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"JACKSONVILLE COMMUNITY COUNCIL, INC.A Report To The Citizens Of Jacksonville

MAXMORRIS, CHAIRMAN JULY, 1979

A REVIEWOFJACKSONVILLE'SCIVILSERVICESYSTEM

SCOPE OF THE STUDYJCCI study issues are adopted by the JCcr Board of Managers upon recommendations of the programcommittee. The program committee receives suggestions from Qany sources; the members of JCCI, staff,previous study committees, community agencies and government leaders. In the case of the civil

service study every source listed above recommended the issue, indicating that the civil service-system was widely perceived as an area in need of ser.ious review.

The charge given to the JCCr committee by the JCCI Board of Managers was to review the City ofJacksonville's civil service system and to consider alternatives to the present system. The ideal

-system would be one in which public employees are given protection to assure that the processes of~election, promotion and dismissal are based on qualificiations and performance rather than on

~olitically motivated decisions. At the same time this ideal system would give protection to tax-payers, assuring them that public employees are productive in providing effective governmentalservices.

Civil service literally means service to the state and therefore refers to 311 public personnelmatters. In bureaucratic circles, however, civil service has come to mean the so-calle~ merit system

which grew out of the spoils system. This merit system was based on open competition for publicjcbs, a fair objective method of selecti0n, equal pay for equal work, an appeal procedure for unjustpersonnel actions and elimination of favoritism and politics as a basis for hiring, promotion, anddiscipline.

The scope of this study is local civil service as a merit system rather than the broader sense of all

personnel management in local government. Nevertheless, it was necessary to gain an overview of thetotal personnel functioning in local government and the roles and relationships of the variousparticipants in order to assess the merit system itself and how it meshes with other parts ofpersonnel functioning.

Readers unfamiliar with the personnel functions of Jacksonville's government should refer to thebackground information at the end of this report.

HIGHLIGHTS

MAJOR PROBLEMS: RECOMMENDED SOLUTIONS:

An elective Civil Service Board which has a

mixture of judicial, legislative, and execu-tive functions

An appointive Civil Service Board, consisting

of some members appointed by the Mayor andsome members elected by employees; with power

to decide employee appeals and advise thePersonnel Department on personnel policies

Executive responsibility vested in the Mayor

and department heads without correspondingauthority, resulting in a lack of account-ability for personnel actions

A Personnel Department with expanded execu-

tive and legislative functions, placingpersonnel management in the hands of pro-fessionals

A reward system which fails to distinguish

between satisfactory and clearly superiorperformance

A study to devise methods to stimulate

productivity by means of appropriate rewards

. A closed sys~em which severely restrictslateral entry

Opening the system to allow outside competi-tion for jobs above the entry level

A lack of training for supervisors in per-sonnel management

Adequate funding for the Personnel Department

to provide for its new personnel managementfunctions and training for managers

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THE STATUS OF MUNICIPAL CIVIL SERVICE SYSTEMSIN THE UNITED STATES

This section slliDrnarize~t~e literatura in prufessional journals which constitutes part of the

committe-='s data base. Sp~cific sources are listed in tllt::refet:'ences.

In the uatior. a reform ;novement is taking place

l.r-.civil servic~ systen:s~'.t tile feaeral, stat-=a'ld local lev-=ls. Chang~ has been;; timulated

by the fact that times and conditions havechanged since the civil service was first setup to com~at the ills of the spoils system.

~len civil service began, its purpose was togive public employees some job security bypreventing a newly elected office holder from

dismissing the old set of employees and re-placing them with his friends or supporters.The civil service system was very effective

in doing just that. Critics charge that thatvery system, designed to prevent abuses, hasbecome rigidified and obsolete ap-dnow oftenstands as a roadblock to effective personnel

management and thereby hampers the effectivedelivery of government services. Many of themethods used by the merit systems to protectagainst past abuses have actually served toexclude well qualified persons, to limit theflexibility of responsible elected officials

and to curtail the effectiveness of the publicservice. In today's world a public officialcan better insure his re-election through

demonstration of productivity and efficiencyin government, rather than by patrcnage.

The shortcomings of the traditional civil

service system in local governments havebeen well described in the press and theprofessional literature of public adminis-

tration and personnel management. They are$ummarized here.

An inadequate system of rewards to dis-

tinguish the truly competent and able

employees from the incompetent. Pay isseldom related to merit. It is extremelydifficult to dismiss an unproductiveemployee who d0es not flagrantly violate

the rules. Employee performance is rarelyevaluated as a basis for promotion.

. An over use of written tests for employee

selection and promotion to the exclusion

of personal judgment. In looking for animpartial and objective system, it wasquite natural that early civil servicecommissions turned to the use of written

tests. With the beginning of intelligence

testing during the first world war, test-ing grew as an important field in psychology.Recently, under the impetus of increasingopportunities for minority groups it hasbecome clear that written tests, even whenconstructed with the best of intentions,

are not necessarily fair. They are

effective in removing the personal judgment

of the ~a~ager from the selection process.

