MWWLMFVV—— . A STUDY 0F MAiMGEMAL AME NQNJKMNAGEMAL PGSEWGN? EN A MUNECWAL POLECE DWAHMENT That: for “to Degree of M. S. MICHIGAR STATE UNIVERSITY Thomas Alfred Johnson 1967 m llllll w um ”I um um III II Mu w my II; II 3 1293 101 A STUDY OF MANAGERIAL AND NONFMANAGERIAL POSITIONS IN A MUNICIPAL POLICE DEPARTMENT BY Thomas Alfred Johnson AN ABSTRACT OF A THESIS Submitted to Michigan State University in partial fulfillment of the requirements for the degree of MASTER OF SCIENCE School of Police Administration and Public Safety 1967 . 3 (/fi APPROVED Tam, ' * (. 77, zyii::Chairman) LL.- Tember) (Member) ABSTRACT A STUDY OF MANAGERIAL AND NON-MANAGERIAL POSITIONS IN A MUNICIPAL POLICE DEPARTMENT by Thomas Alfred Johnson This thesis examines various municipal police po— sitions to ascertain if there is sufficient difference be- tween managerial and non—managerial positions. It will be hypothesized that there are certain differences that exist between various positions in a municipal police department, and these differences can be defined in terms of operations, supervision, and management. A position classification study of a Central Michigan Police Department was utilized to test the validi- ty of the hypothesis. In view of the data collected from the position- classification study of the Central Michigan Police De— partment, it is apparent that the results of this survey will support the hypothesis that there are in fact differ- ences that do exist between managerial and non-managerial positions in a municipal police department. Of the 139 positions which are allocated to three classifications Thomas Alfred Johnson 86.4% or 120 positions were allocated to the classification of operations; 8.6% or 12 positions were allocated to the classification of supervision; and 5% or 7 positions were allocated to the classification of management. Further— more, these differences in position can be defined in terms of operations, supervision, and management; as evidenced by the fact that for each classification there were totally different distinguishing features of work; different types or examples of work performed; and totally different qualifi- cations needed to fulfill these duties within each of the three classifications-—operations, supervision, and management. Further refinement in terms of quantification and qualification of this modest study, and additional position- classification surveys of municipal police departments is recommended. A STUDY OF MANAGERIAL AND NONFMANAGERIAL POSITIONS IN A MUNICIPAL POLICE DEPARTMENT BY Thomas Alfred Johnson A THESIS submitted to Michigan State University in partial fulfillment of the requirements for the degree of MASTER OF SCIENCE School of Police Administration and Public Safety 1967 ACKNOWLEDGMENTS The author wishes to express his gratitude and appreciation to the Chief of Police, of the Central Michi— gan Police Department that was studied, for his consent and excellent cooperation in the position—classification study. The author also extends his gratitude to those members of the police department who participated in this study. The author is indeed indebted to Mr. Raymond Galvin for his perceptive guidance and assistance in the com— pletion of this project. A special note of appreciation goes to Mrs. Edith Ward,the author's mother-in—law for her efforts in typing and proofreading this paper. Most of all, the author wishes to express his deepest feelings of gratitude and sincere appreciation to his wife, Sherry, for her analytical assistance, guidance, and sustenance; for without her, this thesis would never have been possible. ii TABLE OF CONTENTS Chapter Page I. INTRODUCTION . . . . . . . . . . . . . . . . . 1 Statement of the Problem . . . . . . . . . 3 Importance of the Study . . . . . . . . . 3 Scope of the Study . . . . . . . . . . . . 9 The Population and Sample to be Used . . . 10 Procedures Used in the Study . . . . . . . 10 Analysis of the Data . . . . . . . . . . . ll Terms Used and Their Definitions . . . . . 11 Organization of the Remainder of the Thesis . . . . . . . . . . . . . . . . . 12 II. REVIEW OF THE LITERATURE . . . . . . . . . . . 14 Management . . . . . . . . . . . . . . . . 14 Police Management . . . . . . . . . . . . l9 Supervision . . . . . . . . . . . . . . . 25 Police Position—Classification . . . . . . 27 Job Description . . . . . . . . . . . . . 40 Job Specification . . . . . . . . . . . . 47 Job Analysis . . . . . . . . . . . . . . . 49 Job Evaluation . . . . . . . . . . . . . . 52 Position—classification . . . . . . . . . 54 iii Chapter III. RESULTS OF PERSONAL INTERVIEWS WITH 14 A DIRECTORS OF PERSONAL OF LARGE MUNICIPAL POLICE DEPARTMENTS Essential Questions Asked Analysis of Responses Implications of the Interview Revealed Following Information IV. ANALYSIS OF FIELD STUDY DATA MethodOIOgy . . . . . The Survey . . . . . . . . . . . . . . Job Audit Preparation of Class Specifications V. SUMMARY AND CONCLUSIONS Summary Conclusions Need for Further Research BIBLIOGRAPHY APPENDICES iv Page 96 97 98 99 112 112 113 118 123 134 134 135 136 138 144 LIST OF CHARTS Chart Page A. Responses of 14 Directors of Personnel of large municipal police departments to questions asked during a personal interview . . . . . . . . . . . . . . . . . 100 B. Allocation of positions to classifications of the Central Michigan Police Department on basis of data contained in position- classification questionnaires . . . . . . . 119 CHAPTER I INTRODUCTION It should not be assumed that all law enforcement officials recognize that there does exist certain differ- ences between managerial and non-managerial positions in a municipal police department, because this fact has simply not yet been established. However, even if all law en- forcement officials were to agree on the contention that there do exist certain differences between these managerial and non-managerial positions, the proposition reaches its most penetrating and significant proportions when the ques- tion is asked in what ways do they view or perceive how these differences in positions exist. Paul Falzone states in his unpublished Masters Thesis, "A Comparative Analysis of Executives Role in Business and Law Enforcement," that members of an organi- zation generally provide services or perform functions that can be classified into two categories: lRobert Tannenbaum, Irving R. weschler, and Fred Massarik, Leadership and Organization (New York: McGraw- Hill Book Company, 1961), p. 243. Quoted from Paul Falzone, "A Comparative Analysis of Executives Role in Business and Law Enforcement" (unpublished Masters Thesis, Michigan State University, 1965), p. l. l. Managerial 2. Non-Managerial The managerial level is primarily responsible for arranging the resources available in a given enterprise in such a way as to achieve the common objectives of the organization. The basic com— ponents of the managerial function are as follows: 1. Leadership--inspiring the whole organization and carrying it forward toward the realization of objectives. 2. Organization—-developing appropriate form and function for the attainment of objectives. 3. Administration—-providing the policies and methods by which objectives can be realized, and marshaling the physical and human resources. A. Policy makinq—-anticipating the future and planning for it, laying down policies for securing objectives and modifying objectives and policies for better results. B. Executive action—~carrying out and interpreting the policies and deal- ing with the present problems and diffi— culties which arise from day to day. C. Control--knowing that the execu- tive is proceeding to plans and policies laid down——with a view to further policy making and planning. 4. Coordination--at all times securing harmony of action toward the objectives through leadership organization and administration. 2Mary Cushing Howard Niles, Middle Management (New York: Harper and Brothers, 1941), p. 15. Quoted from Paul Falzone, "A Comparative Analysis of Executives Role in Busi— ness and Law Enforcement" (unpublished Masters Thesis, Michigan State University, 1965), pp. 1-2. The non-managerial level's primary responsibility is simply to perform those operations which are needed to ef- fectively fulfill the goals of the organization.3 A procedural technique that will be utilized in ascertaining if any differences exist between managerial and non—managerial positions will be through the use of a po- sition classification study. I. STATEMENT OF THE PROBLEM The hypothesis of this study will be that there are certain differences that exist between various positions in a municipal police department, and these differences can be defined in terms of operations, supervision, and management. II. IMPORTANCE OF THE STUDY It is important that these differences that exist between the managerial and non—managerial positions be identified so that the present allocating of our personnel can be assigned on a more profitable basis, in terms of efficiently and effectively operating in a particular designated position. To illustrate and lend support to the importance of this study, the reader is referred to sig- nificant contributions from the following authors: BIbid. Raymond Clift states that whether we like to admit it or not, the management of our personnel in many of our police departments is being neglected. There has been too much emphasis placed upon the "gadgets" of modern crime detection without the corresponding amount of emphasis be— ing placed with the men who are supposed to utilize these "gadgets” to perform their job.4 Professor Arthur F. Brandstatter contends that a position description should be utilized by police agencies to determine whether the particular individual has the necessary skills and qualifications to function in his po- sition, or any future position he might aspire to rise. Often when people within a police department who do not have the necessary skills or qualifications to fill managerial positions get promoted, they discover there are duties and responsibilities that they cannot fulfill. This is not only unfair to the general welfare of the department and community, but is also very frustrating to the indi— \ 1 vidual officer.6 It would appear as though this problem g 4Raymond E. Clift, A Guide 59 Modern Police Thinking (Cincinnati: W. H. Adnerson Company, 1965), p. 41. 5A. F. Brandstatter, "Executive Development," An Address presented to WOrkshop III, Personnel Directors, National Center on Police and Community Relations, Michigan State University, January 31, 1967. 6Richard H. Blum, Police Selection (Springfield, Illinois: Charles C. Thomas, Publisher, 1964), p. 58. could be minimized, if not alleviated, by determining what differences in positions do exist between the managerial and non-managerial levels, and simply making the pro- motions to a higher classification or position, based on the requirements and specifications of the job, and the corresponding matching skills and qualifications of the employee. Germann contends that if the only road to the higher supervisory and administrative positions is "up through the ranks," it would then not be unreasonable to demand that the skills and qualifications for these mana- gerial positions should be made mandatory at the entrance level. Regarding executive development programs, John Kenney adheres to the point of view that current police management could be accomplished more effectively and ef- ficiently if the persons in these positions were trained specifically in management and administration. A11 indi- cations point to a considerable drought of management and administrative skills in the police service. This coupled with the fact that police departments are now "big busi— ness," and yet lacking executive development plans, will require much concern and attention in the ensuing years. 7John P. Kenney, Police Management Planning (Springfield, Illinois: Charles C. Thomas, 1959), p. 7. Germann contends that while there has been great progress in the development of executives in the business world, law enforcement has barely scratched the surface in this important area.f/It seems as though there is an as- sumption in the police circles that those officers who have the longest tenure or in some cases, even the best record as police officers, may confidently be expected to eventual- ly perform in the capacity of managers; however, management requires special talent and a number of skills that cannot be acquired in the course of line experience. Mary Jo Schneider hypothesized that current police executive development programs of the larger municipal po— lice departments are either inadequate or non—existent, insofar as their abilities to have any impact on the grow- ing complexity of police services. Schneider further felt that executive development programs used by business and industry could also be effectively applied within municipal police departments.9 The results of Schneider's survey confirmed her hy— pothesis to the degree that she states: 8A. C. Germann, Police Executive Development (Springfield, Illinois: Charles C. Thomas, 1962), pp. 4—6. 9Mary Jo Schneider, "Police Executive Development: The Construction and Presentation of a Model Program" (un- published Masters thesis, Michigan State University, 1964), pp. 1-2. The relatively low incidence of both formal and in— formal executive development programs is stressed. Compared with the intensive programs found in busi- ness and industry, police executive development pro- grams must be considered either non-existent or in the first stage of infancy. Schneider continues to state that law enforcement has completely failed to meet the needs of the management level in that it does not recognize the management train- ing needs that the patrolmen and supervisors of today re- quire, if they are to be placed in the management positions of tomorrow. Bruce Smith, Jr. states that there must be some method developed for allocating administrators or those people with the skills for managerial positions, without subjecting them to the long and sometimes non—productive process of promotion from the lower ranks.12* . The President's Commission on Law Enforcement con— tends that college graduates will more than likely be de- terred from a police career because of the traditional and universal entrance level being at the bottom level, or patrolman. The fact that it is generally necessary to serve from two to five years before one would become eligible for 10Ibid. llIbid. 12Bruce Smith, Jr., Police Systems in the United States (New York: Harper and Brothers, 19667, p. 318. a promotion discourages many qualified candidates from ap- plying for the position. Also the knowledges and skills that a college education can provide should receive recog- nition and stimulation at the entry level.13 The significant fact is this: does this man pos- sess the qualifications and skills to perform the functions of the position he is being sought for. Police administration has become a complex and high- ly technical calling, the problems of law enforce- ment can be satisfactorily described and made reali— ty to persons who have had some experience with public administration. . . . In other words, the task of law enforcement is now a problem of manage- ment, and lies beyond the comprehension of those who are not experienced. 4 Yet this is not to state that all tasks in law en- forcement are problems of management. But through the use of a position classification survey, differences will be able to be defined between various positions which are managerial and non-managerial, and the appropriate tasks can be assigned to this classification on the basis of duties performed in operations, supervision, and management. V. A. Leonard surmises that as men possessing the necessary qualifications and skills move ahead into 13A Report by the President's Commission on Law En— forcement and Administration of Justice, The Challenge of Crime in a Free Society (Washington, D.C.: Government Print- ing Office, 1967), p. 107. 14A. C. Germann, Police Executive Development, gp. Cit., p. 4. management and related positions where they can influence future policies, then and only then will the cities of our nation begin to receive the caliber and quality of police service which they have so long been entitled to.15 III. SCOPE OF THE STUDY The scope of this research will be limited in the following ways: I l. The literature reviewed for the research has been selected from the business field, mainly because of the rather limited and inferior literature that presently exists in the police personnel field. 2. The empirical situations and relationships will be taken from interviews with the personnel directors of 14 municipal police departments, which are all in the category of ranking as the largest municipal departments in the United States. 3. It is stipulated that this researcher lacks the formal training and experience that a job analyst should possess in any poSition—clasSification survey. 4. The position classification will be limited in its sophistication to only utilizing the position description by the employees of that position. 15V. A. V. Leonard, "University Training for the Police Profession," Encyclopedia of Criminology (New York: The Philosophical Library, 1949), p. 503. 10 IV. THE POPULATION AND SAMPLE TO BE USED The personnel directors of the following municipal police departments were interviewed regarding the differ- ences that might exist between the managerial and non- managerial positions in a municipal police department. The interview varied from 30 minutes to 90 minutes. 1. New York 8. Memphis, Tenn. 2. Chicago 9. Richmond, Va. 3. Los Angeles 10. Minneapolis 4. Detroit 11. St. Louis 5. Seattle 12. Pittsburgh 6. Louisville, Ky. 13. Atlanta 7. Syracuse, N. Y. 14. Hartford A position classification study of a Central Michi— gan Police Department was utilized to test and facilitate the acceptance or rejection of the hypothesis of this study. V. PROCEDURES USED IN THE STUDY Essentially the literature was reviewed for basic concepts and premises, and to indicate what areas have been researched and where further research was deemed necessary. Personal interviews with fourteen Personnel Directors of some of the larger Municipal Police Departments in the United States were conducted to augment the findings or 11 discoveries of the literature and to also throw new light on current thoughts in this area. The field study, which was conducted in the Central Michigan (area), was designed to aid in the acceptance or rejection of the hypothesis that there are in fact differ- ences between managerial and non-managerial positions, and whether these differences can be defined in terms of oper- ations, supervision, and management. VI. ANALYSIS OF THE DATA The purpose of the analysis of the data, which was obtained both through field research and personal inter— views, will be used to test the hypothesis in a quantitative form to determine whether to accept or reject the hypothe— sis, as it was earlier stated. VII. TERMS USED AND THEIR DEFINITIONS To insure that the thesis is Clearly understood and not misinterpreted, several terms will be defined as this author used them. Operations—-The line level, those individuals who actually perform the tasks of their organization. Supervision--The task of seeing that the job is be— ing performed by those at the line or operations 12 level, and seeing that all orders from management are properly carried out by the operations level. Management-—The level whose main responsibility is in the planning, organizing, controlling, co- ordinating, and staffing of the organization and its functions to insure that the goals or objectives of the organization are fulfilled. Municipal Police Department--Any police department that employs more than one man and serves a munici- pality in enforcing the laws of that jurisdiction. VIII. ORGANIZATION OF THE REMAINDER OF THE THESIS Chapter II presents a review of the literature in the following areas: management, supervision, job analysis, and position classification. Chapter III presents the results of the interviews with the personnel directors of fourteen municipal police departments. Chapter IV is devoted to the field research; emphasis is placed on position classification, and it is limited to one municipal police department to insure that the quality of information will aid in the acceptance or rejection of the hypothesis. Chapter V will present a summary of the study and a development of the conclusions. 13 CHAPTER II REVIEW OF THE LITERATURE This chapter will consist of a broad review of the major and relevant literature in the following areas: management, supervision, job analysis, and position classifi— cation. The review of the literature in these areas is con— sidered to be important to the development of this thesis. A . MANAGEMENT Despite the crucial importance, high visibility, and the spectacular rise of management, management still es- sentially remains unknown and often misunderstood. Even those involved in some of our more sophisticated businesses do not know what their management does; what it is supposed to be doing; how it acts; why it acts; or even whether it is doing a good job or not.1 The definition of management generally takes many forms, but it is quite interesting to note that in almost all books on management there is the acceptance and agree- ment on the point that management is the act of accomplishing 1Max D. Richards and William A. Nielander (eds.), Readings_in Management (Chicago: South-Western Publishing Company, 1963), p. 23. 