nuclear tactical
weapon, 21 gun fuzes, 10 conventional warheads for
missiles, and 8 pyrotechnic devices.
The Laboratory is the Nation's leading R&D estab-
lishment in antisubmarine warfare (ASW) devices, both
in effort and facility. This facet commands about 40
percent of NOL's effort and includes all phases of the
ASW sciences, from the detection of submarines to their
destruction.
In addition, NOL has pioneered in wind tunnels and
ballistics ranges capable of measuring aerodynamic drag,
stability, and heating effects at speeds beyond 20 times
the velocity of sound.
Materials research at NOL has developed 7 new
magnetic materials that have been made available to
industry as well as the Government. These have greatly
impro\ ed magnetic amplifiers, magnetometers and elec-
tromagnetic transducers.
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 CIVIL SERVICE chemist, left, experiments with the chemistry of explosives and propel-
lants; center, a nuclear physicist checks the ion source of the 2.5-million volt positive-ion
accelerator; right, aerospace engineer calibrates instrumentation of supersonic wind tunnel
for test of pressure distribution on spherical model.
THE LABORATORY'S explosives research program
is the only one of its kind in the United States. NOL
scientists investigate the chemistry of explosives and pro-
pellants, explosions processes, and the physical effects
of explosions under the sea, on land, and in space. Out
of recent research have come four new explosives that
give much greater effectiveness to underwater weapons
and missiles.
The plastics fabrication lab has equipment to handle
practically every type of plastics molding or fabricating
job. The plastic components of a missile, whether large
or small, can be developed and fabricated in this area.
Probably no other R&D organization in this country
has as wide a variety or unique a collection of facilities
available in one plant. These include an electronic
packaging laboratory, a Van de Graaff particle accelerator,
a 200-ton 26-inch air gun, a 35-foot centrifuge, a 1.5-
million-gallon underwater weapons test tank, a hydro-
dynamics test facility, a magnetics ship model measure-
ment laboratory, a 10-million-volt Betatron X-ray, and a
180-foot conical shock tube.
Fantastic equipment-yes-but even more important
are the 3,000 career civil servants who know how to use
it in man's quest for a safer world in which to live.
-Scott D. Waffle
Press Officer, NOL
SUBROC, Navy's newest and deadliest antisubmarine missile, below left, was conceived
and developed at NOL. It is shown here being prepared for environmental simulation in
the Laboratory's horizontal pressure vessel. Right, employee checks out one of the camera
stations in NOL's 1,000-foot-long hyperballistics range in which scientists can fire aero-
dynamic spheres at speeds up to 20,000 feet per second. (NOL photos)
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 lease 2000109 Ltl : (i -RDP78-0%721 A000Rnno1 ooo4-
EMPLOYE E COST-CUTTING
REACHED NEW HEIGHTS
IN FISCAL YEAR 1964
FEDERAL EMPLOYEES reached new heights of
achievement in. cutting costs and increasing efficiency dur-
ing the year ended June 30, as revealed by agency reports
of year-end results of the incentive awards program.
Government-wide, fiscal year 1964 was one of the most
successful in the 10-year history of the program which
began on November 30, 1954.
Highlights: Measurable benefits from adopted em-
ployee suggestions reached an alltime high in 1964, top-
ping $76 million. This is an increase of $7 million over
the previous year's measurable benefits from employee
suggestions.
Of the 463,451 suggestions for improving Government
operations submitted last year, more than 118,500 were
adopted, setting a new high in the number of employee
ideas found useful by agency management officials. Em-
ployees earned a record total of $3.3 million in cash
awards for adopted work-improvement suggestions, with
the average cash award amounting to $40.
Over 67,700 awards for superior job performance were
made last year with resulting measurable benefits of $42.6
million, compared with $31.3 million for fiscal year 1963.
Each superior accomplishment award averaged about
$136.
A $25,000 incentive award to Dr. Alvin Radkowsky of
the Department of the Navy was the largest cash award
of the year.
Top award for an employee suggestion went to Jules G.
Capone of Army's Picatinny Arsenal, Dover, N.J., who
received $2,135 for devising a method which increases
the effectiveness of certain types of live ammunition used
for training purposes and cuts ammunition costs by
$330,000 yearly.
The largest award for group achievement amounted to
$17,700 and was shared by the postal clerks and letter
carriers of the Anchorage, Alaska, Post Office in recogni-
tion of their exceptional achievement in restoring postal
service in an incredibly short time following the earth-
quake and tidal wave disaster in Alaska in April 1964.
A RECORD OF PROGRESS
Through Employee Contributions to Improved
Government Operations
Following is a summary of the Government-
wide results of the incentive awards program for
fiscal year 1964:
EMPLOYEE CONTRIBUTIONS
Suggestions adopted .................... 118,564
Superior performance
recognized ............. .... ................. 67,731
MEASURABLE BENEFITS
Adopted suggestions .................... $76,101,526
Superior performance .................. $42,584,184
AWARDS TO EMPLOYEES
Adopted suggestions .................... $3,354,272
Superior performance .................. $9,239,665
Adopted suggestions per 100 employees...... 5.0
(As compared with 2.6 per 100 during pro-
gram's first year of operations)
Superior performance awards per 100 em-
ployees ...................................................... 2.9
(As compared with 0.01 per 100 during pro-
gram's first year of operations)
$25,000 AWARDED
TO NAVY SCIENTIST
WHEN DR. ALVIN RADKOWSKY first joined the
Navy's Bureau of Ships as an electrical engineer in 1938,
he thought the infant field of nuclear physics "too im-
practical" for specialization.
Twenty-six years of Federal service and two physics
degrees later, Dr. Radkowsky, now Chief Scientist of
the Nuclear Propulsion Division of the Bureau of Ships,
is not only a specialist in nuclear physics but the recipi-
ent of a $25,000 award recognizing his outstanding con-
tributions to the increased effectiveness of our nuclear-
powered submarines and surface ships.
Dr. Radkowsky earned the top cash award that can be
made under the Incentive Awards program by invent-
ing and refining the "burnable poison" method for con-
trolling nuclear reactors, which doubles the operational
service life of the reactor core. His invention has made
possible savings estimated by the Navy to exceed $41
million over a 1-year period.
Dr. Radkowsky',; process, described by him as "simi-
lar to the addition of lead compounds to gasoline," pre-
vents chain-reaction explosions of radioactive uranium
in ship reactors, allowing an unlimited amount of urani-
um to be put into them. This control process makes it
possible for a nuclear-powered vessel to operate for much
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 longer 13 1 Vndwoul oflieerweiseaUSeep s~sid/lt1 3i4Lfdas'e~~alu2d'aP' 2`iIff P9 9iPi0NPcP ie9em-s
the same time permits a reduction in the size of the re-
actor and simplifies its mechanical controls.
Dr. Radkowsky is the second individual to earn the
maximum cash award authorized by the Government Em-
ployees' Incentive Awards Act of 1954. Dr. William
B. McLean, also of the Navy, received a $25,000 award
in 1956 for his development of the Sidewinder Guided
Missile Weapon System. Two teams of Army scientists
received group awards of $25,000 each since 1954.
A graduate of the College of the City of New York,
Dr. Radkowsky earned his Master's degree at George
Washington University under Dr. Edward Teller and his
Doctorate in Physics at Catholic University. He was a
delegate to the 1955 and 1958 Geneva Conference on
Peaceful Uses of Atomic Energy and has published a
number of papers in his field.
"OPERATION TEAMWORK" IS
BIG SUCCESS IN POST OFFICE
Post Office Department's special "Operation Team-
work" program produced a record $4.4 million in dollar
benefits from employee suggestions in fiscal year 1964-
an 82-percent increase in benefits over the previous fiscal
year.