Freq Ijcntly, however, they discriminateagainst: certain ethnic groups or minorities.But, worst of all, they frequently do notprove effective as a tool to predict jobperformance.

An overemphasis on seniority as a basis forpromotions. In many jurisdictions employeesare given extra points of credit on examina-tions for each year of service. In others,

outsiders are not eligible to take the test.In effect this means that there is no lateral

entry into the system and no influx of newideas and stimulation.

Systems which are found to be in conflict

with sound principles of personnel adminis-tration. The civil service commissions

are often given authority to make rules and

policies, to administer these rules and tointerpret these rules through a quasi-judicial

forum. These commissions often are givenadministrative powers which belong in the handsof management who are the ones accountable to

the public for sound administration.

In selecting new employees or promoting old

employees, managers are frequently limitedto the 'rule of three' or the 'rule of one'.

This means that they must select from thetop or three top persons as determined by

test scores with the additional points forseniority and veterans' preference. Given

the invalidity of most tests, this becomesa meaningless method of selection.

Long delays in hiring and firing. The timeinvolved in recruiting, scheduling examina-tions, grading examinations and certifyingeligible candidates often takes four to sixmonths. By this time, the candidates atthe top of the list have often take otherjobs. Procedures for dimissal are oftencumbersome and drawn out.

Separation of authority from responsibilitymakes it difficult to pinpoint responsibility

and encourages buck passing. Managers usethe system as an excuse for poor managementand employees may also give up trying.

Inclusion of key department heads in the

civil service system. Department heads

should be in tune with the policy goals ofthe chief administrator in order to carry

out his platform effectively. In somejurisdictions there are few exemptions fromcivil service.

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Inadequate training programs for supervisorya~d middle management personnel. Local legis-lative bodies seldom adequately fund employee

training and development programs.

In 1970, the National CivilS~rvice League updatedits model law fo~ public personnel administrationin order to streamline and modernize merit systems.

They followed closely the principles set for~h

earlier in 1962 in the report of the Municipal~~npower Commission. These proposals essentially

returned administrative power for personnelfun~tiolling to the responsibility of the chiefexecutive, established a citizens' board as

advisors to the personnel department andestablished a hearing officer to handle grievancesand appeals. Since 1970, hundreds of localjurisdictions have adopted part or all of the

provisions of this model code.

FINDINGS

~~CKSONVILLE/S CIVIL SERVICE SYSTEM

Findings are derived from published materials listed in the references or from a consensus ofcommittee understanding as reported by resource persons.

COVERAGE

Of the approximately 20,000 local government

employees in Jacksonville, including school

personnel, 13,000 come under civil service.In the central government itself, 99% of

~loyees are include~incivil service. Amongthose exempted from civil service in the

independent agencies all are certificatedpersonnel at the .School Board and physicians

at University Hospital.

Exemptions in the central governwent are based

on the principles that the Mayor should have an

opportunity to appoint those who are supportiveof his goals and objectives. Therefore, thosein policy making posistions, i.e., departmentheads, deputy directors and division chiefsare exempted. Employees in confidential posi-tions are also exempt from civil service.

MONITORING ROLE OF THE CIVILSERVICE BOARD

The administering of the job classificationfunction is monitored by the Civil ServiceBoard to ensure freedom from manipulation or

favoritism by management.

The Civil Service Board reviews and revises

the job classification system to ensure thatthroughout local government persons in similar

jobs work under comparable pay scales.

AUTHORITY FOR PERSONNELMANAGEMENT

Jacksonville's civil service system is not fullyunder the control of the Mayor. The original

draft of the consolidated charter gave allpersonnel responsibilities except that of hear-

ing appeals to the Personnel Director, appointed

by and responsible to the Mayor. However,changes in this draft were made by the legis-lature prior to submission of the charter tothe voters. Provision was made for an elected

Civil Service Board which was given some

executive functions, as well as policy making

powers. Although executive responsibilitystill rests with the Mayor and is delegated tothe Personnel Director and other departmentheads, their orders and policies may be counter-manded by the Civil Service Board.

DISPERSAL OF ACCOUNTABILITY

There is no central point of accountability forpersonnel actions. Power and authority aredispersed among many different offices or

sections of local government. Although legis-lation has attempted to c~arify roles and

responsibilities, areas remain where juris-diction is unclear or overlapping.

Since consolidation, forces outside local

government have brought about further disper-sion of the personnel functions. The addition

of new offices and responsibilities has madethe system so complex that few even in local

government itself have an understanding ofthe total personnel picture.

The passage of the collective bargaininglaw in the State of Florida and subsequentchanges in the city charter to allow for

collective bargaining, in effect, removed

pay and working conditions from the juris-diction of ~he Civil Service Board. An

employee relations office under the Mayorwas created. A grievance procedure for

union employees now parallels the grievanceprocess handled by the Civil Service Board.