15 events through people.2 The manager then can be identified as one who guides and directs the work of other people; thus a manager is always both a leader and a supervisor, in that other people are constantly reporting to him.3 This, of course, is all stated so that one bears in mind that one of the primary differences between managerial and non— managerial positions has been identified. , This brings us to a key question. What do managers do? How do managers manage? To ascertain what a manager does, we must identify two basic factors: the tasks that make up management, and the skills required of the manager to perform these tasks. Louis Allen has identified fifteen tasks which he considers part of managerial work, primarily because they can only be performed both effectively and organizationally by a person in a managerial position. The tasks are identified as follows: 1. Who determines the objectives or goals for the people who report to the manager? 2Joseph G. Mason, EQE” 9 Build Your Management ’Skills (New York: McGraw—Hill Book Company, 1965), p. 4; Virgil K. Rowland, Improving Managerial Performance (New York: Harper and Brothers, 1958), p. 11; Lawrence A. Appley, The Management Evolution (New York: American Management Association, 1963), P. 18. 3Harwood F. Merrill and Elizabeth Morting, Develop- ing Executive Skills (New York: American Management Associ— ation, 1952), p. 21. 10. 11. 12. '13. 114. 15. 16 Is the establishment and interpretation of poli- cies done under the manager's direction? Is the programming of the sequence of work carried out under the manager's direction? The development and establishment of procedures to insure that the work will be done in the way he wishes. \ To budget the money, personnel, equipment, and supplies required to accomplish this work. To organize the work that is to be done under his direction. To delegate authority and responsibility. To prescribe the working relationships among the subordinates. To select employees he wants on his team. To compensate his employees fairly for work they do. To encourage communication from subordinates. To help subordinates develop management and other skills. To establish performance standards. To measure the work against the performance standards. To see that there are records and reports of work accomplished.4 Gordon H. Evans augments this list of tasks with what he considers to be further responsibilities of management: 4John P. Werette (ed.), Executive Philosgphy and Practice (Ann Arbor, Michigan: Michigan Business Review, 1965), p. 170. l7 1. To make or recommend such adjustments in the basic organization of his activity as may be necessary to accomplish assigned objectives. 2. To promote good supervisor/employee relations and endeavor to maintain a high level of em- ployee morale. 3. To maintain surveillance over supervision and operations and keep superiors informed of trends and problems. To accomplish the above-mentioned managerial tasks and other related responsibilities, there are certain basic functions of management which assist men in these positions to fulfill their duties. Since the purpose of the manager is to achieve re- sults through the efforts of others, the following functions will be of great aid to those in managerial positions:6 1. Planning 2. Organizing 3. Coordinating 4. Motivating 5. Controlling Koontz and O'Donnell define the functions of a manager as follows:7 . 5Gordon H. Evans, Managerial Job Descriptions_in Manufacturing (New York: The American Management Associ— ation) 1964), p- 770 6Committee for Improving Management in Government, Improving Executive Management_in the Federal Government (New York: Committee for Economic Development, 1964), p. 9. 7Harold Koontz and Cyril O'Donnell, Principles-g; Management (New York: McGraw—Hill Book Company), 1959, pp. 35-41. 18 1. Planning 2. Organizing 3. Staffing 4. Direction 5. Control The only distinction they note from the above list is that of substituting staffing for motivation." Arthur Weimer, Dean of the School of Business at Indiana University, lists the functions of a manager as follows:8 1 Planning 2 Organizing 3. Leading, including directing and motivating 4 Controlling These general areas or functions have been defined by many authors and in great detail. For the purpose' of a good reference point, a very short definition will be allo- cated to each of the functions as follows: Planning--the selection from among alternatives, of enterprise objectives, policies, procedures, and programs. Organizing--the grouping of activities necessary for accomplishing enterprise purposes, the assign- ment of these activity groupings to managers with the necessary authority for undertaking them, and the establishing of authority relation- ships horizontally and vertically on the structure to assure the degree and kind of co- ordination desired. Staffing--the selection and training of subordinates. Directing--the overseeing of subordinates in the undertaking of their assigned duties. 8Arthur M. weimer, Introduction 52 Business: .5 Management Approach (Homewood, Illinois: .Richard O. Irwin, Inc., 1959), p. 37. 19 Controlling--the measurement and correction of activi- ties of subordinates to make certain that plans are transformed into action. Louis Allen states: A manager, we are told, plans, organizes, di- rects, coordinates, and controls. But this is as helpful as saying that a physiCian heals people by diagnosing and treating their symptoms. The key questions are: What work must a physician perform to diagnose and treat his patients? What work must a manager perform when he manages? To ascertain what work a manager really performs when he manages requires the utilization of a job analysis. Then the differences between managerial and non-managerial positions will be very easily accentuated and identified. Material that is relevant to job analysis will be discussed in a later portion of this chapter; however, the point has been well made by Louis Allen. B. POLICE MANAGEMENT The following pages will emphasize material from the police management literature. Donald Clark and Samuel Chapman, in their book, A Forward Step--Educational Backgrounds for Police, state that 9Paul Douten, Jr. (ed.), Current Issues and Emerging Concepts.in Management (Boston: Houghton Mifflin Company, 1962), p. 119. 10Elizabeth Martin, Dorothy MacDonald and Juliet Halford (eds.), Management and Its People (New York: The American Management Association, 1965), p. 267. 20 in their opinions selection of police personnel is one of the most important functions of personnel management. In their thinking, it would be rare if any position, public or private, would command a greater degree of attention than the selection of those officers who operate on a management 11 I r and command level of our police departments. V. A. Leonard contends that today's patrolman is tomorrow's supervisor, or manager, in that he has the po- tential to become a sergeant, lieutenant, captain, or chief. Leonard therefore stresses that much more attention must be given to the recruiting of people who have certain ad- ministrative and management skills.12 The Southwestern Law Enforcement Institute's book, Police Management, states the following: Police officers who have progressed to the super— visory and administrative levels often are handi- capped by the lack of adequate training facilities for their advanced duties. Those who aspire to qualify for management duties likewise are apt to be placed at a disadvantage.1 11Donald E. Clark and Samuel G. Chapman, A Forward Step--Educationa1 Backgrounds for Police (Springfield, Illinois: Charles C. Thomas, 1966), pp. 20—21. 12V. A. Leonard, Police Organization and Manggement (Brooklyn; The Foundation Press, 1964), p. 95. 13Southwestern Law Enforcement Institute, Police Management (Springfield, Illinois: Charles C. Thomas, 1963), p. V. 21 There has been considerable criticism of the inade- quate training police officers are given in the area of management. This prompts the question, what is meant by police management. John Kenney defines management as a method by which efforts are brought to bear to accomplish the job. He re— gards management as an effective team-approach between human resources and materials in an endeavor to reach the desired goal. In effect, Kenny feels that management revolves around the planning and guiding of the necessary police functions that are utilized to accomplish the desired goals.14 Perhaps there is no one formula, but management 'guideposts' have been developed which should be useful for all police managers who are responsi- ble for integrating the various aspects of the police operation. Management is many things to many people. It includes planning, control, co- ordination, and motivation. Control implies com— paring performances to predetermined standards formulated during the planning process. Co- ordination is achieving teamwork within an organi— zation, and motivating entails concepts of morale, leadership, and loyalty.15 O. W. Wilson contends that management plans relate to the problems of equipping, staffing, and preparing the department to do the job, rather than to its actual oper— ation as an organized force. Implicit in this statement is, 14Kenney,ygp, cit., p. 142. lslbid. 22 of course, the idea that there is a considerable difference 16 between police management and police work. This is the type of information that a job analysis should yield, and consequently it can be quite an advantage to those responsi— ble for recruiting and selecting qualified men to fill these positions. The International City Manager's Association feels that the basic tasks in management of a police department revolve around the following categories: planning, staffing, training, budgeting, equipment, coordination, public infor- mation reporting, and directing.17 When speaking of management in the terms above, it 4 J is important to note that these functions and responsibili- ties do not always fall on the level of top management. Fre- quently, middle management will also be responsible for these duties. Middle management personnel are also responsible for planning. In large departments, this would primarily be at the inspector and captain level, in medium sized departments at the lieutenant level, and in smaller departments at the sergeant level. However, as a result of the different type organizations, personalities of the chief of police, and top management personnel, there will be variation from department to department. The type of planning done by middle management personnel will also vary from department to department. In a large department 16Wilson,..‘,Poliwce ;-.p1..m.ing, 92._’¢it..._ p. 6-. 17The International City Managers Association, 22. Cit. , pp. 77-119. 23 with a staff planning unit, reSponsibility of middle management may be limited to making adjustments in plans to meet situations found in a given precinct or area. On the other hand, they may be required to plan for much of the operational organization and program aspects of plans once having been given policy plans prepared by staff planning units. In medium sized departments, middle management person- nel (usually lieutenants or in some departments sergeants) are required to develop many plans. A common practice is for the chief of police and his t0p staff (one or more captains) to outline general- ly what is to be done--develop policy plans—-and then to require lieutenants and sergeants responsible for operations to develop the plan in detail for implementation. Paul Falzone states that regarding the department head's policy of delegating certain responsibilities to other members of the force who help him in the administra- tion and management of the department, "It becomes important to identify these duties along with the skills needed to perform them so that in the light of their content indi— viduals can be promoted who are best able to carry on the responsibilities entailed."19 Today police departments are "big business" and the I chief can no longer run the departments by himself. He 1 needs aid in management skills. For example, Kenney states that departmental budgets have increased from hundreds of laKehney,.gp.‘glt., pp. 29-30?- 19Paul R. Falzone, "A Comparative Analysis-of Execu— tives Role in Business and Law Enforcement" (unpublished Masters thesis, Michigan State University, 1965). dollars to thousands, and even millions, of dollars in departments. This increasing complexity of Operations quires the utmost in management skills.20 It is in the area of management that municipal lice find their greatest need. There are many experts the field of investigation, patrol, etc., but there is some ‘ P0‘ in a shortage of qualified men who can satisfactorily control, direct, and manage other policemen toward the organization- al objectives of the various departments.21 Edward Comber sums up the situation quite concisely by stating: One of the significant oversights associated with law enforcement is the failure of administrations to provide a program designed to develop future mid-management and top-level administrators. This lack of recognition of the need actively to train selected members to fill key management positions is a mark of administrative immaturity. Under the influence of current civil service pr ctices, law enforcement has been subject to the same short- sighted and indifferent approach to the selection of management personnel as it has experienced in the selection of recruits. Failure to take a more realistic position is excused on the basis that present procedures are followed in the interest of 'equal opportunity' or to preserve the 'democratic principle.‘ However, when an appointment is to be made to a key management or administrative position, the appointing authority is the first to recognize that 'equal opportunity' and the 'democratic princi- ple' are not adequate criteria for qualification. As a matter of fact these factors are the least Zqunney,_gp. cit., p. 7. 21International City Manager's Association, op. cit. 24 ) 25 important of the many criteria that should be con- sidered. In many jurisdictions the appointing au- thority seeks contact with the most qualified pro- fessional that the community can afford. The public accepts this approach because the individual citizen wants the benefit of competent direction in the vital public services. C. SUPERVISION The following section of this chapter will deal with the review of literature in the area of supervision. The question is sometimes asked whether foremen or supervisors are a part of management. In recent years, the answer has generally been an emphatic "yes."23 When a man becomes a supervisor, he enters the rank of management because his efforts now will be directed to— ward preparing, organizing, and directing his subordinates to accomplish the work to get things done.24 George Terry states that a supervisor has to be a part of management, if for no other reason than the way the workers View him. Terry feels that the supervisor is a connecting link between managerial and non—managerial . . 25 p081tions. 22Blum,.gpt cit., pp. 205-206. 23Elizabeth Marting, Dorothy MacDonald and Juliet Halford (eds.), Management and Its People, op. cit., p. 99. 24A. Deb, Foremanship (New Delhi: Asia Publishing House, 1963), p. 68; and Joseph J. Famularo, Supervisors in Action (New York: McGraw—Hill Book Company, 1961), p. 13. 25George Terry, Principles 2f Management (Homewood, Illinois: Richard D. Irwin, Inc., 1953), pp. 244-246. 26 VanDersal concludes that there are basic principles of supervision that will facilitate the supervisor's job and help him bridge the gap of managerial and non-managerial positions. The principles are as follows:26 1. People must always understand what is expected of them. 2. People must have guidance in their work. 3. Good work should always be recognized. 4. Poor work deserves constructive criticism. 5. People should have opportunities to show they can accept greater responsibilities. 6. People should be encouraged to improve themselves. The supervisor must be able to perform the following 27 items: 1. He must guide and direct the efforts of the people he is supervising. 2. He must learn how to work in the organization. 3. He must know how to train or teach people to do their job. 4. He must learn how to analyze work loads. 5. He must learn how to make a plan of action. 6. He must learn how to schedule work. George Melanson feels that a supervisor should not only get the work accomplished, but also improve work 26William R. VanDersal, The Successful Supervisor (New York: Harper and Brothers, 1962), pp. 25-35. 271bid., pp. 22—24. 27 methods, determine performance requirements, and develop workers.28 Watson designates the following supervisory skills:29 1. Delegating work. 2. Developing and maintaining spirit among workers. 3. Selecting and assigning workers to the job. 4. Training workers. 5. Following up completion of job. 6. Reviewing progress with workers. 7. Interpreting company policy to workers 8. Supervising workers. Now that the management and supervision literature has been reviewed, the remaining emphasis of this chapter will deal with a review of the position classification literature. D. POLICE POSITION CLASSIFICATION Regarding position classification, there is very little literature on its use in municipal police departments. The International City Manager's Association feels that when a service to be performed requires the efforts of more than one person, the need for some sort of duties classification arises. Positions are classified in two ways: on the basis 28George A. Melanson, Better Management (University of Karachi; Pakistan, 1958), pp. 75-79; Dolton McFarland, Management Principles and Practices (New York: The Mac- millan Company, 1958), p. 524. 9Marguerite Holbrook Watson, How 59 Prepare and Use Job Manuals (New York: Williams-Frederick Press, 1952), p. 25. 28 of the_kipg and level of the duties and the responsibilities. For example, a position in the records unit will differ in kind from that of a foot patrolman, whereas the position of sergeant differs from that of lieutenant primarily on the basis of level. A position classification plan, when properly established and kept current, gives a relatively complete and reliable picture of the services performed. It involves (l) ascertaining and recording the duties of each position; (2) grouping positions in classes on the basis of duties performed, responsibilities carried, authority exer- cised, and qualifications required; (3) assigning short de- scriptive titles to various classes and writing specifi- cations which describe each class in terms of minimum qualifications, general duties, typical tasks, and lines of promotion; (4) allocating individual positions to the ap- propriate classes; (5) maintaining the plan on a current basis.30 To indicate the many and various uses of a position— classification plan, the International City Manager's Associ- ation suggests that a position—classification plan can be a valuable resource for the police administrator. It provides a comprehensive analysis of the work done in the department; 30Institute For Training in Municipal Administration, Municipal Police Administration (Chicago: The International City Manager's Association, 1961), p. 124. 29 facilitates organization studies, planning, and work pro— gramming; is an aid in budget administration and in man- power control; encourages similar and equitable treatment of positions and employees in work assignment, personnel se— lection, promotion, training, efficiency ratings, and re— tirement system administration; and can be a decisive factor in establishing and maintaining good morale.31 The concept of position-classification is not solely directed to the larger municipal police departments, for classification procedure may seem intricate for use in a small city. But the fewer the employees, the less compli- cated is the process. Even in the smallest cities, where each employee necessarily performs a large number of varied and changing tasks, a formal classification plan is de- sirable. The chief administrator may have an intimate personal acquaintance with each employee and his duties, yet his knowledge should not be substituted for the written classification plan which will serve as a guide to de— partment heads and all other employees in matters of qualifi- cation, selection,aand placement, or assignment within the department.32 31Ibid., p. 125. 32Ibid. 30 In a suggestion directed to most municipal police administrators, the International City Manager's Association states that: The classification plan will become obsolete and de- creasingly valuable for personnel and other functions unless department heads cooperate in notifying the personnel agency of permanent changes in the duties given to employees which might warrant reclassifi- cation of positions, modification of classes, or other action. The competent police chief will not view position classification as an administrative hindrance and "red tape," if it is operated as an aid to management as well as a control mechanism.33 Some indication of the fact that very little pro— gress has been made in this area of police position- classification plans can be illustrated by the present general lack of literature in this field; the departments that do have position-classification plans all readily ad- mit to their questionable use because of the broad and sweeping terms used in position—classification plans; these, coupled with the fact that this is not a revolutionary idea, indicates that those of us in law enforcement have to expand on these ideas. For example, in an article, "Selection of Patrolmen," published in 1942, Benjamin Holmes feels: The job should be analyzed in terms of concrete job processes or definite functions. The functions can be further analyzed into mental qualities or traits required for their performance.3 ma. , 4Benjamin Holmes, "Selection of Patrolmen," Journal _g§ Criminal Law and Criminology, Vol. XXXII, No. 5 (January- February, 1942), p. 577. 