Typical of the thousands of postal employees who
were stimulated through "Operation Teamwork" to find
"a more economical way" were:
An alert employee in the Chicago Post Office, who saw
no reason why a cart used to transport mail between
points on the workroom floor could not have three
separate containers instead of one, making it possible to
perform some of the required sorting steps as the cart
made its rounds. This suggestion yielded a productivity
$25,000 AWARD WINNER. Secretary of the Navy
Paul H. Nitze (left) congratulates Dr. Alvin Rad-
kowsky after presenting him with a $25,000 award at
a Pentagon ceremony on July 29, 1964.
ployee a $965 award.
An inquisitive lady at the Postal Data Center in At-
lanta, who had her doubts about the need for some of the
data "the machine" punched out on stacks of card forms.
As a result of her suggestion, the machine's diet was cut,
eliminating three columns of information no longer
needed, which reduced man-hours involved by $27,690
yearly. The employee was awarded $790 for her in-
genuity.
"Operation Teamwork" was designed to achieve more
substantial returns and better management use of the
suggestion program by identifying and presenting local
operating problems to employees for solution.. At the
same time, the evaluation process was simplified by using
operating channels. Supervisors identified and pre-
sented problems for solution and asked employees for
their ideas. They also discussed the solutions and gen-
erally helped employees with their ideas. The program
also featured local and national competition for best
results achieved through employee suggestions, with em-
phasis on adopted suggestions and resulting dollar-value
benefits.
A Post Office Department report outlining achieve-
ments under "Operation Teamwork" includes these high-
lights:
? In fiscal year 1964 the Department received and
adopted more suggestions than in any other preceding
fiscal year.
? Of the 155,572 new suggestions received-75 per-
cent above fiscal year 1963-101,703 were received in
the last 6 months of the fiscal year, pointing up the
recent acceleration of the program.
? Of the 30,332 suggestions adopted-96 percent
above fiscal year 1963-20,616 were adopted during the
last 6 months.
? Dollar-value benefits from adopted employee sug-
gestions amount to more than $414 million annually-
82 percent above fiscal year 1963-and about $4 million
more than the $438,000 paid to employees as awards for
adopted suggestions.
? Superior accomplishment awards for outstanding
work achievements totaled 7,044 for fiscal year 1964-a
56 percent increase over 1963-with resulting dollar
benefits of more than $3 million compared with $2.1
million for fiscal year 1963.
Post Office Department officials believe that through
"Operation Teamwork" they have broken through the
passive resistance of many supervisors and have converted
them into users of the suggestion program. This has
been evident, they feel, from the exceptional response to
the solving of local operating problems and the resulting
high dollar-value benefits. The most significant result
from the program was described by one postmaster in
these words: "Never has there been such cooperation and
esprit de corps as there is now."
-Philip Sanders
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RETIREMENT- him from the professional status he used to enjoy; he
(continued from page 8.)
I am a part-time waiter and a full-time cab
driver.
[ have regarded remodeling this old house as
self employment and have enjoyed myself
tremendously. I will probably sell it and either
remodel another or build new, if health permits.
I deal in used furniture and antiques. . . .
It's work, but mostly fun.
I do maintenance work on my own rental
property.
Have a real estate license and work when I
take a notion.
Some other examples of their jobs: babysitter, bank
messenger, band player, barber, bartender, beekeeper,
book salesman, cabin steward, cattle breeder, chauffeur,
farmer, freelance advertiser, fruit grower, gas station
operator, guard, handyman, innkeeper, janitor, landscape
foreman, livestock judge, locksmith, movie usher, music
teacher, newspaper dealer, parking lot attendant, peddler,
repairman, school crossing guard, shipping clerk, short
order cook, upholsterer, yard worker.
A few hold more spectacular positions. One of these
devotes full time to a merchandising corporation which
he helped organize while still in Government and which
he says now grosses some $40 million a year. Another
studied accounting while still employed and, beginning
then, acquired accounts which now bring him a greater
income than his salary did; "If I reach the age of 65,"
he says, "I plan to sell my practice, apply for full social
security benefits, and then travel with the Mrs." The
retirement of another "has worked out fine. We orga-
nized a new life insurance company. My position is its
president."
Even less typical is the story of a former meteorologist
who felt that inadequate education was now keeping
Fig. I
Amount Worked Since Retirement
returned (after 40 years) to his university for a full
academic course plus part-time meteorological research
work, obtained a B.S. degree in 1962, and expected to
receive the M.S. degree in Earth Science during August
of 1964, after 'which he would be given professional
status in teaching and research at the university. And
the story of the former Navy engineer who, with his
family, founded and now operates a private school for
gifted children (IQ's ranging from 130 to 170) on a
Long Island estate which they bought and converted;
the school already has students ranging from nursery
school through high school, plans to expand to include a
2-year liberal arts junior college. And that of the erst-
while research scientist who found that too many appli-
cants for professional jobs in Government lacked-and
disliked-math and science; deciding that his experience
could help make these subjects more interesting to stu-
dents, he enrolled in evening school, qualified for a high
school teacher's certificate, and took a teaching position
as soon as he became eligible for retirement.
THEIR REASONS FOR WORKING
Those who have worked at any time since retirement
were asked why they did so. Their replies-consistent
with their reasons for retiring-show that they worked
primarily for economic reasons or because, having to
continue earning, they needed easier work. They believe
that others work for the same reasons.
By far the most frequently given reasons for working
after retirement were economic-"had to have more
money," for example, was marked by 786 people, and
"wanted to qualify for social security benefits" was
marked by 1,126. Almost half (45.5 percent) of all
responses to the question had to do with need (or desire)
for more money, and this was given as the MAIN reason
by twice as many people as gave any other:
I needed more money and I could get a job at
Boeing, so I took it.
Fig. 2
Hours Worked (as compared with
Government job)
About Same
Didn't Work,
& No Answer
5.7%
32.9%
17.6%
43.8%
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 Wlic-~ri9 a giR%&0O0 ,9JA1l : CIA- ~Pr 947~ O~Q QM04-49h art
TaXT0o Fart pR
annuity, I had to return to work. . . .
The retirement income is sufficient if I stay home
and putter around and die in a chair of old.
age. But for travel, hobbies, etc., which
unfortunately cost money, I find it desirable to
work for a while and then spend the money....
I could not live on my retirement pay, that is
why I am working.
The second most frequently given reason was need
for less demanding work. "Had a chance to work just
part of the time" was marked by 504 retirees, and "was
able to get work that was less tiring, and caused me less
strain, than my Government job" was marked by 708.
Almost as many started working again-or kept on
working-just because they wanted to: 480 did it be-
cause they had a chance to do work they really wanted
to do, 279 because they were bored, and 222 because
they'd had a break and were ready to start again:
Our daughter graduated from college, my
husband was retired, and we both wanted very
much to go to the Mission field where we were
very much needed. . . . Have been training
natives in the Mission Hospital (Nigeria) and
find much satisfaction in this work.
The days are long and there comes a time when
one isn't too welcome around the house con-
stantly. . . . People who are engaged in public
business are too busy to visit with those who
have retired. . . . One MUST keep himself
busy.
I found myself depressed. . . . I sought tem-
porary or part-time work and am still employed
doing what I like, with the happy thought of
being in circulation.
Some were approached by private employers and asked
to work; 304 of these went back because they felt they
were really needed.
AND THEIR REASONS FOR NOT WORKING
Paid employment holds no attraction for many, how-
ever. They are not interested in working, they have
income sufficient for their needs, and they are too busy
with their hobbies, community activities, recreational or
educational pursuits. These satisfied, and unemployed,
annuitants tell why they don't work:
I like to hunt, fish, golf, play bridge, garden,
care for my yard. I love music, good literature,
in itself. . . . Work just took up too much of my
time.