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The movement to broaden representation of

minorities and women in the public work

force has been strengthened and promoted

by federal action under the Equal Employ-ment Opportunity Commission. Jacksonvillenow has an affirmative action office to monitor

implementation. In addition, the affirmativeaction office offers the first step of a

grievance procedure when an employee believesdiscrimination on the basis of race, sex

or age has occurred. Still another local

government agency, the Community RelationsCommission, conducts hearings if the matteris not resolved by conference.

Local offices, agencies and branches of govern-ment affiliated with personnel functions involv-ing policy and judgment include:

'£he Mayor

The Personnel Department

Department Heads

City CouncilThe Civil Service BoardThe Affirmative Action Office

The Employee Relations OfficeThe General Counsel's Office

The Community Relations Commission

Appropriate sections of the independent

agencies

Disputes over jurisdiction and power are notuncommon. They result in delays, decisionswhich are not final, and less effective manage-ment.

For example, must the elected Civil Service

Board comply with mandates from the AffirmativeAction Office if they feel these affirmativeaction requirements are in conflict with theirrules and their interpretations of the merit

system? For a time it seemed the answer wasno. After the City Council passed an equal

opportunity ordinance in response to federalrequirements, it was unclear whether the Councilor the Civil Service Board would prevail. Very

recently, the Board changed its rules to allowfor a random listing of eligible candidates whohad passed the entry level tests, without refer-erences to test scores. (Unless written tests

have been sufficiently validated as predictors

of job performance, EEOC regulations requirethat their use be limited to setting a minimum

level of qualifications.)

Matters of pay are determined by bargaining

agreements under the collective bargainingaddition to the City Charter. However, ina case now before the courts, =~e Sheriff, aunion and the Civil Service Board are in conflict

regarding jurisdiction over a pay matter. Inthis case, step increases were denied by theSheriff to certain police officers because of

alleged abuse of sick leave privileges. TheCivil Service Board intervened to order that

the pay be granted. The proper jurisdiction

for this matter is yet to be determined.

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The persons accountable to taxpayers fQr theproductivity and efficiency of employees are

not given authority co~ensurate with thatresponsibility. Under the theory of consoli-dated government, the Mayor is responsible forthe effective use of personnel. The Jackson-ville Civil Service Board is charged with

developing and maintaining the merit systemfor public employees and it is not directlycharged with looking after the taxpayers'interest in effective and efficient public

service. Responsibility and authority,therefore, are separated and diluted betweenthe Mayor and the Board.

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This is no small concern, since personnel

costs make up 80% of the cost of government.

Personnel in state and local governmentsthroughout the nation have grown by 132% overthe past 20 years. Although 20 year data arenot available locally, for the nine year periodfrom 1969-1978, personnel in the government of

Jacksonville grew from 15,196 to 20,693, anincrease of 30%. This includes employees of

the central government, the School Board andthe independent agencies.

CONFLICTING GOALS

The goals of the Federal government to increase

the representation of women and minorities inthe public work force are in conflict with

preferential hiring policies for veterans. Whensuch conflict occurs it is not easily resolvedand morale suffers.

The veterans' preference policies are establish-

ed by federal legislation and further strength-ened and implemented by Florida statutes. Thelocal Civil Service Board in its rules has

provided for awarding points to veterans over

and above examination scores. This has appliedonly to those who have achieved a passing scoreon the examination. Recently, this method of

according preference to veterans was challengedby EEOC rulings as expressed in the localaffirmative action ordinance. Now names of

those candidates for employment who have passed

entry level tests must be given to managementin random order without regard to test scores.

Therefore, the new way of signalling preferenceto veterans is by designation of their nameswith an asterisk or in the case of disabled

veterans a double asterisk. Legal opinions

are now being sought regarding the compliance

of this method with Florida veterans' preferencelegislation.

EMPLOYEE PROTECTION

Employees have protection against unfairdismissal, hiring and promotional practices,and a grievance procedure. However, there

was disagreement among resource persons'whospoke to the committee about whether thisprotection in some areas is excessive and/or

duplicated.

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Most employees now have several routes totake concerning grievances, or appeals to

disciplinarj actions.

In matters covered under the union contract,

employees may utili7.e the grievance procedureroute outlined by the contract with theultimate step of arbitration.

In matters relating to discrimination onthe basis of sex, race, age or national

origin, the grievance or appeal route forall employees is via the AffirmativeAction Office and the Community RelationsCommission.

On other matters employees may choosebetween the contractual route or hearings

~efore the Civil Service Board. Theemployee may engage his own attorney. Ifa union member, he may utilize the servicesof a union attorney, if in the judgmentof the union the case merits this action.

In both the police and fire departments an

internal disciplinary hearing board isprovided as the first mechanism through ~hich

an employee may appeal a disciplinary action.l~is board includes peers of the employeeas well as representatives from management.In both departments the employee may appeal

t~e decision of this diciplinary hearingboard to the Civil Service Board, therebygenerating another full investigation andanother full hearing. Thus, for these twodepartments, another layer of grievanceprocedure is available to the employee.