31 While Holmes states that the functions can be fur- ther analyzed into mental qualities or traits required for their performance, with slight deviations one can look for certain skills, other than those Holmes listed, but which would also be imperative in determining if the man could perform at the level the job required. However, twenty—five years have elapsed since Holmes' suggestion, and according to the current literature in this field, little has been done to follow his original suggestion, let alone make devi— ations from it and research them. Commenting, in a critical vein, on the current po— lice scene: Says David Burnham, assistant director of the President's commission: "You have no idea what a closed, non-scientific, this-is-the-way-my—grandaddy— did-it feeling pervades the American police establishment." 5 Gene Muehleisen, of the Task Force on Police and Public Safety, is in complete agreement. "The po— lice have been terribly insulated. They have little contact with other police departments or with other parts of government—-or really with society. They have had almost no contact at all with the academic world. Even today, with a hundred and twenty col- leges giving courses in police work, there is practi- cally no research going on. And the courses are most— ly taught by policemen, not academic peOple. So we have channel vision, and little creative thinking is being done. Compare law enforcement 35Sam Blum, "The Police," Redbook, Vol. CXXVIII, No. 4 (February, 1967), pp. 120-121. 32 with industrial or medical or space programs and you will see that we're losing ground every day."36 Blum goes on further to state that the problem of de- fining the police job is that no one can say precisely what type of person if there is any one specific type, can function most successfully as a policeman. He goes on to draw from suggestions that have come from the President's Commission, that we need one set of standards so that the term "policeman" will have some meaning beyond that of a "man with a badge." Blum states, we need a new class structure set up within the po— lice force. In other words, there must be a means of entering the police force at a higher level than patrolman, with clear steps leading to administra- tive responsibilities, so that it becomes a career to attract college graduates. ,{We must definitely analyze the éEiiééEan's job, what level ,N” it is on; the skills required to perform the job; and what type of skills the man must possess to effectively perform this job. To do all this requires a more complete job an— alysis of the policeman's job than seeing what type of a person can function most successfully as a policeman, or differentiating between the terms "policeman" and "man with a badge."38 36:15:15. 37:Ibid. 38 ma. 33 Thomas Frost, in his book, A Forward Look a3 Police Education, contends that a job analysis can be used as an aid to better recruiting in that it allows a means of scientifically determining what qualities should be sought in prospective employees. He feels that it is definitely a valuable tool for placing the right man in the right job.39 Frost continues by quoting a statement made by Ismar Baruch, a renowned authority on position-classification: It is equally easy to see that work done and the standards of qualifications necessary to do that work are logically related. In determining what qualifications are necessary in a given position, the work of that position must first be examined from analysis of the duties and responsibilities involved or other evidence. Certain inferences of conclusions may then be drawn as to what combi- nations of education, experience, knowledge, and ability are required to carry them out effectively. Obviously equal work requires equivalent qualifi- cations. The more difficult or more responsible work requires more extensive or exacting qualifi- cations. Thus the qualification standards of a position should be based upon the character, difficulty, and responsibility of the work in- volved in that position. Frost continues by defining job analysis, maintain- ing that it is a process of determining by observation and study, and reporting pertinent information relating to the nature of a specific job. The duties which the employee 39Thomas M. Frost, A Forward Look i3 Police Education (Springfield, Illinois: Charles C. Thomas, 1959), pp. 40-41. 40Ibid. 34 performs plus the skill and knowledge which he must possess in order to properly perform these duties are the character— istics which differentiate one job from another.41 To obtain a complete and accurate study of a par- ticular job, the analyst should make sure that the job is accurately and completely defined. Secondly, that the duties and responsibilities which comprise the job are ac- curately and completely explained. Thirdly, that the skills, knowledge, and abilities which an individual must posess in order to properly perform this job are accurately and completely defined.42 To insure accuracy, completeness, and thoroughness in making the analysis, the analyst should employ a suitable job analysis work sheet. Although there are many different forms available for this purpose, the following specifi— cations constitute the core of most job analysis forms used either in government or business approaches.43 1. The Class Title: A definite title or name ap- plied to the class and to all positions of the class, which shall be as descriptive as possi- ble of the duties and responsibilities involved in the class. 2. The Statement 2; Duties and Responsibilities: A general overall description of the work, 411101 Q: ., p. 42. 35 preponderant duties and responsibilities en— compassed in the sum total of all positions that fall in the class described. 3. The Statement 9; Examples_gf WOrk Performed: Specific illustrations of the duties performed and responsibilities exercised in typical indi- vidual positions embraced in the class. 4. The Statement 2; Minimum Qualifications: A presentation of the basic education, experi- ence, knowledge, ability or skill, and person- al attributes required Eor functioning in the position in the class.4 John P. Kenney, speaking in terms of the job and its structure, states that in identifying the job it is im- portant to note that it is a combination of duties and re— sponsibilities which require that only certain persons pos- sessing specific qualifications be employed to fill the position. The job and its occupant are quite different.45 There must be a description of the work to be performed, and the recruitment and placing of people in these jobs involves the matching of individual skills and aptitudes with the job.46 A. C. Germann, in his book, Police Personnel Manage— .mgpp, states that the establishment of entrance qualifi- cations for a position are usually the result of extensive job analysis. After the duties of the position are 44Ibid., p. 43. 45 . . . John P. Kenney, Police Management Planning (Spring— field, Illinois: Charles C. Thomas, 1959), p. 39. 46Ibid., p. 56. 36 established, the skills and knowledge required to fill the position must be enumerated. Unfortunately in the police service, particularly the smaller jurisdictions, qualifi— cations vary widely. Germann believes that part of the variance is due to the lack of, or inadequate methods of, job analysis; part to the traditional approaches of police service; part to the rigidity of civil service law; but the great part due to the lack of basic personnel research by police service as a whole.47 As Germann views position-classification, it in- volves four specific steps: .1. Job Analysis-~The first step in position- classification is to ascertain and record information relating to each "job" or "position." This means that jobs must be analyzed, duties and responsibilities de— scribed and evaluated in terms of difficulty, and the total authority delegated. Qualifi- cations for the position must be determined. 2. Classification--The positions are now sorted and ranked into some sort of hierarchy, with like positions grouped into like classes. 3. _§pecifications—-Specifications are developed which provide a short descriptive title, and statements of duties and qualifications. Specifications are developed for the indi- vidual positions (job specifications) and for the various classes (class specifications). 4. Allocation--N0w that positions and classes have been specified with care, the last step 47A. C. Germann, Police Personnel Management (Spring— field, Illinois: Charles C. Thomas, 1963), p. 15. 37 is to allocate the various positions to the appropriate classes. It is, therefore, neces- sary that class descriptions be "descriptive, but not restrictive." For example, a patrol- man does many specific jobs--he may work as a traffic officer, a patrol officer, a juvenile officer, etc.,--and the patrolman "class" (rank) must have a description that will not preclude these varied jobs. Germann enumerates other values of the position- classification plan other than the selection and placement of personnel. It also aids administration in that it pro— vides for an analysis of work done, facilitates planning, and work programming, makes budget preparation much more scientific, assists in the control of personnel, and assists in salary standardization.49 Germann also points to the problems involved in position-classification. For example, the work is usually done by the civil service commission or a central personnel agency, in each case too far removed from the police. Ad- ditionally, if a position-classification plan is established, it must be constantly audited, reviewed, and revised.50 Richard Blum contends that many of our standards are accepted "on faith," and that we lack clear evidence showing how each is related to job performance.51 51Richard H. Blum, Police Selection (Springfield: Illinois: Charles C. Thomas, 1964), p. 44. 38 Referring again to the possibility that many of our standards may have been established without the basis of understanding and job requirements, Blum poses a few pene— trating questions. What does a policeman do? Blum main— tains that until we can answer this question, how can peOple say what qualifications he must have in order to do his job well.52 But there is no such thing as one police job. There are dozens of them; how many depends upon the size and situation of each department. They differ by command rank, by bureau, and by job or past assign— ments. They also change over the years and as their populations change, and as technology, crime, law, and police methods are altered. Nevertheless, as long as we are hiring generalists rather than spe- cialists, line versus staff personnel, we must not only know what these jobs are, but we must find within them common denominators so that we can say what the minimum capacities which will allow that recruit to work anywhere and anytime in our agency and still turn in acceptable performance. What is required is that each agency perform a job analysis, and that it come up with basic capabilities and skills which every policeman will need. Blum goes on to conclude that if our police agen- cies undertake a job analysis for each important position, and describe what the officer is required to do, how he does it, why he does it, and the skills and abilities required to do it, the next step is to derive standards based upon those 52Ibid., p. 45. 53Ibid., pp. 45-46. 39 skills and abilities, so that he may effectively perform what the job requires to be accomplished.54 Any enumeration of what skills and abilities the job requires to be accomplished is to say the least a very laborious and difficult task. However, as has been pointed out, the efforts will not go in vain if properly utilized. 0. W. Wilson, in his book, Police Planning, enumer- ates certain duties for various positions such as administra- tive assistant, personnel officer, intelligence officer, etc. Wilson preSents an excellent enumeration of the Chief of Police duties, which he sub—classifies under the following categories: Authority and Responsibilities; Planning; Organizing; Staffing; Delegating, Directing and Coordinating: Controlling and Inspecting; Discipline; Official and Public Relations andReporting.55 To a degree, management, even middle and supervisory management, is concerned with skills of this sort in their jobs, though not on as SOphisticated a level as the upper management. The point is that all the jobs should be analyzed from this point of view or appropri— ate departures, because in this manner police service will come to realize exactly what skills and abilities the job requires, and consequently will be better prepared to 54Ibid., pp. 46-47. 55O. W. Wilson, Police Planning (Springfield, Illinois: Charles C. Thomas, 1962), pp. 391-407. 4O recruit, select, and staff these positions with people pos- sessing the necessary skills to accomplish the mission of the job. Such concepts as the job evaluation, job description. job specifications, job analysis, and position classifi- cation will be reviewed in greater detail. The major empha— sis will be placed upon position-classification, since the study will limit its research to this area. B. JOB DESCRIPTION An appropriate comment to initiate this literature comes from Edith Sands. She points out one of the major problems encountered in job descriptions, which is that an employee can be performing his job in one way, thinking about it in another way, and could even describe it in a third way. This same job could even take on a different ap~ pearance to one's superior.56 Although this exists, as a certain element of presenting a hazard to the study, it can be overcome or minimized. Gerald Fisch reports that even at the executive level, one can encounter difficulties, because when an execu— tive is asked, "What do you really do?" it often prompts very interesting responses. Among them are the usual 56Edith Sands, Howigg Select Executive Personnel (New York: Reinhold Publishing Corp., 1963), p. 33. 41 rummaging through an overstuffed drawer out of which he pulls a manual and passes it to the analyst. Often the ana- lyst will state, "Never mind what the manual says. What do you actually do?" The executive might grin self—consciously as if his secret has been found out, and he might come up with the age—old response, "It would take me a day to tell you."57 These examples can be counted on to appear to the analyst at least once in any series of interviews with indi— viduals when one is attempting to discover what the inter- viewee does on his job. C. L. Bennett states that in the American Manage- ment's Association Manual of position descriptions, there is a distinct difference between job descriptions and job specifications. A job description is a written record of the duties, responsibilities, and requirements of a particular job. It should be noted that the job description is concerned with the job itself, and not with the worker. The job specification is a written record of the requirements sought in the individual worker for a given job. For example, a job description of‘a sales manager in a large firm might state that he is to direct and coordinate 57Gerald C. Fisch, Organization for Profit (New York: McGraw—Hill, 1964), p. 268. 58C. L. Bennet, Defining the Managers Job (New York: American Management Association, 1958), p. 15. 42 all sales activities within the firm. It would also de- scribe some of the more exact ways in which this broad as— signment was to be carried out. On the other hand, job specifications might state that anyone to be employed as a sales manager must have at least five year's experience with the company in various responsible positions plus a college degree. Theoretically, unless the individual meets or ex- ceeds these specifications for the job, he could not satis— factorily perform the activities outlined in the position description. Thus job specifications are often prepared with recruitment, hiring, and promotion in mind.59 Thirty years ago job descriptions for workers was a rather controversial matter. Today, almost every well— managed business maintains some formal descriptions of the various jobs they offer. Such descriptions are accepted be— cause they have proved useful in recruitment and selection of new workers, appraisal, wage and salary administration, and other subsidiary activities.6O Nevertheless, the success or underspread scope of the practice has been complicated by the varying recommen— dations on how to practice this art which differs greatly from one textbook to another. This is further complicated by the fact that the same job is often described differently 43 by numerous companies which attempt to outline it. There— fore, one must be aware of the basic purposes behind the de- scription program.61 For example, the content of the de- scription can be altered by the question: is the job description describing the job as it is actually being done, or as it should be done?62 To illustrate how various textbooks approach the job description can best be shown by the major divisions they consider a job description to include. E. Lanham writes in his text, Job Evaluation, that a typical job description includes three major divisions: the identifying facts about the job; the main body of the de- scription which includes a summary statement about the job and a full account of the operations, responsibilities and duties performed on the job; and the specifications required for satisfactory performance of the job. Lanham states that it is the usual practice not to include the third section, specifications for the job, although he does recommend its inclusion on the grounds that it is more convenient for the analyst when he is evaluating the jobs if he is required to look at only one form and not two separate forms.63 61Ibid 62 Ibid., p. 26. 63E. Lanham, Job Evaluation (New York: McGraweHill, 1955), pp. 176-177. 44 Phillip Jones, in his text, Practical Job Evalu- ation, offers an excellent example of how confusion can easily arise in this field in his statement, "Job de- scriptions, or job specifications as they are sometimes called. . . . "64 Evidently Jones draws very little dis- tinction between the two concepts. This point is further emphasized in a sample job description worksheet he il- lustrates in which one line is devoted to occupation detail, and an example of typical work; from that point, he makes a rapid departure into education, skills, responsibility, and other factors needed, which are all in the vein of job specifications.65 Patton and Littlefield state that personal require— ments or specifications are of such importance that a sepa— rate job specification form is used; however, they will con— cede to its inclusion as a part of the job description, but do not recognize it as being identical as did Jones.66 Even though there has been confusion in terms of what a job description is and what it should do, one must not be overly critical of its overall value, since there are 64Phillip W. Jones, Practical Job Evaluation (New York: John Wiley and Sons, 1948), p. 93. 651bid., p. 103. 66John A. Patton and C. L. Littlefield, Job-Evaluation Text and Cases (Homewood, Illinois: Richard B. Irwon, Inc., 1957), p. 71. 45 many roles in which it is used other than Bennet's original listing. Gordon Evans states some of the more important ways job descriptions are utilized:67 1. To clarify relationships and responsibilities. 2. To obtain data for wage and salary administration. 3. To help people get a better understanding of their job. 4. To assess performance on the job. 5. To acquaint new people with their needs. 6. To review or improve the work flow. 7. To compare salaries in one company to another. Jones lists three other uses of job description, those being the proper utilization of employees, usefulness in labor grievances, and assisting persons responsible for the health and safety programs within an organization.68 Gerald Fisch points out that even though there are numerous uses of job descriptions, other authors have dis— covered weaknesses which are quite significant. For ex- ample, Arch Patton describes them as follows:69 67Gordon Evans, Managerial Jdb.Qescriptions.ip Manu— facturing (New York: American Management Association, 1964), p. 20. 68Jones, op. cit., pp. 96-97. 69Fisch, op. cit., p. 268; and Arch Patton, Men, Money, and Motivation (New York: McGraw—Hill, 1961). 46 1. They rarely recognize the critical elements in the enterprise that make for profit or loss. 2. They often ignore the decision-making and decision-influencing process. 3. They do not discriminate between important and unimportant responsibilities. 4. They rarely deal effectively with joint responsibilities. 5. They have inherent difficulties in dealing with the changes that are essential to progress. Sometimes another source of weak points in the de- scription of certain positions might be the analyst himself. The job analyst should have certain abilities, skills, or qualifications to be employed in this area. For example, the analyst should be able to carry out an objective, fact— finding job without the requirement of close supervision. Interviewing skill is also of vital importance as is the writing ability, so that the responses can be conveyed clear— ly, concisely, and accurately. The analyst should be thoroughly familiar with the philosophy and techniques of job descriptions. It would also be most helpful if he had a broad familiarity with the working process involved in the jobs that are being studied.70 Job descriptions should be accurate, with clear statements of what the worker is expected to do on his par— ticular job, how he does it, and under what conditions he 70Patton and Littlefield, pp. cit., pp. 81-82. works. ples can be followed to fulfill them: 1. 