I always wanted a better education. . . . I am
going to school, studying electronics. I de-
cided this was a good course for either young
or old. Sometimes I think I am too old, and
again I feel that age is no barrier. . . . It
could mean additional income for me in the
future; if not, it still should be a nice hobby.
One of the things I have enjoyed is freedom of
movement. . . . My brother and I took a trip
to the West Coast. No one should miss seeing
the beauty and vastness of this great country.
. . . My only complaint is that time, each day
and year, passes too quickly.
I wanted to travel some before I died, and I also
wanted the time to do just as I pleased. Now
I spend my summers on a nice northern Michi-
gan lake and my winters in Florida, and be-
tween times I just travel around and visit my
children and friends. I play golf about twice a
week and fish all summer.
... many activities such as visiting sick at
hospitals, volunteer community work, taking
old ladies to grocery, etc. Would not desire
any employment except in national emergency.
I read from 5 to 6 hours a day. I studied
German for 2 years at the university. Tomor-
row I begin a course in "Introduction to the New
Testament." I do not have to do anything
under tension.
There were, however, 231 checks for items dealing
with inability to obtain work and 558 of those dealing
with health and family responsibilities. Some say:
"There doesn't seem to be anything much for ex-tax
collectors who can't do manual labor"; "businesses do
not hire women 58 years old so readily"; "I am totally
disabled and not allowed to do any work"; "my aged
parents require more help"; and "no success as yet in
finding work. I've written to my Congressmen for sug-
gestions.... It's rough.... Discrimination against age is
terrible here."
HOW THEY ARE FARING FINANCIALLY
One question asked in the survey sought to determine
how well early retirees are living now. This question
read: "All of us can, of course, use more money at any
time. We would like to know, however, whether the
total income of employees who retired before reaching
age 60 allows them to maintain a reasonably good stand-
October-December 1964 21
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 and of goro`Od 'VO`i~l y~gIR eclZM 'i~i~Q~'li~~ : J rCa~Off?&AV?l cb7n~Ot V ~Rh 99 9 their
that is most nearly right for you: (1) Live better than annuities, while the 1962 retirees had not yet done so.
before I retired; (2) Live about as well as before I re-
tired; (3) Don't live quite as well but am doing all HOW THEY FEEL ABOUT EARLY RETIREMENT
right; (4) Have had to reduce my standard of living
drastically in order to get by."
Over 83 percent answered that they are doing all right
or better. Some were doing it on annuities plus savings
and return on investments, but more than half have
worked at least some of the time since retiring from
Government. In addition, many volunteered that they
have a spouse working or receiving an annuity, or are
also drawing social security benefits or a veteran's pen-
sion, or-surprisingly often-have come into a small in-
heritance. They say:
My income (outside) for only 8 months of work
per year far exceeds the maximum of grade 15,
the salary I was paid at the time of my volun-
tary retirement!
If you are a married woman, as I am, with a
working husband, the amount of retirement is
not bad, but if you are a married man with a
wife who does not work, it is close picking. . . .
Some of the 12.6 percent who have had to reduce
their standard of living drastically say: "If you have
recently tried living on $173 a month, the answer is
obvious"; "The doctors', hospital, and high-priced medi-
cine bills make it very difficult to make ends meet"; and
"I still have the same expenses I had when I worked and
more, too, because the gas and water and sewage have
gone up, the house is older and needs more repairs ...
everything goes up...."
Ex-postal employees had the highest percentage of
persons living better than before and wage-board em-
ployees had the lowest, with GS's in between. Among
occupational groups living better than before, those who
had engineering, scientific, or professional positions in
Governmentranked highest, followed by clerk-carriers in
close second place; others were all low. Men were do-
ing better than women. All groups that were doing
better had relatively higher rates of post-retirement em-
ployment than those who were hard up.
The more recent the retirement, the more likely the
person is to be living better and the less likely he is to
have had to reduce his standard of living:
Percent
Living Better
Percent
Living Worse
1956 retirees .... . .
10.6 -
17.6
1959 retirees . . . . . .
17.3
12.2
1962 retirees .. ....
21.1
9.9
Write-in comments strongly suggest that a major ex-
planation-apart from the less liberal benefits paid the
earlier retirees--is that the 1956 and 1959 retirees had
The survey asked annuitants whether they would still
retire early if they had it to do over again and would
recommend that others do so, and also inquired about the
extent to which the early retirement option influences
employee decisions to remain with Government for full
careers.
Practically all said that they "certainly" or "probably"
would retire early again under the same circumstances,
and most of them had no doubt whatever about it:
This is living!
I knew what I wanted, so I did it, and my wife
and I are very happy here. You can have all
that ice and snow back there. I would rather
mow my lawn than shovel snow off the sidewalk.
I enjoy retirement and am glad I retired early.
I believe people make better adjustments at an
early age. . . .
Have had a balanced spiritual, mental, and
physical retirement; opportunity to enrich my
spirit, enlighten my mind, maintain my health,
enjoy the companionship of my wife; time to
become and be an informed citizen. . . .
Retirement life is wonderful--no bosses, no
telephones, no budgets!
A surprising number, including many who have done
some work since leaving Government, added comments
like, "My retirement gave a chain of promotions to
younger people with families" and "I firmly believe if a
guy has put in 35 to 40 years, he should retire to make
way for the younger fellows coming up...."
A few say that if they'd known then what they know
now, they would not have retired. Most of these are
people who have been ill and feel that they might per-
haps have been able to retire on disability; who were
forced into retirement by family problems which no
longer exist; or who find themselves hard up financially.
Several, however, seem simply to have decided that they
made a mistake in judgment: "One seems to lose im-
portance when retired.... Had my foresight been as
good as my hindsight, I would have worked on to at least
50 years"; and "[It's] not what a fellow figures it to be
before he retires.... I was a lonesome man for quite a
spell.... Even now, after 5 years, my mind runs back to
the old gang."
Many hedged their answers about recommending
whether others should retire early. Most often they said
it's an individual problem on which each person must
make his own decision, or "yes, IF--." The "ifs" nearly
22
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financially, or IF you've got something definite you want
to do-"nothing is sadder than a man who doesn't know
what to do with his spare time."
Others didn't hesitate to make a definite recommenda-
tion-but their views conflicted:
Early retirement is a waste of manpower.
Retirement a MUST at 55 or 60. After this
age almost all employees just mark time and
pick up their pay checks. Make them get out
and give the man in the next lower bracket a
chance for advancement.
I am in favor of continuing work. . . . The
greater percentage of retired people do not live
much beyond 2 years after retirement. I
believe this to be because inactivity leads to
death.
[Note: Over half of all retiring Federal employees
live at least 12 years after retirement.]
Older people slow down and cannot produce
the same amount of work as when younger.
Why keep a doddering old man on the job
when he would be much better off on the retired
list?
Retire before 60-the younger you retire, the
easier it is to adjust yourself to the change.
Advocate retirement as soon as possible. That
is the reason for the retirement law. It was
passed so that older people may enjoy their
declining years and to make an open job for a
young person. They need a regular job to
raise a family and maintain a home.
In response to the questions about the effect of the
early retirement option on employees' decisions to re-
main in Government, they acknowledged-but rated rela-
tively low-the "holding power" of this option so far
as they themselves were concerned. Interestingly, how-
ever, they considered it a much more powerful influence
on the decisions of other employees-the only instance
in which there was any noticeable inconsistency in the
answers they gave for themselves and the answers they
thought applicable to others. Annuitants who were
clerk-carriers while in Government rated the early retire-
ment option a more important consideration than did
others.