Some employees whose salaries are paid byfederal grants do not come under civil service.They have still another grievance procedurebased on federal statutes. It parallels the

civil service procedure. Their exclusionfrom civil service is based on the fact that

their positions are funded by the federalgovernment on a year-to-year basis. The City,therefore, chose not to give them tenure undercivil serv~ce. It should be noted that some

of these programs, such as public housing,have been ongoing for many years and will

probably continue. The existence of thiscategory of employee results in further

fragmentation of personnel responsibility.

MULTI-FUNCTION ASPECTS OF THECIVIL SERVICE BOARD

The Civil Service Board as now constituted is

a multi-function body. The Board has authorityto make rules which are essentially the per-sonnel policies for the City of Jacksonville.

This is, in effect, a legislative function.Yet it operates without the usual mandated

legislative safeguards such as public hearingswhen rules are changed.

The Board also has authority to approve the

job classificatiou system and approve eligible

lists of employees for hire and promotion.This involves administering the rules whichit has created.

Finally, it ha~ quasi-judicial powers to act

as fact finder, judge, and jury at hearings,

using its rules but without the safeguards

against lobbying and po~itical influence builtinto judicial systems. Lobbying is permissiblewith regard to executive and legislative~unctions but is prohibited by law forjudicial functions. A number of resource

persons expressed a belief that there havebeen attempts to influence the outcome of

Civil Service Board hearings. Whether thisis a widespread practice or valid concern wasnot documented for the committee.

The Civil Service Board, as demontrated, has

executive, legislative and judicial functions,yet no penalties are provided for attempts

to influence the judicial or quasi-judicialhearings of the Board.

ELECTED CIVIL SERVICE BOARD -UNIQUE IN THE NATION

The Civil Service Board in Jacksonville isthe only remaining elected civil service

board in the United States, according to theNational Civil Service League. Differentopinions were expressed to the committeeregarding the pros and cons of elected versusappointed boards.

Union representatives and Civil Service Board

members who spoke to the committee prefer an

elected board. They believe that election bythe voters is the fairest and best way toselect board members. In their view a board

which is appointed (presumably by the Mayorwith City Council confirmation) might le~nheavily toward the management orientation of

the Mayor. However, it was pointed out byothers that appointments could be made

partially by the Mayor and partially by theemployees in order to achieve a balance. Two

city managers, several administrative personnel

of the City of Jacksonville, a representativeof the National Civil Service League, and aprevious Jacksonville mayor stated to thecommittee that the elected board leads to an

unbalanced situation in which the employeeside is favored. City employees and their

families make up a sizeable voting bloc inCivil Service Board elections. These are the

people who stand to benefit directly from theresults. The average citizen, on the other

hand, is not familiar with the powers andresponsibilities of the Civil Service Board.In addition, personnel administration in the

last 20 years has grown to a highly technical

and professional field. An appointed board

might result in members with qualifications ofa professional nature which would better equipthem to make sound administrative personneldecisions.

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MOTIVATIONAL TOOLS AVAILABLETO MANAGEMENT

Management has few tools available to rewardand motivate productive hard working employees

and to discipline promp tly employees whoviolate the rules and precepts of the work

world. Dealing with employees who abide bythe rules but are incompetent or relatively

unproductive is extremely difficult afterthe probationary period of six months.

Managers do not ordinarily have the abilityto reward employees for superior performance.

There are exceptions to this statement. Theunions contracts covering supervisors andcontracts covering managers and confidential

personnel provide for a double step increaseas an option for outstanding performance. Thegreat majority of union contracts in the Cityprovide for periodic pay increases for satis-

factQry performance. If performance is un-satisfactory these 'automatic' increases maybe withheld. This rarely occurs. Promotion

to a higher position is based on length ofemployment with the City and the ability topass written promotional tests, rather thanon evaluation and recommendations by account-

able supervisors. The written tests have not

been clearly proven to be reliable predictorsof success on the job. Such validation oftests is extremely costly and never perfect.

Promotions are still governed by the CivilService Board's 'rule of one.' This means

that the appointing authority must select the

top person on the list of those who passedthe examination, based on the highestuumber

of points. Points are awarded via the testscore itself, on the basis of seniority andaccording to state veterans' preference

regulations (as implemented by local CivilService Board rules).

One half-point for each year of continuous

service in the department or agency up to amaximum of ten points is added to the testscores. Another half point for each year in

the rank or position immediately below that

being tested, up to a maximum of five points,is allowed. On their first promotional exam

after returning from military leave, veterans

may be awarded an additional five points.Those veterans who have a service connected

disability as defined by law are eligiblefor 10 veterans preference points. Theimplementation of veterans' preference legis-

lation is currently under review by the GeneralCounsel's office.