47 In order to accomplish these goals, certain princi- 71 Description of duties should be arranged in a logical order, more important duties listed first, less important duties following in that order. Do not overly go into details of duties. Begin each sentence with an active, functional verb such as "tests" or "performs." Use quantitative words such as "pushes truck loaded with 500 pounds steel," rather than "pushes truck." Use specific descriptions of what worker does rather than generalized, "sells steel only to wholesalers," rather than "sells steel." State duties as duties and not as qualifi- cations; "operates lathe," rather than "should be able to operate lathe." Avoid generalizations; rather than saying, "takes care of stock room," state the exact activities he performs in the stockroom. Indicate whegher duties are regular or occasional. F. JOB SPECIFICATIONS The concept of job specification which was earlier defined as the requirements the worker needed to perform the job as listed by the job description will be briefly discussed. 48 In listing the qualifications for a job, the specifications should take into consideration the job as a whole. Activities such as working conditions, physical needs, skills, character traits, and responsibilities should be listed. As job specifications are listed, the analyst must be guided by three relative suggestions:73 1. Be specific about each listed qualification. In— clude something about the circumstances re— quiring a certain qualification whenever the de- gree or scope of the qualification is important. 2. Use caution not to be misled by the unique personal qualifications of the present worker on the job. 3. When the full list of qualifications has been made up for a job, identify the "minimum employ- ment qualifications. Myles L. Mace offers an excellent example of the job specifications for the position of traffic manager: A. Special Knowledge and Experience 1. Complete and thorough knowledge of all traffic and transportation by water, rail, truck, and air. 2. Complete and thorough knowledge of the Federal Transportation Acts. B. Specialized Education or Training 1. College transportation courses highly desirable. 3Marguerite Holbrook watson, How E9 Prepare and Use Job Manuals (New York: The William-Frederick Press, 1952), p. 23. 74Ibid. 49 2. Legal training desirable. C. Experience 1. Railroad operations — 1 or 2 years on any job from railroad brakeman to general yard master. 2. Minimum of 5 years on rates, 2 years on claims, 1 year on motor trucks, and 1 year on passenger transportation. D. General Management Skills Required 1. Planning - Superior 2. Organizing - Superior 3. Directing and Coordinating - Superior 4. Developing men - Outstanding E. Personal Traits 1. Thinking effectively - Superior 2. Getting ideas across — Superior 3. Drive - Superior 4. Human relations - Outstanding F. Age at time of Appointment 35 to 45 years. G. General Level of Education College degree H. Other Qualifications Important responsibility involves working with attorneys in organizing rate case presentations.7 G. JOB ANALYSIS Practically speaking, every employer has some idea of the work an employee has to do whenever he hires him. 7SMyles L. Mace, The Growth and Development pf Execu- tives (Boston: Harvard University Press, 1950), p. 45. 50 This concept of detailed descriptions of the principal duties of a job is a relatively recent innovation. This job analysis was given great impetus during WOrld War II by our Armed Forces and the U. S. Employment Service. Essentially job.analysis is a systematic procedure for securing and re— porting information defining a specific job.76 One of the better definitions of job analysis reads as follows: Job analysis is defined as the process of determin- ing by observation and study, and reporting perti- nent information relating to the nature of a spe- cific job. It is the determination of the tasks which comprise the job and of the skills, knowledges, abilities, and responsibilities required of the worker for successful performance? and which differ- entiates the job from all others. Job analysis is really composed of four parts: first, the job must be identified; second, the duties and responsibilities of the job must be described; third, the skill and physical requirements for performance must be stated; fourth, the environment in which the job must be per- formed and the exposure to possible hazards must be stated.78 76Harold Stone and William E. Kendall, Effective Personnel Selection Procedures (New Jersey: Prentice-Hall, 1956), p. 22. 77Lanham,.gp.lgi£., p. 124; and U. S. Employment Service, Occupational Analysis and Industrial Services Di— vision, Training and Reference Manual for Job Analysis, June, 1944, p. l. _—‘ 781bid., p. 169. 51 The first division, which was entitled "identifi- cation of the job,” is designed to distinguish this particu— lar job from every other job in the organization.79 The second division, which was entitled “duties and responsibilities of the job," includes a description of where the work comes from, what the worker does to it, and what ways the work is accomplished or disposed of. The men— tal and physical tasks in the job are described along with responsibilities for handling men, material, and methods.80 The third division, the analysis of skill and physi— cal requirements, must be made to determine what is done and how it is done.81 The fourth division involves securing information about the environment of the job as to its working con- ditions and hazards. Some jobs by their very nature are more hazardous than other jobs. These conditions must be recognized.82 The importance of the job description and job specification can be better appreciated when their relation- ship with the job analysis is discovered. Both are essential parts of the job analysis. 9 7 Ibi Q.- 80Ibid., p. 170. 811bid., p. 171. 821bid. 52 H. JOB EVALUATION The securing of adequate job facts includes three closely-related processes: the analysis of jobs, the writing of job descriptions, and the preparation of job specifications. These processes are of vital importance to job evaluation.83 Job evaluation starts with the assumption that the basic single determinant of relative value should be the job itself; the duties that must be performed in the job, and the conditions under which they are performed, and the qualifications required to perform them. Therefore, evalu- ation of jobs begins with the job analysis. Once the infor— mation regarding the job has been obtained, it is written up into job descriptions and job specifications. Thus again we can see the fitting of many parts into a whole useable concept.84 Job evaluation is primarily used to determine wage scales. However, while it did result because of manage— ment's heed for a method to determine equitable wage rate differentials, other benefits occurred in the program. For example, it helped reduce the number of grievances between 83Patton and Littlefield, pp. cit. p. 51. 84Ibid., p. 2. 53 labor and management and eliminated many misunderstandings through the clarification of the lines of authority.85 Jones states that job evaluation helps determine wages in these ways: What does the job require. What responsibilities are included in the job. What does the job subject an employee to. What is the job worth.86 wal-J Jones goes on to state that job evaluations are de- termined and valued by one of four different systems:87 Point systems. Factor comparison. Job classification. Ranking methods. uwal-J New that the relevant concepts have been defined and explored, the topic of position classification will be re- viewed. As it is the most significant part of this research study, it will be discussed in greater detail. The previous- mentioned concepts and definitions of job evaluation, De— scription, Specification, and Analysis will provide a very relevant and useful background for the ensuing review of position classification literature. 851bid0, pp. 6-7. 86Jones,gp. cit., pp. 16-17. 87Ibid., p. 18. 54 I. POSITION‘CLASSIFICATION Position—classification is a process of discovering what different kinds of positions there are in the particu— lar service or company, and which ones call for different treatment in personnel processes. The duties and responsi- bilities of the positions are the basis upon which classes are designated and individual positions are assigned to their appropriate classes.88 When every position has been allocated to its ap- propriate class, each class will consist of all positions, regardless of departmental location, that are sufficiently similar in duties and responsibilities to be given the same pay scale, and also to require substantially the same qualifications to be a part of that class.89 A position-classification plan allots a scheme of classes and specific class titles which provide for these existing positions, and also for definitions in the form of written specifications which designate certain factors that would distinguish one classification from another.90 88Ismar Baruch, Position Classification ip the Public Service (Chicago: Civil Service Assembly of the United States and Canada, 1942), p. 3. 891bid.. 90Ibid., p. 4. 55 But it should be borne in mind that it is not the purpose of position-classification to "standardize the job;" on the contrary, it accepts the jobs or positions as they actually exist. The purpose of the position—classification plan is then to indicate what the positions are, and not what the positions should be or could be. Therefore, it is quite evident that position—classification as carried out in the public service is in some respects different from the appli- cations of industrial and private profit-making organi- zations' version of job analysis.91 Position-classification is of great value to personnel administrators because it groups individual po- sitions into classes of positions. In this way the nature of each class is.determined and identified, and consequently the voluminous mass of information concerning the duties and responsibilities of individual positions is reduced to a more logical and more manageable proportion. For example, this allows recruiting and testing personnel to hold a few tests for a few classes, rather than many tests for many individual positions.92 Edwin Davis states in his doctoral thesis that for classification purposes it is usually sufficient to 9lIbid. 921bid., p. 5. 56 differentiate jobs on the basis of functions and responsi- bilities. Davis gives eight reasons for classifying jobs. These reasons range from the classifying of jobs to devising specifications that will serve groups of jobs and that will show relationships between various jobs.93 The basis for classifying the positions must first be selected so that in the final product our predetermined purposes for the classification will be useful to the group initiating the study. Positions can be classified on any number of factors, and it is possible to use one factor for one purpose, and another factor for still another purpose. As long as significant factors are chosen on which to orient the position-classification upon, then when the classifi- cation is finished, theoretically there should be some practical use for the classification, although limited.94 Position-classification is an administrative tool which can be used to establish pay rates, qualifications, standards, recruiting and testing methods, and many other similar concepts. One of the most important of these admini- strative tools is that which facilitates the establishment of a relationship among the duties and responsibilities of 93Edwin W. Davis, A Functional Pattern Technigue for Classification 2f JObs (Columbia University, Vermont: Ver— mont Printing Company, 1942). 94Baruch,.9_p. cit., pp. 32-33. 57 position, the standards of qualifications to fill them, and equal pay for equal work.95 Baruch defines "position” as those responsibilities and duties assigned to one employee; while position- classification is a classification of positions and not em- ployees occupying them.96 The classification of a position is based on the duties and responsibilities performed in that position, and not upon what the employee's qualifications are. Even if the employee had a doctorate and was working as an elevator operator, the job is still that of an elevator operator. The qualifications of an employee would be a misleading basis for classifying the responsibilities of certain po- sitions. In particular, a position that belongs in a cer- tain class because of the importance, difficulty, or com— plexity of its duties and responsibilities is not entitled to be placed in a higher class simply because its incumbent can perform those duties with peak efficiency, nor con- versely should it be placed in a lower class because the in- cumbent performed those duties with little or no efficiency at all.97 58 The nature of classification system implies that each item within the class will be similar to other items in that same classification. Thus, in position- classification with the basis of the classification re- volving around the duties and responsibilities of that po— sition, a class of positions would constitute a group of positions, which irrespective of the particular assigned units in which they are located, are for all practical purposes in respect to their duties and responsibilities, sufficiently similar and can be treated as such by the personnel administration.98 Baruch defines class as follows: The term 'class' means a group of positions es- tablished under these rules sufficiently similar in respect to the duties, responsibilities, and authority thereof, that the same descriptive title may be used with clarity to designate each position allocated to the class, that the same requirement as to education, experience, capacity, knowledge, proficiency, ability, and other qualifications should be required of the incumbents, that the same tests of fitness may be used to choose qualified employees, and that the same schedule of compen- sation can be made to apply with equity under the same or substantially the same employment conditions.99 It is quite obvious from the above definition that if any number of positions contain similar duties and re— sponsibilities, they belong in the same classification; 981bid., p. 45. 991bid. 59 otherwise one must classify them differently. It is the de— cision as to whether or not positions are similar or not that constitutes the essence of position-classification.lOO Position—classification is not designed to be re- strictive at all, merely descriptive. A properly insti— tuted position—classification system should be able to adapt with current changes. For example, if new positions are designed which would not fit into the existing system of classification, then a new class would be instituted.101 Position-classification accomplishes two important points. First, it groups together and identifies all individual positions involving substantially similar work into distinct classes which the human mind can more easily comprehend and work with. Secondly, it differentiates be— tween these few classes it has created according to the character, difficulty, and responsibility of the work in— volved. It is important to note that these classes can be differentiated on almost any basis or definition that one might desire to work from.102 At this point it might be relevant to indicate that although position-classification plans are used in equating pay scales, the two are distinct entities and should not be 6O confused. A position-classification plan merely facilitates the pay scale; and what's more important, the position- classification plan could exist entirely divorced from any interaction with the establishment of wage rates. For ex- ample, it could also be used for the basis of providing suitable entrance requirements and for employment, and any number of other administrative uses.103 For instance, other administrative uses of position—classification plans have been the developing of uniform occupational terminology; an aid to administrative preparation and justification of budget requests; recruiting and certification; promotion and transfer; planning and clarifying the organization; employee- management relations; improving the general tone of the organization; and any other related administrative capacity deemed appropriate, necessary, and functional.104 Baruch sums these advantages up very concisely and excellently when he states: Among other things the law in a civil service juris— diction would give to the central personnel agency the task of examining applicants to determine their fitness, preparing lists of qualified persons for each kind of work, and certifying the names of such persons to appointing officers when vacancies occur; to the managerial and fiscal officers the task of preparing the annual estimates for personal services; and to the legislative body the task of appropri— ating money periodically for such personal services. 61 None of these agencies can properly perform these tasks unless there is some common understanding as to what kinds and numbers of jobs really exist, what their duties and responsibilities are, what each kind is to be called, what qualifications those appointed must possess, and what their pay ought to be. A position classification plan pro- vides the basis for this common understanding. Historically, however, position—classification in any real sense of the word did not emerge until well after the first civil service laws were enacted. As a matter of fact the early classification schemes were very inadequate in that the classifications were misleading, non—descriptive, and employees in similar classes at the same grade of work were being paid different salaries. Essentially, the only value of the earlier classification plans was imbued in the . . 106 recruiting processes. Following several congressional discussions on governmental efficiency, on March 7, 1851, the United States Senate requested the cabinet officers to submit recommen- dations on the examination, promoting, classification, and pay of clerks in the federal government. Then, in 1853, Congress required certain clerical positions to be filled by persons who had taken and passed a test for that particular 10511618., p. 55. 106Carl J. Friedrich, William C. Beyer, Sterling D. Spero, John F. Miller, and George A. Graham, Problems 9f Egg .American Public Service (New York: McGraw—Hill Book Company, 1935), p. 117. 62 position; however, since the testing procedure was at the mercy of the administration's leaders, its implementation lacked uniformity.107 The "classification" law of 1853 was enacted to ad- just the salaries of over 700 clerical employees in the Departments of Treasury, War, Navy, Interior, and Post Office. The format of the plan was to allocate clerks into four levels of clerical positions. It is interesting to note that gradually this classification plan was extended to most of the clerical positions in all offices. Furthermore, this classification act defined and limited salary levels for the next 70 years, until 1923, when the Classification Act of 1923 revised the legal and administrative bases for the description and pay of government jobs. The weakness of the 1853 Classification Act was simply that no central agency was established to ascertain the facts about the duties and responsibilities of various positions, and no methods of placing positions within certain classes were es— tablished. Therefore, all the 1853 Act accomplished was a raising of the clerical rates without regard to the work per- formed by those clerical workers.108 107Paul P. VanRiper, History pf the United §tates Civil Service (Evanston, Illinois: Row, Peterson and Company, 1958), p. 52. 108Baruch,.9_p. cit., p. 15. 63 President Cleveland, on June 29, 1888, recommended a revision of the position-classification structure. Cleveland was mainly emphasizing a salary standardization rather than a full position-classification plan.109 In 1908 the Civil Service Commission was pleased that the Committee on Department Methods was advocating a new position-classification system with grades of pay for each classification. Regulations for transfers and pro- motions depended upon the nature of the classes of positions.110 The 1923 Classification Act prescribed exact salary ranges and limited the raises which could be made under them. Also a Personnel Classification Board was established to administer this Act whose basic features included: The establishment of occupational divisions; the subdivision of services into a number of "grades" or levels of importance, difficulty, responsibility, and value of work, allocation of various positions into certain grades to aid in the de- termination of pay. Equal pay for equal work, irrespective of sex, was expressly written into the statute. "Classes" of positions were authorized to be established within grades, each class covering positions substantially alike as to character, difficulty, importance, responsibility, and 109VanRiper, pp, cit., p. 152. llOIbid., p. 193. 64 value of work. Also class specifications were authorized to be compiled to serve as administrative guides. Un- fortunately, this act applied to only about 10% of the federal service workers.111 On October 1, 1932, the duties and powers of the Personnel Classification Board were abolished and the functions of this Board were transferred to the Civil Service Commission.112 In November of 1940, the Ramspect Act was passed, and immediately it authorized merit system rules to cover nearly 200,000 previously uncovered positions. By 1943 ap- proximately 95% of the nearly 2,000,000 federal employees occupied positions under the "jurisdiction" of the Civil Service Commission.113 The Ramspect Act also extended the authority of both the President and the Civil Service Commission in the area of position-classification. For example, the Classification Act of 1923 covered only 10% of the Federal service workers, so the President ordered the Civil Service Commission to make classification studies on any departmental agencies ex— cluded from the 1923 Act. Also the 1923 Act applied to only lllIbid., pp. 298-299. 112Baruch,_qp. cit., p. 19. 