OTHER VOLUNTEERED COMMENTS
A great many people took advantage of the oppor-
tunity offered them to make additional comments "about
retirement before age 60." A few stated flatly that they
consider the present (not the pre-1956) optional retire-
mented favored liberalization: "All employees should be
given the option to retire after 30 years of service, re-
gardless of age and without a reduction in annuity. I
believe it is unfair to penalize a person who comes into
the service at an early age." "I know of Federal em-
ployees with 35-38 years of service who are fed up but
cannot retire because they are not 55 years old."
Some believe that liberalization would benefit the
Government as much as it would employees, and several
argued that early retirement would stimulate employment
and promotion opportunities, thus influencing qualified
people to seek and hold Government jobs. But one ob-
served, almost as if in answer to that argument, that
"while employees fight for more liberal optional retire-
ment provisions, very few seem to take advantage of
such retirements when they do meet the service and age
requirements-so why liberalize?"
Many feel that civil service annuities should be tax-
exempt, especially since railroad retirement and social
security benefits are exempt. Social security benefits for
Government workers are desired by many-one thinks
that "if the Government would put postal employees
under social security, very few men would retire before
age 62 or 65."
A number want the same treatment for former an-
nuitants as is accorded those who retire now and in the
future; liberalizations, they say, should apply to persons
already on the rolls. Some advocate various kinds of
gradual retirement plans.
Quite a few have regrets about the unused sick leave
they "gave back to the Government" and still want some
kind of retirement credit, or other compensation or
recognition, for it.
And, in contrast to those who had criticisms such as
the ones already quoted, a great many volunteered favor-
able comments about Federal service and expressions of
gratitude for the benefits the Government provides its
employees:
My career was wonderful!
I am very grateful that I have this annuity and
can work a little or not, as I am able or desire;
I think Government service is tops.
I thoroughly enjoyed my career as a postal
employee and shall be forever grateful for its
retirement benefits.
To my Government I say thanks for the privilege
and opportunity to serve. . . . I am proud of
the opportunity to have done so.
(See summary on next page.)
October-December 1964 23
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ANNUITANTS ANSWER KEY QUESTIONS
These are the results of key questions asked in the Civil Service Commission's survey of persons
who retired early from the Federal service. Figures in columns marked (*) are percentages of
the total number of responses to questions allowing several answers. All other figures are
percentages of the sample group of 3,302 respondents.
REASONS FOR RETIRING EARLY
Why did you retire before reaching 60 years of age?
(U_p to 4 answers allowed.)
Percent*
Wanted to quit while still able to enjoy retirement.... 22.6
Economic reasons (better paid job, better off with an-
nuity plus outside earnings, wanted to qualify for
social security benefits) ......................... 21.8
Dissatisfied with job, working conditions, supervision,
management .................................. 17.9
Health or family reasons ......................... 13.6
Organization reasons (would have had to take un-
wanted job, was RIF'd, urged by agency to retire) ... 4.3
All other (work part time or for self; move elsewhere;
take break, then start again; just had enough, etc.) . . 19.8
When you retired, did you intend to work at something
else, either immediately or after you'd had a good rest?
Percent
Yes ........................................... 57.3
No ........................................... 41.1
No answer, or qualified answer .................... 1.6
REASONS FOR WORKING AGAIN
Why have you worked? (Up to 4 answers allowed.)
Percent*
Economic reasons (had to have more money; to buy
"extras"; to qualify for social security benefits) ..... 45.5
Chance to do less demanding work (part-time, less
tiring, less strain than in Government job) ......... 25.2
Just wanted to (bored; had break, ready to go again;
chance to do something really wanted to do) ....... 20.4
All other ....................................... 8.9
KIND OF WORK DONE
What kind of work have you done?
Percent
Unskilled (laborer, building maintenance, etc.) ....... 8.1
Guard, law enforcement .......................... 2.9
Skilled, mechanical, technical ...................... 6.2
Engineering, scientific, professional ................. 3.9
Clerical, stenographic, typing, filing, office machine
operation .................................... 12.7
Sales .......................................... 6.0
Finance, insurance, real estate ...................... 3.6
Other nonprofessional white-collar ................. 5.2
All other ...................................... 6.4
Haven't worked, or no answer ..................... 4510
ACTUAL EMPLOYMENT
Have you actually worked at something else since you
retired?
Percent
Yes ........................................... 57.7
No ........................................... 41.6
No answer, or qualified answer .................... .7
TIME WORKED
How much have you worked?
Percent
Full time since starting .......................... 26.1
Full time for temporary periods .................... 7.7
Part time but fairly regularly ...................... 13.5
Only occasionally ................................ 9.0
No answer, or haven't worked ..................... 43.7
ADEQUACY OF INCOME
We would like to know whether the total income of em-
ployees who retired before reaching age 60 allows them
to maintain a reasonably good standard of living now.
Percent
Live better than before retiring .................... 17.2
Live about as well ............................... 34.4
Not quite as well but all right ..................... 32.2
Have had to reduce standard of living drastically to
get by ....................................... 12.6
No answer, or qualified answer .................... 3.6
DO IT AGAIN
If you had it to do over again under the same conditions,
would you still retire when you did?
Percent
Certainly would ................................. 68.0
Probably would ................................. 24.1
Certainly would not .............................. 5.7
No answer, or qualified answer .................... 2.2
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CLASSIFICATION TOPICS
PAY ADMINISTRATION IN INDUSTRY
A recently released Bureau of Labor Statistics report
titled Salary Structure Characteristics in Large Firms,
1963* provides comprehensive information about the
formal pay plans that private companies have established
for their white-collar employees. The attention that
private business has given to improvement of pay ad-
ministration during the postwar period stands out in the
finding that 85 percent of the salary schedules examined
in the survey involve pay plans adopted or basically re-
vised since 1945.
Made at the request of the Bureau of the Budget and
the Civil Service Commission for their use in a continu-
ing study of Federal salary systems, the survey covers 239
establishments of 99 companies with formal pay plans
meeting certain criteria. Each establishment included in
the survey employs 1,000 or more workers. Industry
and area coverage parallels that of the annual BLS survey
of professional, administrative, technical, and clerical pay
which is the basis for comparing Federal and private
enterprise salaries each year as required by the Federal
Salary Reform Act of 1962. Thus, the establishments
are in Standard Metropolitan Statistical Areas and
embrace manufacturing; transportation, communication,
and other public utilities; wholesale trade; retail trade;
finance, insurance, and real estate; and certain service
industries. Altogether, the 99 companies employ about
1,300,000 white-collar workers of whom about 575,000
are in the 239 establishments surveyed.
General characteristics Some companies use one
of pay structures salary schedule for the full
range of white-collar occu-
pations. More frequently, however, two or more sepa-
rate schedules are used, each for certain types of occupa-
tions. Among the 99 companies concerned, 78 have
established two or more salary schedules for clerical,
professional, and administrative positions and each of
the 21 remaining companies has a single salary sched-
ule for these groups.
Altogether, the survey covers 139 clerical schedules,
165 professional-administrative schedules, 76 clerical-pro-
fessional-administrative schedules, and 61 other schedules.
The most common reason for establishing more than one
salary schedule is to separate employees subject to the pro-
visions of the Fair Labor Standards Act (the "nonexempt"
group) from employees who are exempt from the Act.
*Bulletin No. 1417, August 1964, U.S. Department of Labor,
Bureau of Labor Statistics, for sale by the Superintendent of
Documents, U.S. Government Printing Office, Washington, D.C.,
20402, price 30 cents.
Most of the companies in the survey operate through
more than one establishment. It is common practice to
use locality-related pay rates for clerical positions and
company-wide rates for professional and administrative
positions. The median minimum salary for the lowest
grade of the schedules having clerical positions is $3,250.
The median maximum salary for the highest grade of pro-
fessional-administrative schedules is $27,000, and for
clerical-professional-administrative schedules, $29,000.
(It so happens that the schedules extending over the en-
tire clerical-professional-administrative group tend to have
somewhat higher top salaries than those schedules cover-
ing only professional and administrative positions.)