Managerial judgment is not a f,lctor in promo-tion decisions. This is contrary to the

principles of sound personnel management asrevealed by resource persons from the publicand private sectors and published resourcematerial.

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After meeting experience and education requl.re-ments, the primary method of determiningqualifications for employment is by the use

of written tests. Performance tests are given

much less frequently. Procedures for testingand the administration and scoring of tests

are reportedly fair. 1

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While managerial judgment is not a factor inpromotion decisions, the selection process forentry level positions has provided for increas-

ing use of managerial judgment. Since 1978, inorder to comply with the Affirmative ActionOrdinance, mana~ers have been presented with

a random listing of candidates who have passedthe test. The manager has no knowledge of testscores or ranking. Choices are made on thebasis of qualifications as determined by inter-

viewing.

Disciplining an employee who is late or frequent-ly absent or whc is accused of even more serious

charges such as larceny requires a great dealof managerial effort, time, documentation and

consequent expense. The employee may appealany disciplinary action to the Civil ServiceBoard and will be granted a hearing. At

hearings the appointing authority must documentthe charges brought against the employee andprepare a case. Witnesses are called. Theemployee may utilize the union's attorneyif a union member or provide his own. The

city provides an attorney to advise the CivilService Board and an attorney to rep~esent

management.

Data submitted by the Civil Service Board for1977 and 1978 revealed that approximately onethird of the disciplinary actions reported

were initially appealed by th£ employees. Twohundred eighty four disciplinary actions were

reported; 97 were ~ppealed. Of the 97 casesappealed, 61 hearings were actually held.

The committee received different opinions andfacts about the record of the Civil Service

Board in upholding management rather than the

employee. Although members of the Board contendthat their decisions uphold management 90% ofthe time. this is based on the interpretationthat upholding management means agreeing with

management's findings or conclusions althoughsometimes differing in the penalty recommended.Data provided by the Civil Service Board for1977-1978 show that management was upheldcompletely (both in its decision and penalty)20% of the time. Data provided by the GeneralCounsel's Office from 1973-1977 show that Board

upheld management (where dismissal was recommend-ed) 35% of the time. The Sheriff's Department

reported 24 cases referred to the Civil ServiceBoard since consolidation with the Board uphold-

ing management 33% of the time. Other depart-ments gave higher estimates of being upheld. At

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any rate, a high rate of denying management'srecommendations for penalties has l~d to the

general belief by management that they cannotwin. As a result, some departments avoid

disciplinary action which might lead to an

appeal to the Civil Service Board except inthe most dire circumstances. Other managers

request a stiffer penalty than they actuallyfeel is appropriate, believing that the Boardwill reduce it in any case.

USE OF AVAILABLE TOOLSBY MANAGEMENT

Management, according to the resource persons

who appeared before the committee, d~es notmake full use of the available tools to disci-

pline unsatisfactory employees. Because ofconflicts with the Civil Service Board and

possibly inadequate training, many in managementhave failed to try or have tried and given up.They feel it takes too much time from other

duties to prepare adequate documentation forcases. Therefore, they avoid most disciplinaryaction which is likely to result in a hearingbefore the Civil Service Board. Resource

persons in city management stated that they

rarely utilize disciplinary measures fornonproductivity or inefficiency.

For most employees there is a six months

probationary period during which managementcan dismiss an employee for unsatisfactorywork performance. In such a case the employeeis not entitled to a Civil Service Board

hearing. However, if the employee is ableto convince the Civil Service Board thgt the

dismissal was not based on unsatisfactory

work performance, a hearing may be held.

In the police and fire departments the

probationary period is one year. Severalresource persons were of the opinion that this

one year probationary period, or an evenlonger period, provides a better opportunityto evaluate an employee.

LACK OF MANAGEMENTTRAINING

Local government provides no regular trainingprogram for management. There is no formal-ized training for management in the CivilService Board procedures, rules and definitions

of terms. No funds are budgeted for suchtraining.

CLOSED SYSTEM

For all but entry level positions and the

appointed positions of top management, thecivil service system is essentially a closedsystem. Few opportunities exist for lateral

entry into the system.

When a vacant position exists above the entry

level, those in the Same department who holda job just below the vacancy are extended thefirst opportunity to compete for the job. If

none so qualify then the opportunity may beextended to employees in all parts of localgovernment, and lastly. to the public.

This policy of giving preference (for jobsabove entry level) to current city employees

also has the effect of retarding progressin affirmative action.

CONCLUSIONS

Conclusions represent the value judgments of committee members.based on the findings.

Personnel is the major cost factor in govern-ment. Therefore, productivity and effectiveuse of personnel should be primary concerns

of the city administration and taxpayersalike.

Personnel administration today is a highlycomplicated and developed professional field.

Therefore. the development of personnelpolicies belongs in the hands of theseprofessionals as much as possible.

Exemptions of those in important policy mak-

ing and senior management positions from theCivil Service system is compatible with theprinciples of a merit system.