113 VanRiper, pp. cit., pp. 344—345. 65 those federal workers in Washington, D.C.; field service workers outside of Washington, D.C., were not covered under this former act; the Ramspect Act of 1940 changed this al— so.114 But, the change was minimal, as little could be done because of the intervention of the war and the resulting administrative flexibility which prevented the enforcement of any rigid set of standards.115 It was not until 1943 that the Civil Service Commis— sion fulfilled its responsibilities for the publication of position-classification standards; even then it was only ac— complished under the impetus of an executive order and a War Manpower Commission directive.116 On October 28, 1949, a new Classification Act was passed which created three new top grades in the civil service. .These consisted of about 400 positions and a salary ceiling of about $14,000.117 In 1949 another Classification Act expanded to near- ly 1,000 the number of positions included with the civil service grades of GS l6, l7, and 18.118 Actually, it wasn't until 1908 that the concepts underlying position-classification had ever been carried to 114Ibid. 115Ibid., p. 388. llsIbid. 117Ibid., p. 461. llBIbid., p. 470. 66 the point of practical application in any jurisdiction in this country, and the distinction of being the first govern— mental unit in the United States to adopt such a classifi— cation plan belongs to Chicago, Illinois, which put into effect in 1912 a position-classification plan.119 The actual development and installation of a position-classification plan includes five basic steps: 1. Analyzing and recording the duties of the positions that are to be classified. 2. Arranging the positions into classes. 3. Preparation of class specifications. 4. Installation of the plan, by allocating position to classes. 5. Continuous administration of the plan.120 The first step which is an analyzing and recording of the duties of various positions that are to be classified requires information of three types: First, information concerning the duties of the position--the tasks which are ordinarily assigned to the incumbent. Second, information concerning the responsibilities of the position and the degree of supervision required of the position. Third, 119Baruch, op. cit., p. 7. 120Glenn 0. Stahl, Public Personnel Administration (New York: Harper and Brothers, 1956) (Fourth edition of the previous work by Masher, Kingsley, and Stahl), p. 192. 67 information concerning the knowledge and skill necessary for adequate performance of the duties of the position.121 One of the most usual methods of obtaining infor- mation of the above categories is to study the position through the incumbent, to ask the employee to fill out a questionnaire of the duties he is required to perform while serving in that position.122 While following this method, the usual approach is to have the questionnaire reviewed by the employee's super- visor, and then in turn, the division or bureau chief. The reasoning behind this is that it is then possible to correct any mis-statements or over-statements, in addition to pro— viding supplementary information that the incumbent of the job may not have explained.123 There are certain limitations to this method. In fact, it has been criticized because different employees describe the same position in different ways; some will be prolix, some self—deprecatory, and some inclined to 124 exaggerate. 12J'IbicL, p. 193. 1221b18., p. 194. 123Ibid. 124Ibid. 68 Robert Mullen in an article appearing in the "Personnel Administration Journal” stresses that more re— search is needed in position-classification, particularly in the area of employee identification of their jobs. Mullen suggests that to obtain true job facts, serious thought be given to the idea of indicating the relationships between jobs.125 In defense of the questionnaire method, it can be stated that it probably provides one of the best opportuni— ties for each employee and his respective supervisor to actually participate in the process of job analysis, and to feel that he has had an active part.126 After the job analysis or position descriptions have been completed for each position within the organization, the positions can then be analyzed and arranged into classes. The objective is to arrange the various positions into groups upon the basis of similarities and dissimilarities to justify common treatment.127 In carrying out the actual position-classification, during either the development of the classification or its 125Robert C. Mullen, "Job Analysis: The Missing Link in Federal Personnel Administration," Personnel Administra— tion, Vol. II, No. 1 (September, 1948), p. 13. 126Stahl,.gp. cit., p. 195. 127Ibid., p. 196. 69 maintenance, it is important that the facts about these positions be adequately ascertained, logically analyzed, and evaluated in the light of informed and experienced judgment.128 The process of classification is one that requires discrimination and judgment in the placing of any number of positions into certain classes. When assigning positions to certain classes, there are many factors the analyst must be cognizant of, and must have evaluated. For example, the duties and responsibilities of a position are not limited merely to tangible tasks such as job assignments; there are also intangible conditions which definitely have a bearing on the difficulty and responsibility of the position. These intangible conditions such as lines of authority, super— vision, or review must also be considered when one is as- signing a position to a specific class.129 During the course of the position—classification, a position that is to be classified might overlap the duties of another position in another class by just one or two factors. This factor or factors then calls for a detailed analysis to determine whether it is of sufficient or insuffi— cient weight to warrant a different classification from the 128Baruch,gp. cit., p. 83. 129Ibid., p. 84. 70 other positions or classes with which the position to be 130 For example, what factors classified has been compared. cause a position to be classed as an assistant biologist rather than a biologist of a higher class? To make these particular determinations, consideration has to be afforded to the intangible tasks or factors such as the degree of supervision exercised over others, degree of responsibility, the amount of independent judgment utilized, and the rela- tive difficulty and importance of the work.l3l Ismar Baruch states that these classification 132 factors can be identified as follows: 1. Determinations of the degree of difficulty and complexity of the duties. 2. Amount of responsibility in the position. 3. Control of employee's work by supervision. 4. Appraisal of other employees' performing work which has a close bearing to the position be— ing analyzed. 5. Variety and scope of duties in this position. 6. Reviewing work of others. 7. Amount of independence or decision—making responsibilities. 8. Recommendations that are called for in the po- sition that might affect plans or policies. 13OIbid., p. 85. l3lStah1,.gp. cit., p. 197. 132Baruch,_qp. cit., pp. 91-125. "— 71 9. Responsibility for the safety of others. 10. Custody of money, or valuables. ll. Responsibility for public contacts. 13. Supervisory and/or administrative responsibilities A) Number and types of supervisory action present. B) Size of the organization supervised. C) Extent to which the initiative and judg- ment of those supervised is limited. D) Importance and variety of functions and the complexity of the organization supervised. Stahl states that it is these "so-called" classifi- cation factors that are really the job evaluator's technique. For in any attempt to relate a position to another position or to a previously established class of positions, factors such as the previously mentioned classification factors must be evaluated.133 Position-classification, however, is not always so tidy and neat or easy to analyze. Certainly differences between the significant and insignificant duties can be measured, and questions like, "Which duties and responsi- bilities of the position shall govern its classification?" can be answered. As long as the duties and responsibilities of the position never vary, one will not encounter any 133Stahl, 22° Cit., p. 197. 72 difficulties. However, when these duties or responsibili- ties fluctuate from time to time, and in intensity, a problem is very definitely encountered in position- classification; in fact it is termed mixed positions.134 Mixed positions then are those that consist of a mixture of tasks at different levels of difficulty and re— sponsibility. An example would be a laborer who was re— quired to drive a truck at various times throughout his job. WOuld you classify this position as a laborer, or a truck driver?135 The general rule that position classifiers follow is to classify the position in that class in which the preponderant duties and responsibilities occur, con— sidering whether they occur frequently enough to occupy the major part Of the employee's working time.136 But occasion— ally circumstances will arise so that another sound principle could be applied. This is really an exception to the above general rule, for it states: "The highest type duty 134Baruch,gp. cit., p. 132. 135Kenneth Byers, Rebert M. Montilla, and Elmer V. Williams, Elements 2f Position Classification_ip Local Government (Chicago: Public Personnel Association, 1957), p. 17. 136 Baruch,_gp. cit., p. 134. 73 performed should govern the allocation of that position to a particular class.137 Baruch states that frequently it is a good idea to compare a position that is going to be classified to one that is already classified because this will aid in de- termining differences or similarities that might exist. He recognizes that there are distinct time limitations on any survey; therefore, he feels position to position comparisons can be helpful, especially since if one position has already been classified, it will serve as a useful model in il- lustrating the class specifications that will be required to be fulfilled by the position that is to be classified.138 Clegg is critical of position classifiers for their failure to develop and use clear, definitive standards of classification which would provide a more objective basis for the allocating of positions to classes. Clegg further contends that not only has this limited the effectiveness of the entire classification system, but it has also reflected negatively upon the system since it does not maintain a scientific approach.139 137Ibid. l381bid. 139Reed L. Clegg, "Progress in Position Classifi— cation--Taking the Mystery Out of Classification," Personnel Administration, Vol. IX, No. 6 (July, 1947), p. 26. 74 Clegg states that indivisible from this process of classification is the process of defining the character- istics which cause certain positions to be classed in certain groups. If these characteristics are defined in- adequately, then in reality no classification system can be claimed to exist at all. Conversely, for a sound classification system to exist, clear-cut guidelines which unmistakeably distinguish between the significant elements that are common to one class and differentiating to another class must be formulated.140 Although position-classification showed signs of promising beginnings, great disappointment was registered by many when they became aware that positions were allocated to certain classes by comparing them with other individual positions, and not with recognized standards.141 Clegg states: It is elementary to state that the scientific way of determining properties of any object is to measure it against a fixed standard. No self- respecting chemist would classify the composition of a subtance by comparing it with another sub- stance which he thought was similar. He would analyze both substances by applying the same ac- cepted tests and measuring devices to each. 140 ’6' i 141 '6' i ., p. 27. 142 '6' i 75 Although this trend in classification has been re— versed in recent years, the job comparison method is still too prevalent to be considered only a vestige.143 At this point it may be well to clarify the mis— conception that some people might have about position- classification. First of all, analysts do not classify each employee. Classes are determined first by class specifi— cations; then positions are allocated to these classes. Positions are assigned to classes whether they are filled by employees or are vacant.144 Clegg feels order is the first law of the earth be— cause as the various fields of human endeavor become more complicated, the necessity for organizing each field into a rational system becomes more imperative. There is only one way that knowledge can be utilized effectively, and that is by determining relationships either in similarities or differences between the subject matter. Major categories of activity are discovered and defined and basic classes con- taining groups of similar characteristics are assembled. The degree of refinement desired in establishing these classes depends upon the purpose of the classification scheme. The important point is that a frame of reference is established, allowing one to fit parts into a whole, 143Ibid. 144Byers and Williams, pp. cit., p. 15. 76 thereby forming a significant body of knowledge. This is the purpose of a classification process in almost any field of activity.145 The Civil Service Commission was authorized by War Manpower Commission Directive #XII to make studies to establish standards for classification of positions.146 Since the standards are to set up guidelines speci- fying the elements in positions which cause these positions to be placed in certain classes, it then becomes important to discover what these standards might or could be. The Civil Service Commission analyzes positions from two stand- points. First, the positions are analyzed from the nature and difficulty of the work; and secondly, the responsibili— ties and consequences flowing from the performance of such work. The Federal Government uses eight factors to help make the measurement:147 1. Nature and variety of the work. 2. Supervisory control which is exercised over that position. 3. Nature and availability of guides controlling de- cisions and actions. 4. Nature and scope of commitments. 145C1egg,_gp. cit., p. 26. 146Ibid., p. 27. 147Ibid. 77 5. Originality of thinking required. 6. Purpose of person-to-person work relationships. 7. Nature and extent of supervisory control over the work of others. 8. Knowledges, skills, and abilities required to perform the work. The third major step is the preparation of the class specifications. Stahl states: The objectives are to define a class in such a way as to distinguish it clearly from eVery Other class and to provide a clear and sufficient guide for the allocation of positions to classes.14 Ismar Baruch feels that class specifications consti— tute a very important part of the position classification plan, in that they indicate what classes are; what type of positions fall into the various classes; and what the lines of demarcation are in terms of job requirements and qualifications.149 The principal objectives which class specifications must meet are as follows:150 1. To define the boundaries of the respective classes; to differentiate them so as to dis— tinguish each class from every other class, not only in terms of work, but also in terms of difficulty, responsibility, and qualifications. l48$tahl,.22. cit., p. 199. 149Baruch,'9_p. cit., p. 246. 15011318. 78 2. To serve as a guide for the allocation of indi- vidual positions to classes. 3. To define and standardize the various class titles, which are to have the meaning and only that meaning given to them by those particular class specifications. 4. To serve as a convenient, currently-maintained, written record identifying the basic character- istics of any class for any purpose. Class specifications must distinguish between the class named and all others that exist, and to accomplish this it must show the differentiating factors in the follow— ing areas: first, it must indicate the general differences in the general duties or responsibilities; second, by de- scribing them in the statement of distinguishing features of the work; third, by illustrating them in the enumeration and description of examples of work performed; and fourth, by reflecting them in the qualifications. Baruch emphasizes that this is not only one of the most difficult phases of classification writing, but that it is also one on which the entire classification depends and derives its basic value.151 The Public Personnel Administration recommends that in writing class specifications, the particular class groupings should be established first and then followed by arranging the job descriptions to these particular classes. 151Ibid. 79 In this manner the classifier is assured of noting the par— ticular elements of difference or similarity and whether the position description will be applicable to that classifi— cation or not. They further recommend writing class specifi— cations arranging from the lowest classifications to the highest.152 The definition of the specification should be a brief statement which tells the basic purpose of the job and gives some indication of the relative difficulty and responsibility of the class. For example, will positions falling within this particular classification require ad— ministrative direction, close supervision, or just general supervision.153 In writing class specifications, it will be useful to point out distinguishing features of work in this par— ticular class as opposed to the next higher or lower class, for example, the unusual hours of work involved in positions within this class, or certain hazards involved with the work, and similar examples. Sometimes it is even helpful to state specifically in what ways this particular class differs from the next lower or higher class.154 152 . _ . Byers and Williams, 9p. c1t., p, 19, 153Ibid. 154 Ibid., p. 20. 80 Incumbents in this class (heavy equipment operator) may be distinguished from those in the next lower class, light equipment operator, by the size and variety of equipment operated, and the supervisory responsibility exercised over a small work crew in the absence of a foreman.155 Also in the writing of class specifications, ex— amples of the work performed within that particular class should be presented. The duties and tasks which will be described should be as representative of the type and level of work performed in this particular class, as opposed to either higher or lower classes. It might also be helpful to indicate the particular skills or responsibilities in- volved in performing these duties which may further help to distinguish this class.156 Regarding the qualifications for the position that will be allocated to the particular class, it is considered fundamental that qualifications should be determined as if every position was vacant and as if the qualifications were being set forth for the filling of these vacancies. Unusual or special abilities of the incumbent should not color the classifying statement of qualifications for the particular . . 157 p051tion. 155Ibid., p. 21. 156Ibid. 157Ibid., p. 22. 81 The classifier should also be thoroughly familiar with whether or not the qualifications are pitched at a minimum or optimum level. Minimum qualifications are the lowest qualifications which can be accepted for employment in this class. Optimum qualifications are stated in terms of a more desirable type of prospective employee than just meeting or fulfilling minimum basic qualifications.158 Once the classes have been decided upon, the class specifications prepared, and the various classes arranged into groups, or more simply, the whole plan established on paperJ the remaining steps to be taken are the installation of the plan, and finally its continuous administration or 159 maintenance. Stahl states that the following six points are neces— sary in the installation of the classification plan:160 1. Adoption of the plan. 2. Determination of the agency to administer the plan. 3. Promulgation of the class specifications. 4. Initial allocation of the positions to classes. 5. Adoption of formal rules for the administration of the classification. lSBIbid. 159Stahl, QB. cit., p. 200. l6OIbid. 