Job evaluation Use of job evaluation is
nearly universal. Of the 380
schedules tabulated in the survey, 353, an overwhelming
majority, depend upon formal job evaluation plans for
assigning positions to pay grades.
Interestingly enough, there seems to be a tendency to
provide a slightly greater number of grades than the Clas-
sification Act system provides for the same range of diffi-
culty and responsibility of work, particularly at the
professional and administrative levels. The median pro-
fessional-administrative schedule, in fact, has 16 grades
as compared with the 11 Classification Act grades (GS-5,
7, 9, 11-18), generally used for these groups of positions.
At the two extremes in numbers of grades are 4 sched-
ules with 4 or 5 grades each, and 23 schedules with 30 or
more grades. While much of this variation is attribut-
able to differences in the range of positions covered, it is
noteworthy that 16 of the schedules with 30 or more
grades cover only professional or administrative positions.
Intergrade spread and The spread between sal-
in-grade ranges aries for successive grades is
affected by the number of
grades and varies considerably among the schedules.
Generally, it is larger at the higher salary levels, with
median practices ranging from about 6 or 7 percent at the
lower clerical levels to 12 percent at the $25,000 and 13
percent at the $30,000 levels.
Within-grade ranges are clearly larger at the higher
than at the lower levels, varying from about 30 or 35 per-
cent as a median practice at the lower levels to 47 percent
at the $30,000 level. The rationale for within-grade
ranges is clear: in the largest proportion of salary sched-
ules of each type, the companies surveyed state that the
ranges were adopted to permit recognition of differences
in performance of individuals at the same grade level.
October-December 164
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Companies that widen the ranges at the higher levels sup-
port this practice on the ground that greater within-grade
developmental possibilities exist and less promotional op-
portunities are present at the higher than at the lower
grades.
Use of within-grade rates In a majority of the sched-
ules normal hiring rates are
established, usually at the minimums of the grades. This
practice is most common among schedules for clerical
workers. Even establishments with normal hiring rates,
however, permit hiring at above-minimum rates almost
universally in shortage occupations and quite generally on
the basis of evaluation of the experience and education of
the individual.
Within-grade advancement is based solely upon
"merit" or "performance" reviews in the great bulk of the
professional-administrative schedules and the clerical-pro-
fessional-administrative schedules. Employees are also
advanced on this basis under a majority, but not such a
large majority, of the clerical schedules. Typically, re-
views are annual, but in many cases there are provisions
permitting them to be made more frequently. Where
periodic reviews are conducted, the proportion of em-
ployees receiving within-grade increases during the year
ranges from less than 10 percent to more than 90 percent,
with a median of 50 to 60 percent.
Very few schedules provide specific within-grade rates.
Within-grade increases are generally a percentage of an
employee's current pay, within a minimum and maximum
permissible amount. The median minimums are 4 per-
cent for clerical schedules and 5 percent for others, and
the median maximum is 10 percent for all three types of
schedules. Many companies control the granting of
within-grade increases by providing a specific budget for
this purpose (for example, a given department may be
allowed 3 percent of its salary budget). In at least three-
fifths of the schedules of each type, the midpoint of the
grade range is regarded as equivalent to the market value
of the job when fully and competently performed.
Adjustment of schedules Most companies do not
specify definite intervals at
which schedules are to be reviewed and, if appropriate,
adjusted. In practice, however, schedules are generally
reviewed each year. In the last 4 or 5 years the average
interval between adjustments has been a year, or a year
and a few months, for a majority of the schedules studied.
Adjustments are most often based on a policy of paying
rates that are competitive with other establishments by ad-
justing schedules to reflect general changes in salary levels.
The factor most widely considered in determining the size
of adjustments is the change in salary levels shown by
salary surveys. In reviewing their salaries, the firms may
use salary survey data that is available, conduct or partici-
pate in salary surveys, or exchange information with other
employers on their pay adjustments. Collective bargain-
CIA-RDP78-03711 A000600010004-9
ing is a direct factor in the adjustment o schedules o em-
ployees under bargaining agreements and may be an
indirect factor in the changes for other groups within the
same firm.
When schedules are adjusted, the salaries of employees
in more than half the clerical and the clerical-professional-
administrative schedules are adjusted automatically. In
many cases, however, and as the most prevalent practice
under professional-administrative schedules, the salaries
of individual employees are not adjusted at the time the
schedules are adjusted, but rather on an individual basis
through the periodic merit reviews.
Other common provisions One form of compensa-
tion characteristic of private
enterprise pay structures, the bonus, is entirely absent
from Federal pay systems and is likely to remain so. In
more than one-half of the professional-administrative and
clerical-professional-administrative schedules, provisions
for payment of cash bonuses apply to employees in at
least part of the grades.
Private firms also take care not to rule out of their
plans the possibility of exceptional treatment for excep-
tional cases. Typical of written policies and procedures
are qualifying statements that they "ordinarily apply" or
that departures "should be given careful consideration."
-Robert F. Milkey
Two views on
Automation, Automation
Oh it's quite the new sensation
With its quantum computation
And its cosmic information.
As this potent innovation
Blithely sweeps across the nation
Careless of its imputation
Spawning, boredom and frustration.
Thus the race-humanitation
With no zeal or motivation
Lost desire for osculation
Saw the end of propagation
And the race in devastation
Shrivelled in its habitation
Progressed to annihilation
Leaving only Automation.
-Clare O'Brien
Reprinted by permission from The Machinist
8b 0 AN
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4 TRAINING
1111
DIGEST
9r
A distinguished committee of visitors has been named
by Civil Service Commission Chairman John W. Macy,
Jr., to review and evaluate the Federal Government's
Executive Seminar Center at Kings Point, N.Y.
Robert K. Greenleaf, Director of Management Re-
search, American Telephone and Telegraph Company, is
Committee Chairman. Dr. Paul P. Van Riper, Professor
of Administration, Graduate School of Business and
Public Administration, Cornell University, and Dr.
Richard E. McArdle, former Executive Director, Nation-
al Institute of Public Affairs, are the other two members.
A report of findings and recommendations is expected to
be completed by year's end.
The Executive Seminar Center, opened last October by
the U.S. Civil Service Commission as a Government-wide
interagency training facility, offers career executives in all
Federal agencies an opportunity to increase their under-
Automation
I doubt if automation will
Get wildly out of hand.
The best computers can't outwit
Ye olde "supply-demand."
The captains of these new machines
Must know just what's at stake;
If not, they'll learn: the unemployed
Can't buy the thinks they make.
For sure, we will not leave behind,
For future men to tell of it,
Great pyramids of merchandise
We made just for the helluvit.
Instead, I think we will create
Things bigger, better, faster-
A world of health and plenty, and
A world of man-the master.
-Aloysius Greene
standing of significant and continuing Government re-
sponsibilities and operations.
The Committee will concentrate on evaluating the ed-
ucational and training experiences which the Center pro-
vides. It will review the objectives, basic philosophy,
instructional methods, course content, demand and quali-
fications, and the reactions of participants.
James R. Beck, Jr., recently named Director of the
Center, will assist the Committee by supplying statistical
and other data it needs to carry out its assignments.
The response from Federal agencies to this new edu-
cational endeavor has been so favorable that CSC has
increased the course offerings, number of sessions, size of
staff, and number of planned participants for the year
beginning in September 1964. A total of 576 career
executives from 47 departments and agencies are sched-
uled to attend 1 of 16 2-week course sessions. Seminars
on the National Defense Establishment and Economic
Opportunity have been added to the curriculum being
offered.
The first issue of an annual Directory of ADP Train-
ing, Services, and Sources of Information was distrib-
uted by the Commission in September. The new publi-
cation continues a service inaugurated in 1960 by the
Bureau of the Budget.