The responsibility for the merit system and

employee protection was originally assignedto the Civil Service Board. However. dis-

persal and duplication of powers and pro-cedures have occurred as the result of

collective bargaining. state legislation and

provisions for equal employmentopportunitie~

This division of authority has caused juris-dictional disputes, increased cost and in-effective management.

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The existence of an independently electedCivil Service Board with administrative and

policy-making responsioilities is in conflict

with the tenets of the strong Mayor systemof Jacksonville's government. The ~~yor'soffice is not fully accountable for the effec-

tive use of personnel. The necessary authorityto achieve high levels of productivity, whichcitizens expect from any service organizatior.,is not vested in any single office.

Legislative, administrative and quasi-judicialfunctions should not be a5signed to onegovernmental body. The Civil Service Boardas now constituted has these functions. Those

who enact the rules should not be chargedwith administering the rules and with inter-

preting those rules and judging allegedviolations of the same rules.

The present Civil Service system does not

provide adequate safeguards to protect theintegrity of the quasi-judicial process as

it applies to the merit system. Withoutsuch safeguards suspicions of judicial

lobbying, justified or not, are likely tooccur.

Training for managers in personnel management,the administration of union contracts and

Civil Service procedures is inadequate. Ifmanagers are to make sound personnel decisions,appropriate training must be provided. Asmoothly functioning Civil Service systemrequires enlightened managers with a firm

knowledge of the rules and practices govern-ing personnel action and, in particular. themerit system.

The present process for selection of theCivil Service Board has resulted in a

membership (perceived, if not in fact)partial to employee viewpoints in theappeals process. This perceived bias dis-

courages city administrators from takingnecessary disciplinary action. Manymanagers work around unproductive employees

to avoid the Civil Service hearing processand others hide behind this as an excuse

for poor management.

The election of Civil Service Board members

presents a problem since these races are

not of general interest to the electorate.

Due to inadequate media coverage of theseraces, citizens do not have readily avail-

able information regarding the powers andresponsibilities of the Civil Service Boardand the qualifications of the candidate$.This permits disproportion~te influence

in these elections by special interestgroups.

Existing grievance and appeals proceduresare adequate for providing employee pro-

tection. However, the fact that multipleavenues and layers of appeal are open tosome employees can cause delays in resolv-

ing grievances. This may deter managersfrom initiating action against employees.

The present system of compensation is in-sufficient to distinguish betWeen satis-

factory and clearly superior employees.Employees do not have monetary incentivesto do outstanding work.

The probationary period is a part of theemployee selection process. Much of thisperiod must be utilized for orientation

and for training in job skills. Sixmonths is not a long enough time for

managers to evaluate some new employees.

After the probationary p~riod, managementhas virtually DO tools for dealing withemployees who conform to most of the

rules but are nonproductive. The presenceof even a few unproductive employees is

demoralizing to the far greater numbersof hard working conscientious employees.

A closed civil service system which restricts .~

hiring from outside of government except atthe entry level does not always ensure thatthe best qualified person is selected forthe position. Although promotions fromwithin should be encouraged by employee

development and training programs, outsiders

should be allowed to compete for jobs onthe basis of qualification. True competition :~can result in improved services for taxpayers -

at less cost.

There is little flexibility and no room formanagerial judgment in promotion decisions.

From the qualified applicants, the managershould be able to choose those most capable

of professional growth.

Civil Service Board rule making proceduresare not governed by the Administrative Pro-

cedures Act. Therefore, full public notice,of proposed policy changes is sometimes lacking.~

A randomized listing of entry level candidateswithout test scores gives managers insuffi-cient information to make sound selection

decisions. Furthermore, some managers donot take advantage of the full range ofoptions which do now exist.

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RECOMMENDATIONS

The JCeI Study Committee charged with reviewingthe Jacksonville Civil Service system recommendsthat:

1. Adequate employee protection against partisan

political influence on employee selection,promotion, and discipline must be maintained.

2. The functions, structure, and selectionprocess of the Civil Service Board shouldbe modified by action of the Florida

Legislature. A newly created Civil ServiceBoard should be empowered to:

advise the Mayor on all aspects of

personnel managementselect a qualified hearing officer tomake reviews of employee appeals to

disciplinary actions and grievances,anddecide employee appeals to disciplinary-

action and grievances

a. The new non-salaried Board should be

appointed for three year overlappingterma. This Board should be composedof seven members. Three members should

be appointed by the Mayor, three memberselected by city employees covered bycivil service, and the seventh member

should be chosen by the other six,

with all appointments being confirmed

by the City Council.

With the exception of the members

selected by employees, no members ofthe Civil Service Board should be

employed by the City of Jacksonville orconnected with the city administration.

Each ye.armembers of the Board shouldselect a chairman from their group.

The City Council should be empowered toremove members of the Board for cause

under due process of law. Selection of a

replacement should be made in the samemanner as the original appointment forthe remainder of the term.