82 6. Provision for, and hearing of, appeals on the allocation. The adoption of the plan of classification is usual- ly accomplished by administrative or legislative action. If the plan is to be adopted by an administrative action, there should be some statute or ordinance indicating that the legislative body will not only support the classification plan, but that it will also use it.161 Determining which agency should administer the classification plan might best be decided by knowing which agency generally does the recruiting, testing, and certifi— cation for the positions. Naturally, in most jurisdictions, this would be the central personnel agency.162 In the promulgation of class specifications, it might be useful to issue a tentative set of specifications for both management and employees to review and make their necessary comments. This provides for a more cooperative venture, and ultimately this will have a marked effect on the entire classification plan, since the plan's future ef- fectiveness depends upon its being understood and accepted by the organization.163 83 Regarding the provision for hearing of appeals on the classification of positions, it is imperative that the worker or employee be given the opportunity to be heard, if he feels his work is not properly classified. This not only serves as a means to enhance COOperation and acceptance of the classification plan, but it also will point out mistakes in classification which might not ever be noticed.164 The fifth and final step in the development and installation of a classification plan is its continuous administration. Friedrich, Beyer, Spero, Miller, and Graham present an interesting analysis of the core of this step in their text, Problems-9f the American Public Service, where they state the following: Experience, however, has demonstrated that it is more difficult to secure the adoption of classifi- cation and compensation plans and keep them in ef- fect than to make the original studies. Because of the continual changes, not only in governmental functions, but also in personnel turnover, pro— motions, retirement, or dismissals, the position- classification plan will also require corresponding 164Ibid. 165Friedrich, Beyer, Spero, Miller, and Graham, 22° cit., p. 119- — 84 166 A classification plan which is not kePt up to revision. date and which does not reflect the current jobs as they actually exist, not only fails to justify its existence, but is also a source of poor management and can be a con- siderable inequity to employees. Recruitment and selection standards cannot be based on an out—of-date position— classification plan. Salary schedules, budgeting, and fi- nancial control will also be sacrificed by an out-of—date classification plan.167 To keep a position-classification plan up—to-date requires constant checking by the classification agency. However, considerable help can be given to the central personnel agency, or civil service commission, if the de- partment heads of the respective departments aid in this process. The department heads can report new assignments, new jobs, and any changes in organization. Department heads also can aid by insisting that their employees perform duties only within their classification.168 Foremen and supervisors can also assist since they occupy one of the best observation posts for perceiving changes in the duties performed by their subordinates. The 166Stahl,.gp. cit., p. 202. 167Byers, Mantilla, and Williams, 9p. cit., p. 30. 168Ibid., p. 31. 85 supervisors should discover and report any needs for re— classification to their immediate superiors.169 The employees themselves even have a responsibility to see that changes in organization, assignment, and duties are reported to their supervisors. Employees should per— ceive if their duties change to the extent of abusing their proper classification. If so, these changes must be re- ported for the benefit of the employees, management, and the service the organization is performing.170 Any changes or modifications made from allocating one position in a class to that in a higher class has a very definite impact on the budget; therefore, if management is to remain efficient, all reclassifications should be kept correspondingly accurate with the needs of the organization and that of the budget, for if the budget is not large enough, reclassification of positions into new classes com- manding usually higher pay will not be able to be met.171 Conversely, if a position is to be reclassified from one class to a lower class, the impact this will have on the incumbent of the position and subsequently on the organi— zation must be considered. Therefore, in many cases, it 1698tah1,.22- cit., p. 203. 170Byers, Montilla, and Williams,_2p. cit., p. 31. 171Ibid., p. 33. 86 might be considered wise to transfer incumbents of positions that will be reclassified to a lower position, to actually transfer this individual within his present class, so that he does not suffer a loss in status, prestige, and morale. It must be recognized that not only does the man stand to lose from a move like this, but also the organization in terms of morale, efficiency, and effectiveness.172 Whenever the incumbent of positions changes for any reason, a check should be made to see if the duties which are about to be assigned to a new incumbent are still the same as those of the actual classification. If not, this of course would be a most appropriate time to reclassify the position.173 Job audits by the classification agency are basic to the maintenance of a current classification plan, and under this procedure, the interrelationship of all jobs in the organizational unit can be examined all at once with the least duplication of effort and with the maximum yield of position information.174 For the classification plan to be kept current and of some value, there will be a great deal of cooperation 173Stahl,_o_p. cit., p. 203. 174Ibid. 87 required-—cooperation between the department and the person— nel agency. This is a very critical point in most classifi- cation plans. The operating agencies should report any and all changes in the character of positions, the reassignment of duties within an organizational unit, and any increased responsibilities by incumbents of various positions. The departments within the organization must not only be aware of these changes, but they should consider it their duty to report changes to the personnel department or classifying agency. In this manner, current classification plans can be assured of keeping pace with the changing times.175 However, it must also be recognized that the classi— fication plan itself will not always remain current. The class specifications are by no means to be considered as timeless standards. Therefore, the classification plan must be viewed with the possibility that it also be revised be— cause of technological changes, occupational changes in knowledge, and also the changes or the nature and scope of public functions which might be required of the organization.176 Needless to say, the maintenance and administration of a classification plan is extremely important. In fact, Ibid., p. 202. Ibid., p. 204. 88 if it is not kept current, this valuable tool of management will be completely ineffective and useless. Therefore, the installation and administration of any position- classification plan will not be complete until this last step in the process is thoroughly implemented and utilized. The remaining portion of this chapter will consider first, factors that should be evaluated before a position- classification plan can be developed. Secondly, there will be some discussion directed toward the methodology of the survey, considering such factors as the use of survey tools and the procedure that generally should be used in making a classification plan. One of the first considerations that must be made and evaluated before a position—classification plan can be developed is very simply that of the qualifications of the agency, staff, or individual who are doing the classification. Ismar Baruch states that the technical staff should have an excellent background in public administration. The general staff should have a broad knowledge of personnel policies and practices. He feels that it is essential for the technical staff to possess a detailed knowledge of the principles, objectives, and techniques of position- classification. The classifier must have the ability to recognize and define the essential differentiating factors found in various positions. To do this, the classifier must 89 understand the structure and operations of the organization that is being classified. The classifier must also be aware of the difficulties, responsibilities, and the nature of each position he is analyzing. This also means that re- lationships of one position to another must be considered, along with the demands placed on various positions by virtue of administrative or supervisory direction. The classifier must recognize pertinent and salient facts and isolate the relevant facts from the irrelevant. Finally, the classifier must have the ability to effectively carry out interviews and then to express the results of the entire study, in- cluding interviews, in a clear, concise, and meaningful way either verbally or in writing.177 In addition to the qualifications of the members of the classification agency, there are also other factors that must be evaluated before the classification plan is even begun. For example, consideration must be given to the question of how many positions will be covered in the new classification plan. Will any be excluded, and if so, for what reason.178 The characteristics of the positions also must be considered; for example, positions whose duties or responsi— bilities are Capable of rapid classification will not take 177Baruch,gp. cit., p. 154. 178Ibid., p. 159. 90 as great a period of time as those positions where classifi— cation can only be determined by a very careful analysis.179 If the classification plan is being developed in an organization which has incumbents that perform a variety of duties outside their classification, or have random assign- ments, and poorly controlled and coordinated functions, the problem of developing the classification plan will certainly be increased.180 Also the geographic location and distribution of positions will influence the classification plan, especially where the positions to be classified are separated in lo- cation. Time will be consumed in travelling, and this might reduce the opportunities for personal explanations of in— structions regarding the completion of job description questionnaires by the employees.181 One definite factor that should be considered before the classification can begin is simply how much of a budget the organization can work with to allow the classification plan to be implemented correctly. Baruch states that con- sidering total costs for a classification plan, the expense could vary from $2.75 to $5.00 per position, and this is based on 1942 standards.182 179Ibid., p. 156 18°:hid., p 157 181Ibid 182 91 Regarding the methodology of the position— classification survey, there are various survey tools that should be considered both before the classification plan is begun, and also as an aid in developing the classification plan. For example, documents relating to the budget will be of great aid in the prelinimary planning stage, because it is desirable to know the general characteristics of the positions within the organization as to their number and type. This also will aid in the preparation of any question— naires that might be deemed advisable.183 Employee rosters or payrolls can serve as an inven- tory control over the progress of the classification survey, because one can easily note any changes in personnel, can indicate how many questionnaires should be distributed in each group or organizational division, and it will help in checking these back in when the questionnaires are to be returned.184 The possible methods used to obtain information for the classification plan consist of: interviews with em- ployees and their supervisors with an observation period to see that they do perform the work; secondly, questionnaires 183Ibid., pp. 168-169. 184Ibid. 92 might be distributed alone to the employees; thirdly, a combination of either of the first two methods. Generally, the most utilized method would be a combination of methods because this is economical and offers a most satisfactory return, especially when work audits are periodically employed.185 When explaining the instructions for filling out the questionnaire, it is considered desirable to explain to the employees why the survey is being made, the nature of the classification plan, and its advantages to the employees. It is important to stress that the survey is not in any way to be utilized or considered as an investigation of the relative merits of present incumbents of the position. There are also further instructions that should be given preferably in a written sheet accompanying the questionnaire. Essentially, this should convey to the employee what type of information is being solicited by each item of the question— naire. The mechanics of conveying this information should be discussed: whether it is to be handwritten or type— written, how many carbon copies will be needed, to whom they will be turned in, and when the due date should be es— tablished for all results to be completed.186 lBSIbid-, p. 170. 186 Ibid. 93 Employees should be told that their individual work or descriptions will be necessary, and generally employees should be discouraged from working together or getting as— sistance from supervisors. Also, the supervisors will have an opportunity to make their comments after reading the em— ployee's description; however, the supervisors should not in any way change any of the statements made by the em- ployees, although they will have the opportunity to express their disagreement with any of the statements on the form.187 This, then, leads into the direction of the pro— cedures that are involved in a survey. It is not only im— portant that the employees and supervisors understand what will be required of them, but there is one further pre- liminary step that must be considered, and that is meeting ‘with the departmental administrators so that liaison men can be designated between the classification agency and the auoouon m 2‘ cmEo3oow How an \ \\ 3.! #24 at it It cmEHOHumm virfi:«3f\»tgs+§ 222.: 1.: at It monBHmOm azmzmomzmz ZOHmH>mmmDm onammmmo .mo mmmSDZ .v a.» .V m 3.5.8 was 120 1. To verify duties as officers stated them. 2. To determine if ranking officers were actually serving in an operational capacity, as their classification form indicated. 3. To determine if lower ranking officers were functioning in a higher capacity. 4. To effect a random sampling of a few positions. 5. To clarify any ambiguities of duties or re- sponsibilities of various positions. 6. To elicit any further information regarding a position or its relationship to other positions. Of the 15 positions that were audited, approximately 60% or 9 of these audits revealed information of some purpose that either clarified their original description or revealed new and further information about the position which was not earlier stated. Information that was obtained and revealed by the job audit was as follows: A Detective Lieutenant was assigned to the Central Records Division which is commanded by a Lieutenant. The problem discovered was that of supervision. Who would the position of Detective Lieutenant report to--the Captain of Detectives, his original commanding officer, or the com- manding officer of the Central Records Division which is a position filled by a Lieutenant who is very hesitant to give one of his own peers orders, and subsequently stated he did not supervise the Detective Lieutenant working in the 121 Identification capacity, a position within the Central Re— cords Division. An audit of the position of Education and Training Coordinator raised the original allocation of this position from one of Supervision to that of Management, because the complete autonomy of this position fulfilled the criteria of Management. Therefore, this particular audit clarified the ambiguity of whether this position should be properly allocated to the classification of Supervision or Management. An audit of a position within the Planning and Re- search Division yielded further information to complicate the classification of this position. Originally based upon the position—classification questionnaire, this position filled by a patrolman was allocated to the classification of Management; however, after the audit it appeared as a mixed position, because the nature of duties was termed more or less to be administrative—operational. However, in the final analysis this position remained allocated to the classification of Management. An audit of the position of Court Officer verified the duties as listed by the patrolman; however, what was discovered was the fact that his work was not actually re— viewed by any supervisor. According to the organization chart, this position reports directly to the Inspector of 122 Police, second highest position in the department. This is not to imply that either individual was negligent-—on the contrary, there is no reason to believe that either of the individuals did not perform his duties to the best of his ability and in a very outstanding manner. The point is that possibly some thought should be given to whether the position should be supervised in a different manner. Again to reiterate, this survey is concerned with positions and not those individuals fulfilling the positions. The remaining positions audited verified the work done as described by those officers as they originally stated in the position—classification questionnaire. The areas within the department from which these positions were chosen to be audited were drawn from a large cross section of the entire department. Positions were audited from the following divisions or bureaus: 1. Central Records Division 2. Detective Bureau 3. Youth Bureau 4. Patrol Division 5. Traffic Division 6. Planning and Research Unit- 7. Education and Training 8. Court Liaison 9. Jail Detention 123 The procedure that was utilized in the audit of these positions was strictly confined to that of a personal interview with each member filling the position. PREPARATION OF CLASS SPECIFICATIONS The preparation of class specifications can be dis— tinguished as follows: CLASSIFICATION: - OPERATIONS Distinguishing Features gfiflggk: Maintaining the peace, protecting life and property, working in dangerous or adverse conditions, working unusual hours with a great deal of overtime, working on weekends and many holidays, doing a type of work that requires great discretion by officer as to his use of police power, doing work which re- quires the abilities to be able to interact with various classes of people and at various social standings.3 Illustrative Examples 2f.WQ£k: 1. Investigate all types of criminal offenses, search— ing crime scene for evidence. 2. Interviewing and taking statements of witnesses. 3. Interrogation of suspects. 4. Searching for suspects. 5. Surveillance of known criminals and suspected violators. 6. Report writing. 3Baruch,2‘p. cit., pp. 382-383. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20. 21. 22. 23. 24. 25. 26. 27. 28. 29. 30. 124 Reviewing matters with commanding officers. Obtaining complaints and warrants. Time spent in court testifying as witness. Serving subpoenas. Assisting outside agencies. Assisting persons in distress. Investigate crime scene — search and photograph. Inspect and register firearms. Latent finger print development. General maintenance of criminal finger print file. Tabulation and safe-keeping of evidence for future cases. Guard prisoners. Guard visiting dignitaries. Check liquor establishments. Background investigations. Routine patrol. Investigate alleged break-in by members of family. Investigate senior citizens' misplacement of money. WOrk desk answering phone, receiving complaints, and giving information. Dispatch officers on calls. Typing offense reports. Receive property as evidence. Make house checks; business places. Prepare and distribute daily bulletin. 31. 32. 33. 34. 35. 36. 37. 38. 39. 40. 41. 42. 43. 44. 45. 46. 47. 48. 49. 125 Keep record book of cars towed; dog bites. Receive and register warrants and subpoenas; also the cancellation of the same. Keep record book of persons bitten by dogs and of persons owning dOg. Relieve radio dispatcher for lunch and periodic breaks. Accident investigation - arranging for transpor- tation of injured persons, removal of damaged cars, interviewing participants as well as witnesses, write report as well as citations. Patrol - watch for violations of law or situations that might endanger the public. Also while patrol- ing, look for missing and wanted persons and stolen cars. Available for any calls also. Traffic enforcement. Property checks. Domestic disturbance calls, barking dog, loud radio, and neighborhood kid complaint calls. Time is consumed in writing of reports. Checks on lost children. Maintaining order at labor strikes and disputes. Stopping suspicious persons (Field Interrogation). Maintaining good public relations. Issue traffic citations plus parking tickets. Arrest drunks. Feeding prisoners. Supplying information to news media in regard to incidents occurring in the city. Transport prisoners to court; check prisoners for medical attention. 50. 51. 52. 53. 54. 55. 56. 57. 58. 59. 60. 61. 62. 63. 64. 65. 66. 67. 68. 69. 70. 71. 72. 126 Check with other law enforcement agencies for warrants or wanted notices of detained persons. Search and book arrested persons. Repairs and maintenance of all departmental weapons. Handle curfew violators. Escort to hospital. Controlling mental patients. Assisting stranded motorists. WOrking at athletic events. Walking beat approximately 1/2 mile in area - shake doors every hour. Use of radar. Accident investigation — take photos and measure— ments and drawings of scene. Motorcycle duty — patrol and escorts. Skindiver for department. Apprehend criminals. Roadblocks. WOrk with members of news media in news releases. WOrk with junior police cadet program. Conduct tours through building. Talk to school children about safety education. Make public speeches. Interview females, minors, neglected children. Make inventory on all property. File bicycle license. 127 73. Investigation of incomplete, hit and run, fatal auto accidents. Desirable anlifications: Must be able to spell, write or type; should be able to write clear reports; should be able to make split-second decisions; must be able to use gun; must be able to handle self in a fight; should under— stand methods and procedures of some criminal law; must be able to understand and execute oral or written instructions; must be able to get along with all types of people; should understand some psychology.5 CLASSIFICATION: SUPERVISION Distinguishing Features gfiflggk: Positions which come within this classification generally are concerned more with the functions of seeing that the work is being done. This might entail a layout of work to be done, periodic monitoring of patrolmen's duties, or telling an officer how to perform his duties. This will include a periodic follow— up to insure that the work is being done and that the quali- ty of work being performed is up to the patrolman's abilities. 