Courses listed fall into three categories:
? training in the management of automatic data proc-
essing systems
? training in applications of automatic data processing
? training in the technical aspects of analysis, design,
and programing of ADP systems.
The directory will also contain information about cen-
tral computer and programing services available in the
Federal Government and an annotated bibliography of
source books and periodicals on ADP, and will list ADP
professional societies.
Copies are being distributed to Employee Development
Officers and ADP installations.
Federal departments and agencies may now train pro-
fessional employees in the fields of natural or mathemati-
cal science or engineering for as long as 2 years in a
decade of. service, the Commission recently announced
(FPM Installment No. 19). Agency officials may use
the authority when they find that postponement of train-
ing would be detrimental to the development needed by
employees for performance of their duties in the fields
of the biological sciences, medical and veterinary sciences,
the physical sciences, actuarial science and statistics.
The Government Employees Training Act restricts
training to a period not to exceed 1 year in a 10-year
October-December 1964 27
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period of service. The action by the Commission in
granting the waiver leaves the Act's restriction in effect
for occupations not listed in the new instructions.
An institute to prepare agency trainers for conducting
CSC's new supervisory training program, Supervision
and Group Performance, opened in Washington on Sep-
tember 10. Participants will learn the training methods
and techniques used in the course, receive a complete
set of the materials required to present the course, and
be certified as instructors in the basic program. All pro-
gram materials are designed to be used either by pro-
fessional instructors or by individuals with considerable
experience in the Federal Government and with the
capacity to learn how to lead problem-solving conferences.
Present plans call for the institute to be offered again
some time later this fiscal year.
The basic Supervision and Group Performance course
has been offered monthly to supervisors in the Washing-
ton area, and is being offered several times annually by
CSC regional offices.
Further information regarding either the Institute for
Trainers or Supervision and Group Performance (for
supervisors) can be obtained from the Office of Career
Development in Washington or any CSC regional office.
Trainee vacation work-study programs for college
students in the summer of 1965 will be supported by a
nationwide examination plan, it was recently announced
by CSC's Bureau of Recruiting and Examining. The
examination will be announced at grades GS-3 and 4
for engineering and scientific occupations for which
agencies have organized career hiring programs. Agen-
cies that participate in the examination will be expected
not to use Schedule A or temporary limited appointment
authorities to appoint college students for similar train-
ing programs in the same grade levels and occupations
during the vacation period.
The Federal Aviation Agency has established a new
Advanced. Management Development Program which
provides training for up to a year for 20 specially selected
GS-13 or GS-14 employees. After 7 to 8 weeks at
headquarters in Washington for orientation and prepara-
tion for their assignments, the trainees are sent to Syra-
cuse University for one semester in public administration.
At the end of the academic course, the trainees strike
out in teams to carry out assigned management studies of
FAA field activities. On return to headquarters, the
teams present their recommendations to a top manage-
ment board. They are then assigned to jobs in which
their new skills can be used best.
Training agreements which provide for accelerated
promotion were all canceled by the Commission at the
end of September 1964. New agreements may be ne-
gotiated by the Federal agencies. (See FPM Letter
271-3.)
1965 Interagency Training Programs Bulletin, recently
issued by the Commission, lists over 300 courses, 50 of
which are newly available. Each Commission regional
office is also issuing a local bulletin.
Career development programs have been established
in most, large and a number of smaller Federal agencies,
Commission personnel management specialists report.
In their inspections they have found that these programs
have significant impact on improved manpower utiliza-
tion.
Promotion systems in Federal agencies are often not
fully understood by supervisors and employees, Commis-
sion inspections show. These findings indicate that em-
ployee development officers should pay special attention
to this area.
College student cooperative work-study programs au-
thorized by the Economic Opportunity Act of 1964 will
permit payments from Office of Economic Opportunity
funds to students for part-time employment in public or-
ganizations (Federal, State, or local) on work related to
their educational objectives.
Carl F. Stover is the new executive director of the
National Institute of Public Affairs, the organization
which provides career education awards to 40 selected
public service employees.
An award fcr superior service was given by the Secre-
tary of Agriculture to his Division of Employee Develop-
ment for its outstanding leadership in employee develop-
ment and utilization.
Management education and training policy in the
Department of Defense now requires each component
of that organization to establish specific procedures to
assure that managers at GS-14 and 15 levels be given
training on a planned basis to improve their capacity to
assume higher level responsibilities.
Trainers and others who reprint copyrighted materials
with permission of the copyright holder should include a
note warning that publication of such material by the
Government leaves in full effect the restrictions on the
use of the material by others.
In-company courses will be given increased attention
by American business in the future in areas of general
management skills (planning, organizing, etc.) and com-
munications, a survey by the National Industrial Con-
ference Board discloses.
Computer courses are now offered by nearly 300 col-
leges and universities. -Ross Pollock
CIVIL SERVICE JOURNAL
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QUOTABLE:
CSC Asks Help of Personnel Practitioners in
IMPROVING THE BREED
by L. J. ANDOLSEK, Commissioner
U.S. Civil Service Commission
T HE COMMISSION'S Chairman, John Macy, has
become noted for his "laundry list" of new projects
that can be undertaken for the good of the service. I
am informed on good authority that, on every such list
he has jotted down, he has included the goal: "Improve
the Breed of Personnel Practitioners."
Before reporting progress in this area, I want to make
it clear that we do not feel the profession has "gone to
the dogs" nor that good personnel administration has not
been practiced in the past. Two very important consider-
ations explain why an action program is being undertaken
at present.
(1) While excellent personnel practices are being fol-
lowed in some departments and agencies of Government,
they are not being practiced universally. Therefore, there
is a need to bring the entire profession up to the level of
the best.
(2) None of us is growing younger, and we owe it to
the next generation to guarantee Federal managers that
the "pipeline" will provide enough good personnel offi-
cers to meet tomorrow's needs.
With this introduction, here is a report on what has
been done and what our motivation has been.
SOME MONTHS AGO Chairman Macy called in the
Commission's executive staff and spent the entire day dis-
cussing what could or should be done to improve the
breed. Subsequently, a group of about 15 top personnel
people from departments and agencies in Washington
were called together for the same purpose. In addition,
the Commission's ten regional directors were polled for
their ideas and recommendations.
I extend to the Society for Personnel Administration an
invitation to join in the search for better ways, and to
take part in our quest for excellence. We earnestly seek
your support, and we will welcome your participation.
Among the questions that remain unanswered-and,
hopefully, you will help to find the answers-are these:
How can we raise the stature of the personnel officer
in the eyes of management? This is perhaps the most
basic consideration of all, for unless the manager respects
Excerpted from an address to the Society for Personnel Adminis.
tration luncheon, September 28, 1964, Washington, D.C.
his personnel assistant, he will never invite him to par-
ticipate in planning sessions.
At present we have, on the one hand, a setting in which
the line manager arrives at a decision by himself, then
calls in the personnel officer-whom he obviously brands
as, at best, a technical expert-and says: "I have decided
so and so. Hire or fire so and so." In other settings,
the manager calls in the personnel adviser as part of the
decision-making process, and draws on the personnel
officer's experience and judgment. It is the latter en-
vironment that is needed throughout the service.
Continuing the significant questions we face:
Is the quality of people entering the personnel profes-
sion as high as the quality of those entering related occu-
pations? If not, why not? What can we do to improve
the quality?
Are we retaining good people in the personnel profes-
sion, or do the bright ones soon want out? Are those
who leave attracted to other management/staff jobs such
as budgeting or financial management? If so, why?
Are we doing an adequate job in rotating people be-
tween the various disciplines of personnel work, such as
recruiting, placement, classification, and so on, or are we
"strapping" our personnel people into narrow specializa-
tions? For example: it is imperative in the man-and-job
matching process that the man in placement and the man
in classification know what the other fellow is doing and
why.