To bring about these changes in an

orderly manner, one of two routes couldbe followed:

(1) The newly elected m=mbers of theCivil Service Board (seats I, 3

5, and 7) should hold office untilthe expiration of their terms 1~1983. In 1981, seats 2, 4, and 6

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should be elected for two yearterms only. In 1983 the new non-

salaried Board should be appointed,as describea above,

or

(2) Al1 elected Civil Service Board

members should complete their termsof office in 1981. In 1981 thenew non-salaried Board should be

appointed as described above.

b. Since the Civil Service Board would continue

to function in a quasi-judicial capacity,

any attempts to influence or lobby theBoard members should be designated asfelonies, punishable under the law.

c. The Civil Service Board should select a

professional hearing officer from a listof qualified persons submitted by theAmerican Association of Arbitration or the

Division of Administrative Hearings in thestate of Florida. The hearing officer shouldrepresent the public interest by initiatinga timely review of appeals resulting from

alleged adverse employer action.

During such review both the appealing

employee and the appointing authorityshould have the right to be heard

publicly, to be represented by a personof his choice and to present evidentiaryfacts. Technical rules of evidence should

not apply at such a hearing. In conductingthe administrative hearing, the hearingofficer should have the power to administeroaths, issue subpoenas, compel theproduction of books, papers and otherdocuments and receive evidence. Administra-

tive procedures should follow those as

set by Florida statutes. The hearingofficer should present his order offindings of fact and conclusions of lawto the Civil Service Board.

d. The Civil Service Board may alter the

conclusions reached by the hearing officerbut may not reject or modify the findings

of fact or reopen the hearing. The Boardshould have the responsibility of issuinga penalty consistent with the findings offact and conclusions of law. The Boardshould transmit the order on each case to

the Mayor.

3. A strengthenedPersonnel Department, directlyaccountable to the Mayor, should be responsible

for the develQpment and implementation of

personnel policies, including the executive andlegislative functions currently assigned to theCivil Service Board. The department should be

staffed by professionals in personnel management.

The Personnel Department should assume the

duties of job classification and testcertification as now performed by the CivilService Board.

a.

b. Full notice of proposed rule changes should

be published with a public hearing heldprior to adoption by the Personnel Department.

The Personnel Department should be mandated

by the Mayor to provide a systematic planof training for managers in personnel

management, the administration of unioncontracts, and civil service procedures.. The

training program should be designed to make

managers aware of the full range of optionsavailable to them in employee relations.

c.

d. The City Council should provide adequatefunding of the Personnel Department to

allow for its expanded responsibilitiesin personnel management and for theadditional managerial training.

e. The Personnel Department in cooperation

with individual departments shouldestablish productivity quality standardsfor all jobs. By this means an individ-ual's performance can be obje~tivelyevaluated annually and appropriatelyrewarded.

f. A study should be made by an outsidemanagement consulting firm to determine

methods of evaluating the performance ofappropriate groups of employees (i.e.,divisions, sections) and of rewarding

meritorious performance by these groupsto provide incentives for outstanding

efficiency, quality, and overallproductivity. Such rewards mightinclude one time bonuses, extra

vacation time or similar grants.

4. The Mayor should be giv~n sufficient authorityover personnel to achieve high levels of

productivity from employees.

f~!

a. Policy making and senior management

positions should continue to be exemptfrom the Civil Service system and under

the direct control of the Mayor.

b. A review of personnel should be underta~en

to determine if there are specific addition-al positions which should be removed frOQthe Civil Service system.

5. Management should be given greater discretion

in the selection and reward of employees inorder to assure a high productive work force.

a. The system of employee selection shouldbe modified to supply managers with

more informa.tion about the candidates'abilities as demonstrated by testscores. The random listing of-applicantsshould be replaced by groupings of wellqualified, qualified and minimallyqualified applicants.

j!

i

b. Greater flexibility should be givenmanagers in promotion decisions. The'rule of one' should be abolished.

Management should be able to choose

from those who have successfully pass-ed the test for promotion. j

c. The probationarY period fer entry levelemployees and promotions should be

extended to one year and managersshould be encouraged to make full useof this time for employee evaluation.

d. Vacancies in positions above the entry

level should be open to all candidatesboth inside and outside of local

government. Consideration of candidates

from within the department, other

sections of local government, and thoseoutside government should occur

simultaneously.

e. The use of a fixed number of seniority

points and service points in promotiondecisions should be abolished. However,

managers should consider length of

service as a factor in promotiondecisions.

10

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BACKGROUND INFORMATION

THE HISTORY OF CIVIL SERVICEIN JACKSONVILLE

Prior to consolidation there were two civil

service boards in Jacksnville: a county

board and a city board. The JacksonvilleCivil Service Board was established in 1935.