4Material statements taken from Position- Classification Questionnaires of Sworn Personnel of the Central Michigan, Police Department. 5Germann, Police Executive Develppment,_gp. cit., p. 77. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 128 Illustrative Examples 2; Work: Inspect men in his platoon so that they are in proper uniform and have proper equipment. Responsible for the good order and discipline of men. General supervision of platoon. Field supervision; check and assist men on calls. Inspect officers' notebooks, work sheets and uniforms. Assign officers leave days. Make out daily work sheets. Command police drill team. In charge of all prisoners arrested, booking, finger— printing, and arrangements for prisoners' care. Tabulate and prove material for weekly, monthly, and annual reports on all uniform division activity. Supervise and have responsibility for files and records. Direct and report communications to proper place. Control and serve traffic warrants to persons who come to desk. Train new recruits in handling of weapons. Responsible for seeing the ordering of food for prisoners and their feeding. Supervise car changes for officers. Make adjustments for those officers off duty because of sickness. Confer with off-going command officers relative to the activities during their tour of duty. Review officers' reports. 129 20. Supervise officer's investigation only interjecting help when needed. 21. Monitor radio calls. 22. Check district; see that routine work is being done by officers. - 23. Supervise crossing guard. 24. Supervise accident investigation. 25. Keep daily records of the men. 26. Put men to work and dismiss them at shift changes. 27. Sign all traffic citations issued by the men. 28. Required at various times to sit on drivers license appeal board. 29. In charge of Communications Division. 30. Responsible for equipment and personnel and reports. 31. Process police applicants. 32. Supervise drivers license bureau; make sure all policies of Secretary of State are carried out. Desirable Qualifications: Must have a sound under— standing of police procedures and principles; must have a good knowledge of Federal and State laws; must have an excellent knowledge of local laws and regulations; must understand men; have a clear understanding of a supervisor's job, thus must have certain lower management skills; must understand various investigative procedures of the depart— ment; must be able to spell; must be able to type; must be 6Material statements taken from Position- Classification Questionnaire of the Sworn Personnel of the Central Michigan, Police Department. 130 able to use firearms; should be adept at public speaking.7 CLASSIFICATION: MANAGEMENT Distingpishipg Features pf Eggk: Positions which come within this classification should be concerned pri- marily with the developing or refining of policies and pro— cedures which might increase the efficiency and effectiveness of the entire department. Positions would also include those of giving direction, control, and coordination to an entire division or bureau within the department. Any po- sition where great leadership is required, where new ideas must come from, where risks in terms of administration must be taken. These are also positions which must supervise over the supervisors. Illustrative Examples 2f TREE: Command Central Records Division. Full time is taken up in supervising the operation of complaint desk, switchboard, dispatches office, ID Bureau, property room, records and files, statistical section, divisional correspondence. 1. Supervise and direct activities of officers in division. 2. Coordinate information to assure full investigation. 3. Continuous inspection of officers to see they are adhering to established procedure and operational guidelines. 7Germann, Police ExecutiveDevelopment, 9p. cit., pp. 79-80. 10. ll. 12. 13. 14. 15. 16. 17. 18. 19. 20. 21. 22. 131 Review written reports to see if all steps in in- vestigation have been done. Make decisions regarding operational and policy matters within the division. Assign personnel to special investigations directed personally. Give direction to new members in the division in investigative procedures. Plan assignment of traffic personnel. Authorize leave days for traffic personnel. Supervise over school safety officer. Supervise over driver license officers. Attend mayor's safety meeting. Review traffic summary on accidents and enforcements. Going to the scene and checking all fatal accidents. Making the budget for traffic division. Teach traffic safety in department. Have conferences with officers about their work and make progress reports on officers. WOrk on department rules and regulation manual. This consists of writing general orders, personnel regulations, general rules, disciplinary code, and the organization and administration of the police department. Assist in writing and compiling a departmental annual. Various research projects as assigned by the chief. Compile department overtime and court time. Write correspondence and inquiries to and from other departments. 132 23. Teach in recruit and advanced recruit schools. 24. Revise and rewrite all general orders, special orders, and memorandums. 25. Research operational procedure to improve efficiency and make recommendations for improvement. 26. Prepare operational plans for special emergencies. 27. Attend numerous seminars regarding civil reights; operation of computers. 28. Give speeches to numerous civic groups. 29. Prepare the salary budget for coming fiscal year. 30. Assign cases to officers and supervisors. 31. Evaluate decision—making on cases. 32. Formal referral of cases to public and private community agencies. 33. Prepare and attend meetings of a planning nature. 34. Carry out administrative objectives of the department. 35. See that men are supplied with necessary supplies. 36. Coordinate department training programs. A. Recruit school and maintain police library. B. Advance recruits' school — teach skills. C. In—service and command school — refresh and update latest developments and techniques in police work.8 Desirable Qualifications: Should have excellent background in management and administration; knowledge of 8Material Statements taken from Position— Classification Questionnaires from Sworn Personnel of the Central Michigan, Police Department. 133 principles of public administration; knowledge of procedures of police work and investigations; thorough understanding of local laws and regulations; sufficient knowledge of criminal law and judicial procedures; must be able to plan, organize, direct, control, and staff work projects; knowledge of budget procedures; administrative analysis; knowledge of training techniques, ability to articulate departmental goals.9 9Germann, Police Executive Development, 22' cit., pp. 81-87. CHAPTER V SUMMARY This thesis was an endeavor to consider what differ— ences in tasks and duties are required of various levels or positions with a municipal police department. Emphasis and direction was placed on trying to find a method to break down these differences between the managerial and non- managerial positions in municipal police departments; so that this would justify the recruiting of different types of people for these different positions. The hypothesis of this study stated that there are certain differences that exist between various positions in a municipal police department, and these differences can be defined in terms of operations, supervision, and management. To support or reject this hypothesis, a position- classification study was instituted within a Central Michi— gan Police Department. The study consisted of a Position- Classification Questionnaire, of which returns were received from over 80% of the 174 sworn personnel; 139 responses were received in all. In addition, personal interviews were also held with the personnel directors or their representatives 135 from 14 of our larger municipal police departments to clari- fy or elicit any new information within this general area. CONCLUSIONS In the light of the information discovered in the field research study, it is concluded that the hypothesis has been validated. As Chart B indicated, 139 positions have been allo- cated to three classifications. Of these classifications, 86.4% or 120 positions were allocated to the classification of Operations; 8.6% or 12 positions were allocated to the classification of Supervision; and 5% or 7 positions were allocated to the classification of Management. Therefore, it becomes evident that the results of this survey will support the hypothesis in that there are certain differences that exist between various positions in a municipal police department, and that these differences can be defined in terms of operations, supervision, and management. This is evidenced by the fact that for each classification there were totally different distinguishing features of work; different types or examples of work per— formed; and totally different qualifications needed to fulfill these duties within each of the three classifications. 136 Another conclusion that can be drawn from the personal interviews with the Directors of Personnel of fourteen of our larger municipal police departments, and which is by no means unrelated to the hypothesis, revolved around this question: "Is there any difference between the executive and operational levels of your department in terms of what the job requires? What type of skills does the job require; and what type of skills does the man need to per- form them at these three levels: operations, supervision, and management?" The basic conclusion drawn upon the re— sults of this question is that most of these high-level executives did not know what is required of each job at the levels of operations, supervision, and management, nor what skills it requires of the man to effectively fulfill and perform his job. NEED FOR FURTHER RESEARCH It should not be inferred that this thesis is all- inclusive or that the study was intended to be completely exhaustive. It is merely an exercise in research to test the validity of the hypothesis. It is recommended that future research efforts that might be interested in the concept of lateral entry concen— trate on studying the feasibility of its implementation. 137 However, before_ohe can deal with this problem, it must first be established that it is in fact reasonable to talk in terms of lateral entry at all. There are certain pre— requisite steps that must first be established before one can theoretically accept or reject any hypothesis in this area of the feasibility of lateral entry. One of the first problems that should be dealt with would be to determine if there is sufficient difference be- tween the executive and operational levels to justify re— cruiting different types of people. A second step that would have to be established would be to determine if there are certain skills that are required to perform the job, and if so, what these skills are. A third step that would follow the identification of certain skills which are required to fulfill the job would then be the problem of determining the best way to recruit for the job. Should the recruiting be within the department or outside of the department? After these prerequisites have been established, it would be reasonable to talk in terms of proving the feasi— bility of lateral entry. BIBLIOGRAPHY BIBLIOGRAPHY A . 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Washington, D.C.: U.S. Government Printing Office, 1967. Richards, Max D. and William A. Nielander (eds.). Readings in Management. Chicago: South-Western Publishing Company, 1963. Rowland, Virgil K. Improving Your Managerial Performance. New York: Harper and Brothers, 1958. Sands, Edith. How to Select Executive Personnel. New York: Reinhold Publishing Corporation,'1963. Smith, Bruce, Jr. Police Systems_in the United States. New York: Harper and Brothers, 1960. Southwestern Law Enforcement Institute. Police Management. Springfield, Illinois: Charles C. Thomas, 1963. 142 Stahl, Glenn 0. Public Personnel Administration. New York: Harper and Brothers, 1956. Stone, Harold and William E. Kendall. Effective Personnel Selection Procedures. New Jersey: Prentice—Hall, Inc., 1956. Tannebaum, Robert, Irving R. Weschler and Fred Massarik. Leadership and Organization. New York: McGraw— Hill Book Company, 1961. Terry, George. Principles pf Management. Homewood, Illinois: Richard D. Irwin, Inc., 1953. VanDersal, William R. The Successful Supervisor. New York: Harper and Brothers, 1962. VanRiper, Paul P. History 2; the United States Civil Service. Evanston, Illinois: Row, Peterson and Company, 1958. Watson, Marguerite Holbrook. How 59 Prepare and Use Job Manuals. New York: The William-Frederick Press, 1952. Weiner, Arthur M. Introduction_pp Business: .5 Management Approach. Homewood, Illinois: Richard D. Irwin, Inc. 1959. Werette, John P. (ed.). Executive Philosophy and Practice. Ann Arbor, Michigan: Michigan Business Review, 1965. Whittaker, Ben. The Police. Great Britain: Cox and WYman, Ltd., 1964. Wilson, 0. W. Police Planning. Springfield, Illinois: Charles C. Thomas, 1962. Wilson, 0. W. Police Administration. New York: McGraw- Hill Book Company, 1963. B. PERIODICALS Blum, Sam. "The Police," Redbook, Volume CXXVIII, Number 4, February, 1967. 143 Clegg, Reed L. "Progress in Position—Classification--Taking the Mystery Out of Classification," Personnel 5g- ministration, Volume IX, Number 6 (July, 1947). Holmes, Benjamin. "Selection of Patrolmen," Journal pf Criminal Law and Criminology, Volume XXXII, Number 5 (January-February, 1942). Mullen, Robert C. "Job Analysis: The Missing Link in Federal Personnel Administration," Personnel Ad- ministration, Volume II, Number 1 (September, 1948). C. UNPUBLISHED MATERIALS Falzone, Paul R. "A Comparative Analysis of Executives Role in Business and Law Enforcement," Unpublished Masters Thesis, Michigan State University, 1965. Schneider, Mary Jo. "Police Executive Development: The Construction and Presentation of a Model Program." Unpublished Masters Thesis, Michigan State Uni- versity, 1964. D. ADDRESS AND WORKSHOP Brandstatter, A. F. "Executive Development." An address presented to Workshop III, Personnel Directors, National Center on Police and Community Relations, Michigan State University, January 31, 1967. "Proceedings" WOrkshop III, Personnel Directors, National Center on Police and Community Relations, Michigan State University, January 30—February 4, 1967. APPENDICE S 145 APPENDIX I MEMORANDUM March 22, 1967 SUBJECT: Research Project for Masters Degree Thesis The purpose of this memorandum is to apprise all command personnel of a study that is going to be conducted by two Michigan State University graduate students, Mr. Thomas Johnson and Mr. William Condie. These two men, to fulfill their Masters Degree re- quirements, have asked this department to aid them in pro— viding them certain data. In the next few days, these two students will be visiting this department and asking all sworn police personnel to complete a questionnaire. An instructional memorandum will be forthcoming. (Signed) Inspector of Police Distribution: All Command Personnel SUBJECT: II. 146 APPENDIX II M E M O R A N D U M March 24, 1967 RESEARCH PROJECT FOR MASTERS DEGREE THESIS PURPOSE This memorandum is to inform all command officers to distribute to their personnel a copy of the enclosed questionnaire. Two Michigan State University graduate students working on their Masters Degree Thesis re- quire certain data that is set forth in this question— naire. REQUIREMENTS 1. A11. sworn personnel are asked to complete the questionnaire. Command officer shall distribute a copy of the ques- tionnaire containing instructions to each officer and explain to them the purpose of the research project. Officers are to complete Items 1 thru 16 on the questionnaire. Contrary to the Instructions, the officer shall re— turn to a supervisory officer, only one copy of the questionnaire. The other copies of the question- naire and the Instructions need not be returned. Items 17 thru 21 shall be completed by the Immediate supervisory officer (in most cases, a sergeant). Where the immediate supervising officer is the com- manding officer, then Item 22 may be disregarded. Where Items 17 thru 21 are completed by a supervisor and not a commanding officer, the commanding officer shall complete Item 22. 147 7. Officers are to return the questionnaire by March 30, 1967 to their divisional head. 8. Commanding officers are to return the completed questionnaire to the Planning and Research office by April 5, 1967. It is my desire that all personnel cooperate in aiding these two graduate students in acquiring this data as their result may aid this department. (Signed) Chief of Police 148 APPENDIX III QUESTIONNAIRE How long have you worked in the department? How long have you worked in your present capacity as Personnel Director? If you had your choice, would you remain in this capacity? If not, in what capacity would you desire to serve your department in? Is there any difference between the executive and oper— ational levels of your department in terms of what the job requires? What type of skills does the job require at these three levels: A) Operations B) Supervision C) Management What kind of skills does the man need to perform the job? A) Operations B) Supervision C) Management Do you recruit different type people for these jobs? If so, where do you recruit them from? Is there a need for mandatory "time on the job" re- quirement because of the thought that we need seasoned supervisors and administrators? Do you believe you can effectively promote a patrolman to sergeant or a sergeant to lieutenant on the basis of how they performed in their original job? How are present and future needs for management person- nel determined? 10. 11. 12. 149 How far in the future are these needs predicted? How do you prepare for these needs? What sources and methods are used in recruiting manage- ment personnel internally? Do your patrolmen get any training or work experience in management? Do your sergeants? Does your department have position—classification plan? How does your department use it? «Um. mum. H.131”. m .91.: 1d a“ m‘m 150 APPENDIX IV INSTRUCTIONS AND SUGGESTIONS FOR FILLING OUT POSITION CLASSIFICATION QUESTIONNAIRE Do Not Attempt To Fill Out Questionnaire Until You Have Read These Instructions WHAT THE CLASSIFICATION SURVEY IS This is a job inventory. It is not concerned with your abili- ty on the job or with your qualifications. The kind of work you do and the responsibilities of your position are the things to be shown on the classification questionnaire. This survey is simply an analysis of the duties and responsi- bilities of positions in order to develop a classification plan. This plan will consist of a grouping together of all podtions having substantially similar duties and responsibilities and requiring like abilities and skills for successful performance The classification plan is used as the basis for sound prac- tices in selection, promotion, and transfer, and for uniform and equitable compensation standards. It is essential that the plan be accurate and fair. Therefore, detailed and exact in- formation about the duties and responsibilities of each posi- tion is necessary. You are the best person to provide complete information aboutyom'job.Youknowtheexactdutiesyouperformand your responsibilities. Consequently, you are asked to fill in the classification questionnaire. Use great care in doing this, so that a clear and complete understanding of your job can be obtained from your answers. The information provided through questionnaires will be supplemented by information obtained by discussions of the work of individual positions with supervisors and the employees themselves in a number of cases. However, the information provided by you on your classification questionnaire will be very important in deter- mining in what class your position belongs. Your statements will not be changed by your supervisor. Do not copy other people’s answers even though their work is the same as your own. We want your own statement of your work—not the ideas of others about your work. Ask your supervisor to explain questions you do not understand, but use your own words in answering all questions. If you are new on your job, ask your supervisor what duties you will have in addition to those with which you have already become familiar. PART I— TO THE EMPLOYEE Read these instructions carefully. Write your answers on onecopyofthequestionnaireSeethattheyarecorrectand complete. Then type your answers on the other two sheets. Sign and return the two typewritten forms to your super- visor within five days. Keep your work copy of the question- naire. Ifyoucannottypeyourself,writeyouranswersonone sheet and return the forms to your supervisor for copying within five days. He will return the forms to you for review, dating, and signature. Then return the typewritten copies to him and keep the sheet which you filled out originally. The following explanation will help you to understand just what information is wanted. Read the explanation for each item just before answering each question. ITEM I—Giveymulaunamefintthenyourfirstname, then your middle initial. Indicate whether Mr., Mrs, or Miss by crossing out the two designations which do not apply- ITEM 2 — Give your present oficial title as carried on the payroll. If you do not know, ask your supervisor. Under “Usual Working Title of Position,” write the title you and your fellow workers customarily use for your job. ITEM 3—Indicste your regularly established work sched- ule, showing your regular starting and stopping times for each day, the length of your regularly established lunch pe- riod, and the total number of hours in your regularly estab- lished work week. If your official work schedule varies from week to week, show the average number of hours you work in the space for “Total Hrs. per Wk.” If you are subject to rotating shifts, explain the system of rotation as it affects you, indicating whether you change shifts at weekly or monthly intervals and what shifts you rotate through. If your job requires that you be available at a specified loca- tionafixedperiodeachweekforemergencyserviceasre- quired, in addition to your regular work time, indicate the average number of hours per week involved in this “on-call” or “stand-by” time. ITEM 4 — Enter the name of the major branch of the juris- diction in which you are employed, giving the name of the department, board, or commission in which you work. ITEM 5 — Enter the name of that division or other principal subdivision of the department in which you work. ITEM 6 — Enter the name of that section or other unit of the division or institution in which you are employed. 