Are we providing opportunities for our present per-
sonnel people to gain experience that might some day
qualify them to move into line management? By this I
mean, are they being given opportunity to learn by ex-
perience what budgeting is all about? Public informa-
tion? Other concerns of management?
Is our training program adequate? If not, what
changes could be made for the better?
These are some of the questions. There are many
more.. We would like very much to count on your sup-
port . . . . Without continuing effort to "improve the
breed" and bring every practitioner up to his highest peak
of performance, we cannot really hope to support the
hand of management as it should be supported for the
vital Government missions of today and tomorrow.
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 114: BP 'thT4-eP ?JA" 9P0Qi A-* not
RECRUITERS knowing the facts can contribute to the failure of a vital
program, and the imprudent expenditure of the tax-
11\ RO Ul V L (J P payers' money.
ANEW RECRUITING SEASON has started and
Federal recruiters are packing their bags in prep-
aration for the continuing search for quality talent. Re-
cruiting has become "big business" with most Federal
agencies, and the degree of success in the recruiting effort
is measured by the numbers of well educated and trained
applicants put on the rolls.
HERE ARE A FEW of the criticisms voiced about
recruiters that are received from placement officials and
faculty. It is obvious that these criticisms are not neces-
sarily pertinent only to Federal recruiters.
? Your recruiter had apparently never been on
a college campus before nor trained for it,
and he was completely outclassed by other
experienced recruiters.
ON THE COLLEGE CAMPUSES we will again be ? The recruiter should have been trained in
involved in a highly competitive situation. Private in- interviewing techniques. Most of the seniors
dustry, government (Federal, State, and local), and educa- interviewed were completely confused and
tional institutions are all aggressively seeking the quality expressed their dissatisfaction with Govern-
graduates who can contribute to the successful accom- ment representatives (a.ll of them got the
plishment of their individual missions. All have chal- blame).
lenging assignments to offer, and monetary rewards equal ? He may have been an alumnus of the school,
to the value of the contribution made. Often, the dif- but he certainly is not a recruiter. He did
ference between success and failure is influenced by the you more harm than good.
selection and training of the representatives chosen to do
the actual recruiting. ? The recruiter gave the impression he didn't
like what he was doing and was too busy
THE FEDERAL GOVERNMENT has increased its to spend much time interviewing. He let it
competence in this vital college recruiting effort by leaps it be known he had more important things to
and. bounds, and is now recognized as an aggressive and do. Those he interviewed felt the same way.
effective competitor and a good employer. We have
been reasonably successful in our quest for quality, but THESE ARE JUST A FEW indications of what hap-
still are a long way from bringing enough topnotch talent pens when the wrong person is selected to do the job,
into the career service. The answer to increasing our or an untrained representative is sent to a campus.
effectiveness lies in the people we choose to do our re- Recruiting is too important a responsibility to assign
cruiting, the training they receive before hitting the re- thoughtlessly. The person the least busy at the time is
cruiting trail, and the techniques and skills they employ not necessarily the best one to do your recruiting job.
on the campus. When a recruiter visits a campus he or she is your or-
A recent letter from a very competent and effective ganization in the eyes of the placement official, the fac-
Placement Director contained the following sentence: ulty, and the students. We cannot afford to handicap
our efforts by sending an unqualified and untrained rep-
"I am personally convinced that the problem resentative to an institution that can provide us with the
faced by Federal recruiters is not caused by quality of talent needed to support vital programs.
the employer they represent but rather is caused It should pay big dividends if executives would ask
by themselves as persons and their recruiting themselves before sending a recruiter on the road:
methods and techniques or lack thereof."
Is this person the best we have to represent our
An initial feeling of resentment was overcome when organization?
it was realized that what he was referring to was the
unsuccessful Federal recruiter, not Federal recruiters in Is he trained for the important task we have as-
general. This type of frank evaluation of our recruiting signed to him?
effort is necessary if we are to achieve our recruiting If the answer is "no" to either question, do your orga-
objectives efficiently and economically. nization a favor--send a better representative, or don't
Executives are often shielded from unfavorable com- send anyone at all.
ments about their campus representatives, and this is un-
fortunate. We cannot afford to wear blinders, consider- -Robert F. Mello, Director
ing that the broadest possible view of our recruiting effort Office of College Relations
is absolutely essential if we are to recruit the quality and Recruitment
V ERVICE JOURNAL
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 ~-~ LEGAL DECISIONS
REDUCTION IN FORCE
George v. United States, Court of Claims, June 12,
1964. Plaintiff was separated by reduction in force from
his position in Japan. Since he had not been given the
required notice, the Commission directed that he be re-
stored to his position retroactively. The agency restored
him to the payroll, gave him the back pay that was due,
and again separated him after proper notice. His appeal
to the Commission from the second separation was denied
because it was not filed within the time specified in the
regulations. He then asked the court to declare the sec-
ond separation illegal on the ground that the agency had
not fully complied with the decision of the Commission
on the first separation in that he was not physically re-
stored to his position in Japan. The court ruled against
him, pointing out that he had failed to show that he suf-
fered any financial loss because of the failure of the agency
to physically restore him to the position in Japan.
Swanson v. United States, Court of Claims, May 18,
1964. The Foreign Assistance Act of 1961 abolished the
International Cooperation Administration and provided
(in section 621(d)) for the transfer to a new agency
that was to be established to handle foreign aid of "such
personnel of the International Cooperation Administra-
tion as the President determines to be necessary." Plain-
tiff was not selected for transfer and was separated on the
date of the abolition of ICA. He claimed the separation
was in violation of sections 12 and 14 of the Veterans'
Preference Act. The court dismissed the petition with-
out an opinion. Plaintiff has filed a petition for review
by the Supreme Court.
Freeman v. United States, Court of Appeals, D.C., June
4, 1964. Appellant had been convicted of a criminal of-
fense on the basis of evidence taken by agency investiga-
tors from a table used by him at a messenger station. He
sought reversal on the authority of a 1951 case in which
the court had reversed a conviction which had been based
on evidence obtained by the police in searching a desk.
October-December 1964
Approved For Release 2000/09/11
The court ruled that this case was different from the case
cited as a precedent. In that case the desk was assigned
to a secretary's exclusive use in the office where she was
employed. In this case the messenger did not have ex-
clusive use of the table; his assignment was merely tem-
porary since he could be assigned to another floor on a
daily basis. Secretaries and other employees would fre-
quent the room and use paper clips and pencils from the
table. In effect, the table was open for common use.
McEachern v. United States, District Court, South
Carolina, July 8, 1964. This case involves the removal
of a hearing examiner for failure to pay his debts (see
Journal, Vol. 4, No. 1). The district court's previous
decision in favor of the United States had been reversed
on a technicality by the court of appeals. On rehearing,
the district court again ruled in favor of the United States.
It held that removal for willful or negligent failure to
pay lawful debts without sufficient excuse or reason is
clearly for a cause that will promote the efficiency of the
service. In addition, the court rejected the plaintiff's
argument that there was no substantial evidence to sup-
port the general charge that his financial irresponsibility
"brought discredit on the Agency and hence on the De-
partment and the United States." The court said: "The
Courts have never required specific proof of such facts.
The Commission drew a justifiable inference from the
established facts * * *." Plaintiff has appealed to the
Court of Appeals.
Wiles v. Gronouski, District Court, West Virginia,
May 26, 1964. The Commission directed plaintiff's sep-
aration from the position of career substitute clerk for
engaging in political activity prohibited by section 9(a)
of the Hatch Act. He had filed for the office of justice
of the Peace and permitted his name to appear on the bal-
lot unopposed but under a political party label in both
the primary and general elections. The court upheld the
Commission, ruling that candidacy under a party label for
any office, however minor, whether accompanied by active
campaigning or not, is per se a violation of the Hatch Act.