151 . r . t ITEM 7 —— Enter the room number, building name or street location of building, and name of the city in which you work, as Room 182, Memorial Hospital, Capital City. If you work out of doors or on projects" at different locations, as in a highway district or on institutional premises, give the room number, building name, or street location of building, and city in which your headquarters are located—that is, the place where you report for instructions, etc. ITEM B—Indicate by checking the appropriate box whether your job is full-time or part-time, and whether it is of a year- round character or whether you are employed only, for ex- ample, for the summer months or for some other limited period. If you work part-time, indicate whether you work half-time, three-quarters time, five hours a week, or other- wise show what proportion of full-time employment is in- volved in your job. If you work seasonally or on a temporary basis, indicate for how long a period your employment is ex- pected to continue during the year. ITEM 9 -— If you receive maintenance in the form of meals, lodging, laundry, or the like, either for yourself or for both yourself and your family, in addition to your cash salary, check the “ es” box. Maintenance, as used here, does not refer to reimbursement for travel and transportation ex- penses incurred in the course of oficial travel. ITEM IO — This, the most important question on the form, is where you tell in detail what you do. Each kind of work that you do should be carefully explained. The task which you consider most important should be given first, fol- lowed by the less important work, until the least important is described. If your work varies from season to season or at specific times, duties should be grouped together according to such periods. Give your complete work assignments over a long enough period of time to picture your job as a whole. If one kind of work takes one-half your time, say so. If an- other kind takes one day a month, say that. You may prefer to show the time spent on different duties as percentages or fractions, as 75% of your time, or one-third of the year. Use whatever method you think will give a clear understanding of how you spend your working time, but be sure to show how much time is used for each type of work. Do not state it is impossible to estimate the time spent on various tasks; it may be difficult, but you are in a better position to do this than anyone else. If you are performing duties other than those of your usual position, describe both. In describing the temporary position, you should give the name of the person you are replacing, how long you have been filling in for him, how long you expect to continue doing so, and the reason, such as vacation, sick leave, etc. If necessary for a full explanation of your job, attach copies of forms used, being careful to explain how each is used and what entries you make, but do not attach copies unless you feel they are needed to describe your work. Make your description so clear that anyone who reads your answer, even if he knows nothing about your job, will understand what you do. Be specific; do not use general phrases. Examples of work in different fields are given below as a guide to the kind of statements wanted. Do not copy these examples—use your own words. Ordinarily it will take all the space provided on the questionnaire to tell what you do. If you do not have enough space, attach additional sheets. EXAMPLES IN THE LABOR FIELD (Skilled and Unsltlllodl 2 months: I dig trenches with pick and shovel. Mr. Brown, my boss, tells me where to dig and when to stop. 1 month: I fill wheel barrows with sand or gravel and take it to the concrete mixer. I tamp concrete after it is poured into forms. 1 month: Etc. I ride a ten-ton flat-bed truck and help load and unload bags of cement, heavy rock, reinforcing steel. . . . . . . .etc. We generally haul from the warehouse yards to maintenance or construction jobs. I wash the truck . . . etc. 3months: Ioperateatractoronconstructionworkasfollows: ..... . ...... . ....................... .... ...... ..... 1 month: Hoisting work with a two- or threedrum hoist. (Vacation relief.) 2 months: Pile driving for retaining walls, excavations, and foundations. Sometimes I . . . etc. EXAMPLES IN THE CLERICAL AND RELATED FIELDS Average 4 hrs. I type vouchers in duplicate to accompany invoices, after they have been approved by Mr. Jones and extensions per day: checked by Miss Smith. 2 ha: I type reports from rough pencil copy. lhr.:Etc. Ialso...etc. 2 days: I file purchase orders chronologically and by department and vendor. 1 day: Etc. I sort and distribute letters. 10%: I take dictation from Mr. Brown, including letters, memoranda, and drafts of speeches, but Mrss' White takes all his engineering dictation. 5%iEte. Ifile...etc. //.:-=—-"/: J?- In HIS) Fron HIHH .inll of him. Beams hr?“ sum idtithi m“. L .I, Turtle 7/ " Ll‘Q "JFK-n /// POSITION CLASSIFICATION QUESTIONNAIRE 152 I. Mr. Mrs. Miss 2. Official Title of Position Last Name First Middle Initial . Commission. Board. or Department . Division or Institution Usual Working Title of Position . Section or Other Unit of Division or Institution 8. Regular Schedule of fiours of Work From To Mon. Tues. Wed. Thur. Fri. Sat. Sun. Length of Lunch Period Total Hrs. per Wk. __ . Place of Work or Headquarters Explain rotation of shifts. if any: Is your work C] Full-Time? D Part-Time? [j Year-round ? [:1 Seasonal ‘! C] Temporary ‘.' If work is seasonal. temporary. or part-time. indicate part of year or proportion of full-time: Hrs. of “On-Cull" Time per Wk . Do you receive any maintenance (room. meals. laundry. etc.) in addition to your cash salary ? D Yes C] No 10. Describe below in detail the work you do Attach additional sheets if necessary. . Use your own words, and make your description so clear that persons unfamiliar with your work can understand what you do. TIME WORK PERFORMED LEAVE ILANK ll. Name and Title of Your Immediate Supcrv isor: 12. Give the names and payroll titles of employees you supenise. if five or fewer. If you supervise more than the employees, give the number under each title. If you supenise no employees, write “none." ¥ ‘HOl @ annulus spas" zusunsudoq euq Buomosilmo aunts-Du Iwomppv unifies”) not 1pm.“ th iuouioinis .IO sapninnnui Ann :nmgpul 'lOS!,\JJdIlS an: pun asioldtua sin 30 stunmoieis osoqe out no iuouiusog '3; :ssouej saqso so 'nuau esgnbas laogsqu 'xas ‘uv "‘Ill‘l' Pu' 'nlllll‘l' ‘ulpelnou‘ "pads :uortluzsiaai :u managing; 'smuaon : sq put usual ts! Ifllufl 'aouagsadxa :[Iuogsaojos n so "goods 'uottcmpa :lesauan 'uonuenpa suogzaouglano agate '1! ntdnoao nou or.“ lunpgagpug at" 30 suonnognenb an: ueqi some: puuu u; "as“ uomsod sq; dean momsod sun is! Kansans 3.111sz I lumg u! pasgnbas aq plnoqs quit“ no; :19qu suonuouuenb sq; neogpul '12, liDlddO JAILVIILSINIWGV IJHLO llO OViH lNJWlllVdia :IO lNiWilVlS .umcufigg S‘sosguodng [erouoo are” J1, °puaquoqs alumni u! zuads own )0 % DMD — “A C] ‘3‘: Stud“ u! wads our!) go 95 on“) — so; [3 0N D 0N C) gpuuquoqs salonut uomsod am: 8300 '03 glutdn OA'OAII! uottteod It!“ 900 '51 guomsod am: )0 sogznp tunsodust tsous asp septsuos not op seq,“ ~31 °suomppi .Io suondaaxa Rue niagput 'aslto'dusa yo szuausasus uo waususog 'LI llOSIMHdnS 1W3N39 so LNSWHIVLS unseuigs $.33AOF‘IIII3 and uranium; pul nuance. an! puI umo Kus as! nausea. aaoqu at“ turn “was I iNOlLVOIdILBSD 'ouqnd "Joust! out turn pue ‘suogingueiso spisino qua ‘uno and new ssqso siususuedsp '0!“ "Juno: snoA sqgigua ~9| g, qsoss snot )0 names so 31an up ’0 zunxa puu asmeu ass '3qu «,1 ”sons snoA Suipseiss JAIJJOJ noA suottonsnut ’0 was: pue unieu out are new“ 'H a. ,3 ..... 9p % if“ % :qoua )0 uonusado u! suede stun JO zuao .Iad aatg upon snoA u! Klsulnxas pasts tuausdgnbo .IO sauiqanu '21 f It» In. It” W l , v W From mm :h of Luxuh ' {w H"-(- Lu. Ems trim addurmns .g\ l A. (I ii, \2 \ - Inc and I] 5\\ ill‘ the 0.4 ”Dell “(f “0 ' \ \\ POSITION CLASSIFICATION QUESTIONNAIRE 153 1. gr. Last Name First Middle Initial 4. Commission. Board. or Department rs. Miss 2. Official Title of Position 5. Division or Institution Usual Working Title of Position 6. Section or Other Unit of Division or Institution 3. Regular Schedule of flours of Work From To Mon. '| ues. Wed. Thur. Fri. Sat. Sun. Length of Lunch Period Total Hrs. per Wk. Explain rotation of shifts. if any: 7. Place of Work or madquaners —‘ 8. Is your work C] Full-Time? [j Part-Time? C] Year-round ? C] Seasonal? [3 Temporary ‘.' If work is seasonal. temporary. or part-time. indicate part of year or proportion of full-time: per W k Hrs. of “On-Call" Time 9. Do you receive any maintenance (room. meals. laundry. etc.) in addition to your cash salary ? C] Yes [:1 No l0. Describe below in detail the work you do Attach additional sheets if necessary. . Use your own words, and make your description so clear that persons unfamiliar with your work can understand what you do. TIME WORK PERFORMED LEAVE ILANK ¥ ll. Name and Title of Your Immediate Supervisor: 12. Give the names and payroll titles of employees you supenise, if five or fewer. If you supervise more than he employees, give the number under each title. If you supervise no employees, write "none." \ K 1- 10: ® unzauxgs l_pIOH wanna Idea 01.0 'ooifirrsip not null.“ my.“ utaumims JO sapmnnmit .iuu amupul ‘Josiuodns at“ put aatoldiua out 50 stuamowis 33qu all) uo )uotuuiog) '3; :uouq Juno :0 ‘swau mint»: poia‘qd '13: '31v all!“ P“ 'umuq' ‘ulpoimouq Iogoods :uogtnnxgaai .20 'wtiogguaa ‘sasuaat'l :pugq pan “out at “800‘ 'eauegaadxg :[tuotuujoul do "good: ‘uog 3'.»an :louuaa ‘uonuonpg wonwutttno alqv-Ima twomppv '“ODNUII‘N‘O atfla ‘3! ugdnaao non oqra [onptaipui an ;o suonuaynunb at“ uni" .iatnu pugur u! "an; uomsod at" can -uomsod sun u! [JUCQIA aantn; t lump u; pugnbu oq ”nous quit" nos qaiqn suonaauuunb at“ manipu] ~13 II!3I:I:IO iAllVIllSINIWOV UiHlO HO OVBH INQWRIVJJG iO .lNJWSIVLS atmcufltg egosguodns [usuag 0180 “1.. 'Puvquoqs “PM u; wads awn JO % «to — “A [J % nugdn ug iuads sum )0 ix, “,9 — "A C] 0N D 0N C) gpuuquoqs Jaloaut uomsod 8!!" I300 '03 Lflufllfl DAIOMI! “09!“ ”1‘8 900 '61 guomsod sun 10 wimp wruodult "out at" .tapisuoa no: op "QM '91 'Iuomppa .Io suotzdaaxa Kua manipul 'eexotduta ’0 nuamazus uo zuawmog) 'u lOSlAllidnS TWENSO :IO INIWBLVLS unuuigg gaaAoidula neg azalduma pua azunae! no pun unao Mu a." uensua aaoqa 0|“ vein tune.) I :NOLLVQIJLLHQQ 'ailqnd [luauax up III!“ pue ‘tuotintuefixo epistno qua 'unto anoA uaqt ”mo stumuedop '0!“ spetuo.) inoA oqtuua '9‘ puma .lltOK )0 not“: a0 11an up ’0 zunxe put unzau e." "um 1.1 axon anoA Suipuflu Mina: noA suognnusut ’0 main pue unuu am an teqM '91 91.: ‘1’: ”A: % ".4, 9" :ana ’0 uoiiuado u! made own ’0 we.) Jed any!) upon .lnoK u! Alanna“ pawn )uewdinbo .lO unique" 1| POSITION CLASSIFICATION QUESTIONNAIRE 154 I. Mr. Last Name M rs. M iss 2. 055cm Title of Position First Middle Initial 4. Commission. Board. or Department 5. Division or Institution Usual Working Title of Position 6. Section or Other Unit of Division or Institution Mon. Tues. ___— \\'ed. ___ Thur. liri. Sat. 5 u u . Length of Lunch Period 8. Regular Schedule of Hours of Work From To Total Hrs. per Wk. Explain rotation of shifts. if any: 7. Place of Work or Headquarters —‘ 8. Is your work [:1 Full-Time? [j Part-Time? C] Year-round 2’ C] Seasonal ? D Temporary 1' If work is seasonal. temporary. or part-time. indicate part of year or proportion of full-time: Hrs. of “On-Call" Time per W k 9. Do you receive any maintenance (room. meals. laundry. etc.) in addition to your cash salary 1' C] Yes E] No 10. Describe below in detail the work you do. Use your own Words, and make your description so clear that persons unfamiliar with your work can understand what you do. Attach additional sheets if necessary. TIME WORK PERFORMED LEAVE ILANK Name and Title of Your Immediate Supervisor: l2. Gixe the names and payroll titles of employees you supcnisc, if {he or fewer. If you supervise more than the cmploxees, ghc the number under each title. If you supen ise no employees, write “none.“ __ no: 49 u mounts spas“ zuemuudaq suq antics”) not [prim qua )uamnims JO saimirincuy Aue aimipnl 'msiuadus out put: oatmdma out )0 stimulate): asoqe at“ no iuatutuog ‘3; :uotaq Juno so ‘siuotu wgnbu [Isis‘qd ‘13:: may u‘Ill‘l' P“. '“DIIN' 'solpolssouq [treads monument." to 'Hllogtuoa 'sasuaag'] :pug‘ pus use: it; Wan “oouogaadxg :ltuotssa’oul .Io "goods ‘uog uonpa unusual 'uonuanpg wonwuumo alament] iwomppv wonvmlmo atfla '1! ssgdnoao Lou oqu [mpgaiput an 30 suoneayuenb 3|!) not" some: pugui u; "an! uomsod up a»)! momsod sun at Muse's ”nan; s Suing u! pssgnbu sq ”nous sum: not qagqas suoussguunb at“ nsoipul 1; IliDHdO SAILVIILSINIWGV UJHLO IIO Oval-I INBWIIVJEG :IO INJWBLVIS amwufiig suosguadns [eiauao Jita % 'puiquoqs alumni us wads Own )0 % “to — ”A [J % fluid“ is! wads out: )0 95 mo -- sex [3 0N D on D ; punquoqs Miosug uomsod sun saoq 'oz Linn“) 3AI0Ml! "out“ "'13 900 '6! ; uomsod sun )0 sannp sustaodtnt 1R0“! 3|“ soprano.) nos op ‘3qu -s( 'suonipp' .Io suog‘tdaaxa (u. nuatpul 'aa‘thue go “noun”! uo zuoustuoo 'Ll lOSIAllidflS TWJNBO :IO LNBWJIVLS unisuSgg spaitoidutg neg wialdusos pun saunas. no pun usao Mu an sauna. asoqs OI“ sun gnu.) 1 :NOILVOIJLLHSZ) '°!l¢l“d 'uausx sq) tutu pus ‘suoiiuiueflo spinno qua ‘umo snot usqt Jaqso siusuiuodsp quot sustuos mos sqiima -9| ; 1101a ..tnox ’0 MOIAOJ .io qoaqs sin )0 zuazxs pun union us seq,“ «51 ("10M mot SuiszSu up»: no/t suotnnusui ’0 was; pus unisu am an mi,“ N 2.3 2% 19 8 2's % up» )0 uoiiusdo u! wads Own )0 was sad OAIQ upon snort at .(uslnxes pun wamdgnbo .to traumas“ 1:1 .155 EXAMPLES IN THE ENGINEERING FIELD Gmonths: I lay out and trace plan-profile sheets for street improvements. I reduce survey notes, balance traverses, and plot maps from the field books brought in by the field survey parn'cs, also plot cross-sections and planimctcr for cut and fill areas. 2 months: Etc. 1 draft . . . etc. EXAMPLES IN THE ACCOUNTING FIELD 10%: I supervise three clerks assigned to the cost accounting system for road construction and maintenance. 10%: I assemble job record reports, post to summary sheets, and do other routine work. 5%: I tabulate and prove material for weekly, monthly, and annual reports. 2%: Etc: I compile . . . etc. EXAMPLES IN THE CUSTODIAL FIELD Washing floors, walls, windows, and woodwork by hand. 1/2 day: 1/3 day: Polishing metal; waxing and polishing floors with a polishing machine. ITEM II —Give the name and title of your actual im- mediate supervisor—the crew chief, section leader or similar person to whom you look for orders, advice or decisions and who probably works very closely and di- rectly with you. ITEM I2—If you have five or fewer persons under your supervision, give their names and payroll titles. If more than five, give their payroll titles and give the number of employees under each title. If you supervise no em- ployees, write “none.” ITEM Iii—List here any major items of equipment, ma- chines, or office appliances which you use in your work and the approximate percentage of your working time which you spend in the operation of each. ITEM I4—What instructions or directions do your su- periors give you in relation to the work you do? How detailed are instructions about what you are to do and how you are to do it? You may have had instructions only when you were new on the job. You may get special in- structions with each new task. Describe the nature and extent of the instructions you receive. ITEM lS—Describe the check or review that is made of your work. Are there any automatic checks by other offices, or are there procedures which would catch any errors you might make? How final are the decisions you make about your work? Describe such features as these. ITEM lo—Explain the nature and purpose of important contacts you have with people other than your fellow workers. Is the purpose to obtain or give information, to persuade others, or to obtain cool)eration? What prob- lems and difficulties are involved? PART II—INSTRUCTIONS TO GENERAL SUPERVISORS AND DEPARTMENTAL OFFICIALS Method of Distributing and Reviewing the Classification Questionnaires You will be supplied with a complete set of three Clas- sification Questionnaires and a copy of these Instructions for each employee under your supervision. Give each employee a set of Classification Question- naires and Instructions. Ask employees who have access to typewriters to work out their answers on one copy, and then type them on the other two cOpies, and return the two signed typewritten copies to you within five days. Ask those employees who cannot type their own ques- tionnaires to write their answers on one sheet and return the complete set to you within five days, for typing. When typed, return all three copies to the employees. Have the two typewritten copies reviewed, dated, signed, and re- turned to you. Go over each employee’s questionnaire carefully to see that it is accurate and complete. Then fill out Items 17 to 22, inclusive. The general supervisor should fill out Items 17 to 20 on the questionnaire forms of only those employees whom he supervises. A department head should not fill in these items for employees whom he directs through a sub-executive but only for those to whom he assigns work directly. In all instances, the di- rector or Other administrative officer, or a representative designated by him, should look over both the employees’ and their supervisors' statements and indicate under Item 22 any inaccuracies found. Neither the general su- pervisor nor the administrative officer, however, should make any alteration or change in the statements made by a subordinate. If there is a regular position under you which is tem- porarily vacant, or if an employee is not available to fill out the questionnaire, please supply a form for that posi- tion, made out as accurately as is possible. The fact that an employee did n0t fill out the form and the reason should be clearly indicated. If the employee returns, he should fill out and submit his own questionnaire. 156 Suggestions for Filling Out Items I7 through 22 ITEM I7— Do not change the employee's statements. Read them through and then give your opinion of their ac- curacy and completeness. Is it a good description of the position? Has he neglected to give a full picture of his duties and responsibilities? Has he overstated them? Has he put emphasis on the wrong points? Either comment generally on his statements or refer to specific items. If you have a number of positions under you which are practically identical, it will be sufficient to answer Items 18 to 21 fully for one such position only, and then refer to such answers on the other questionnaires. You can merely state, “Same as John Doe." ITEM IB—Sum up what you consider to be the distin- guishing aspects of the employee's job. What are the most important functions carried on in this position? What operations in the job contribute most to your or- ganization? Is the position a beginning or an advanced one?- ITEMS I9 and 20—If the job involves any typing or shorthand, even if merely incidental, answer these items completely. If not, check “No." ITEM 21 —With full consideration of the duties and re- sponsibilites of this position, tell what are the basic quali- fications of a person you would choose for the position if it were to become vacant. What must he know? Of what basic subjects, procedures, principles, laws, or regu- lations must he have a knowledge? Must the knowledge be thorough or is a general knowledge or familiarity sufficient? ' What abilities or skills must a successful employee possess? How much formal education is necessary? What course or subjects are required? Which are desirable but not essential? Is previous experience necessary? If so, how much experience, and in what type of work? What de- gree of physical strength, agility, or endurance is neces- sary? For what purpose is it used, e.g., for walking, lifting, etc.? Please be as specific and complete as you can in an- swering these questions. Indicate, wherever possible, both the basic qualifica- tions required to fill the position and the desirable quali- fications which you would like to have in a new employee. ITEM 22—The comments made here by the department head or other administrative officer should follow the procedure suggested for the general supervisor in Items 17 and 18 to the extent that additional comment is needed. Return of Completed Questionnaires One copy of the questionnaire signed by employee, general supervisor, and administrative officer—the original of the typewritten copies—should be submitted for each employee in the department within no more than two weeks of the date of distribution of the questionnaires to employees. The carbon copy of the completed type- written form is for departmental files. IiillI. i.l.IlI HICHIGQN STQTE UNIV. LIBRQRIES 31293101950040