-John J. McCarthy
31
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THE WASHINGTON SCENE
"Washington-City of the World" is what Holiday
Magazine has called the Nation's Capital. Apparently
authors have agreed with this appraisal, for they have
been devoting more and more of their time and talents to
this city, and more specifically to the operations of the
Federal Government. Following are some of the recent
Washington-centered books that should be of interest to
Federal executives and managers.
From a profusion of current books, a good starting
point is Douglas Cater's Power in Washington. The
subtitle, "A Critical Look at Today's Struggle to Govern
in the Nation's Capital," captures the flavor and central
theme of the text. Power is nowhere concentrated, Cater
claims, but resides in many "sub-governments" in the leg-
islative and executive branches and in outside groups
affected by Government rulings. As the subtitle indi-
cates, the author gives the reader a behind-the-scenes look
at power, how it is garnered, used, and sometimes abused.
Jack Raymond's Power at the Pentagon treats the most
complex of all. our "sub-governments"-the Department
of Defense. His views on the many facets of Pentagon
operations stem from his covering the Defense Depart-
ment for the New York Times since 1956. Raymond
imparts to the reader a "you are there" feeling, though
not all readers will agree with hismany assessments.
Peter Woll's slim volume, American Bureaucracy, is a
refreshing course in political science. His treatment of
administrative law and the regulatory agencies is a gem
of clarity and understanding. The emergence of the
bureaucracy in areas not explicitly provided by the Con-
stitution is traced with illuminating detail-providing a
new viewpoint and a challenging one.
The Politics of the Budgetary Process by Aaron Wil-
davsky is an approach to the budgetary process quite un-
like any other text on Federal budgeting. In place of the
usual descriptions of the budget cycle, and budget formu-
lation and execution, the book deals with roles and the
behavior of all those involved in the process-from the
agency budget officer, through the Bureau of the Budget
and the White House, to the appropriation committees.
The text abounds in cautions, directions, and "tricks of
the trade." The author concludes that "the existing
budgetary process works much better than is commonly
supposed."
Like other studies which bear his imprint, Lloyd War-
ner, in collaboration with three other scholars, has pro-
duced in The American Federal Executive a carefully
documented study of the social and personal characteris-
Power in as ington. oug as at r. a -
dom House, New York, 1964. 275 pp.
Power at the Pentagon. Jack Raymond. Har-
per & Row, New York, 1964. 363 pp.
American Bureaucracy. Peter Woll. W. W.
Norton & Co., Inc., 1963. 184 pp.
The Politics of the Budgetary Process. Aaron
Wildavsky. Little, Brown & Co., Boston, 1964.
216 pp.
The American Federal Executive. Warner, Van
Riper, Martin & Collins. Yale University Press,
New Haven, 1963. 405 pp.
Scientists and National Policy-making. Edited
by Robert Gilpin & Christopher Wright. Colum-
bia University Press, New York, 1964. 307 pp.
The Making of Justice. James E. Clayton. E.
P. Dutton & Company, Inc., New York, 1964.
320 pp.
tics of the civilian and military leaders of the Federal
Government. The authors' basic purpose was to define
broadly the representative characterof the American Fed-
eral bureaucracy and the nature of occupational mobility
and succession in American society as a whole. This they
have done exceedingly well, and contrary to what is often
thought by those outside the Federal' establishment, the
quality of Government leadership is shown to compare
favorably with that of the business world.
Washington is increasingly coming to grips with what
may be defined as a national science policy. Thus we find
this introduction to the co-edited text, Scientists and Na-
tional Policy-making:
"In the increasing number and variety of interactions
between social affairs and science and technology,
two constant factors stand out: the clear need to
establish policies for many of these interactions on
a national basis, and the involvement of men of sci-
ence in this process."
This book presents a collection of 10 essays from a
series of seminars sponsored by the Columbia University
Council for Atomic Age Studies. All authors addressed
themselves to the two "constant factors" mentioned above,
but several of the essays have immediate relevance for
Federal managers. These are Don K. Price's "The Sci-
entific Establishment"; Wallace S. Sayre's "Scientists and
American Science Policy"; and Robert N. Kreidler's "The
President's Science Advisers and National Science Policy."
In his The Making of Justice, James Clayton of the
Washington Post's editorial staff focuses on the 1962-63
term of the Supreme Court for a lively and lucid account
of the Court in action. He deftly shows the shifts in the
judicial winds and the oscillating balance between major-
ity and minority. This volume should appeal to lawyer
and layman alike. -Franklin G. Connor
CIVIL SERVICE JOURNAL
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SHELF-HELP
 20*09/ 1CIA-RDP78-03721A000600010004-9
ort 0t1 no, ' 71
FEDERAL EXECUTIVE BOARDS in 12 major cities have demon-
strated their ability to "translate common concerns into a working com-
munity of interest, to initiate projects on a joint basis, and to create a
management outlook responsive to the broadest national purposes,"
Chairman John W. Macy, Jr., of the U.S. Civil Service Commission, told
the President in his annual report on FEB activity.
The President responded in part: "We can and must do more-much
more-with the facilities and resources we have. We must exploit
every opportunity for savings, for eliminating duplication, for doing
our work more efficiently." The President also said he "will look to
the Boards to give all possible support to our major substantive programs
such as civil rights, the war on poverty, and youth assistance and train-
ing. At the same time, I hope the Boards will step up their efforts to
promote greater economy and productivity in all Federal operations."
SINGLE FUND DRIVES, in which Federal employees and service-
men may contribute to voluntary health and welfare agencies once a year
by payroll deduction, cash, or pledge are now in progress in six cities
having heavy concentrations of Federal activity.
Endorsed by President Johnson, the single drives are an experiment
to learn whether a combined campaign will bring continued generous
support for each of the fund-raising organizations and their member
agencies, and save the Government time and expense by having only
one solicitation on the job each year.
Results of the six pilot campaigns now being conducted in Bremerton,
Wash., Chicago, Ill., Dover, N.J., Macon, Ga., San Antonio, Tex., and
Washington, D.C., will help to determine whether single campaigns can
be extended to other metropolitan areas in the future.
AS A RESULT OF a 2-year research study conducted in five Federal
agencies, the Bureau of the Budget believes it is feasible to develop valid
productivity measures for a considerable portion of Federal activities.
Studies of several of the agencies indicate that the rate of increase in
productivity in Government compares favorably with the overall 3-per-
cent annual increase in productivity in industry.
Kermit Gordon, Budget Bureau Director, said the Bureau will ask all
agencies of Government to study the report to determine the extent to
which newly developed techniques can be adapted to their programs, and
to use these productivity measurements to the fullest extent possible in
preparing their budget submissions.
SIGNING the Government Employees Salary Reform Act of 1964,
President Johnson said: "This legislation provides both the flexibilities
and the incentives to recognize differences between marginal, competent,
and superior performance. I hope that every responsible manager will
use these tools fully, use them equitably, and use them conscientiously.
Our continuing goal is to fulfill the mandate of making Federal salaries
reasonably comparable with those of private life.
"Alongside that goal is the parallel objective of expecting and achiev-
ing high productivity. Everyone in the Federal service, from the lowest
grade to the highest, has the responsibility of assuring the American
taxpayer full value for every dollar spent and that no dollar will be spent
unnecessarily. . . .
`Tor the first time this [law] gives us the tools to identify and inspire,
to reward and retain excellence in our Federal service. This is one of
the most profound advances in the last 30 years or longer. We are
very sensibly putting behind us in this country the concept that the Fed-
eral service can be treated indifferent
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 Approved For Release 2000/09/11 : CIA-RDP78-03721A000600010004-9
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