It consisted of three appointed members. TheDuval County Civil Service Board was estab-lished in 1943 and consisted of five elected

members. In 1965 the F1Qrida Legislature.amended these statutes and made the Jackson-

ville Civil Service Board a five person

elec~ed body. Both the city and countyboards had duties which included the develop-

ment of personnel policies, the administrationof personnel policies and the adjudication of

appeals resulting from disciplinary actionor grievances.

Pr~or to consolidation the proposed charter f~rJack50nvi1le's new govetTIment included consider-

able changes in the personnel and civil servicefunctions. The Personnel Department wa.c;to be

placed as a direct operating department underthe elected Mayor with full responsibility foradministering the personnel and civil service

system. Policies were to be developed by acivil service law to be passed by the.CityCouncil. The Civil Service Board, an appointed

board, was to function as an appeals boardonly, holding hearings on employee dismissalsand infringement of employee rights. TheBoard was to be appointed by the City Councilwho would receive nominations from citizen

jrganizations such as the Chamber of Commerce, theCivic Roundtable, the Duval Medical Society, the

Central Labor Organization and elected officials.

The Florida Legislature changed some of these

provisions before the consolidation legislationwas passed. It made the Civil Service Board an

elected board and gave it power to administerand determine personnel policies as well as theappeals function.

THE CIVIL SERVICE BOARD AS ITCURRENTLYEXISTS IN JACKSONVILLE

The Civil Service Board is currently made up of

seven members, elected at large in partisan

elections for four year terms. Members receivea salary of $7,200 per year. The budget ofthe Civil Service Board is $171,000. It is

funded entirely by the City including thesalaries of board members and the salaries of

the staff (five secretaries).

Regular open board meetings are held twice amonth on Thursdays at 7:00 p.m. Classification

Committee meetings are held every other Wednes-day at 10:00 a.m. Hearings are held two orthree nights each week. The Rules Committeemeets as required.

The City charter charges the Civil Service Boardwith the responsibility for developing and

fostering the personnel policy of the consoli-

dated government. The Board approves and adopt3a job classification plan and it provides apromotional career system by competitiveexaminations. It adopts its own rules and

regulations and hears appeals on dis~iplinaryactions and grievances by employees.

PERSONNEL FUNCTIONSLOCAL GOVERNMENT

IN JACKSONVILLE'S

Personnel functions in Jacksonville's local

government are assigned to a number of differentoffices, departments, and agencies. Their roles

are described below in general terms:

The Mayor: Under the Consolidated charter,

the Mayor is the chief executive and adIrinis-trative officer, responsible for the conductof the executive and administrative branch of

consolidated government. He has the power toappoint all department directors including thedirector of personnel. He is responsible for

the personnel function of government.

Since consolidation, two additional offices

under the Mayor have been created to dealwith certain aspects of personnel functioning.

The Affirmative Action Office - Wasestablished to monitor affirmative

action progress in the City of Jackson-ville in accordance with the City'saffirmative action ordinance and

guidelines of the Equal EmploymentOpportunity Commission. It hears and

deals with employee complaints relatedto discrimination on the basis of sex,

race, age or ethnic background.

The Employee Relations Office - Was

"established in 1971 subsequent to the

passage of the collective bargainingreferendum of Jacksonville. It has two

major functions: to negotiate collective

bargaining agreements directly with fiveunions and indirectly with two JEA units

11

and secondly, to administer these

agreements. This office is involved inoverall pay increases as provided inunion contracts. (Prior to the advent

of collective bargaining for public

employees, the Civil Service Board was

responsible for employee compensationissues).

The Community Relations Commission: This

established advisory body concerned with fairtreatment of all citizens has recently been

empowered to conduct appeals relating to casesof discrimination in employment.

The Jacksonville City Council: The elected

legislative body for Jacksonville retains final

power over compensation of city employees. TheCoancil may pass ordinances such as theaffirmative action ordinance which directly

impact on personnel policy. It shares with

the legislature the control of city retirement

policies.

Department Heads are responsible for administer-ing personnel policies and regulations set

forth by the Civil Service Board regardingrecruitment of personnel, promotion and disci-pUnary action.

The Personnel Department itself is responsible

for personnel administration including hiring,employee safety programs, employee development

and training, implementing the personnel policyprescribed by the Civil Service Board, conduct-ing and preparing job specifications and exam-inations.

The General Counsel's Office contributes to per-sonnel functioning by providing an attorney to

advise the Civil Service Board itself and byproviding attorneys to represent management inappeals to disciplinary action.

In some cases, independent agencies, such asthe Hospital Authority, the JacksonvilleElectric Authority and the School Board handle

selected personnel functions in place of thepersonnel department.

COMMITTEE MEMBERSHIP AND WORK

The-JCCI Committee reviewing the civil service

~ystem met weekly from November 1978 throughMay 1979. Data were derived from the resourcepersons who appeared before the committee and

from selected readings in professional liter-ature. Officials in local government were

extremely helpful in providing policies. rulesand current practices. The staff of the Civil

Service Board and the Personnel Department re-sponded promptly and with thoroughness to allcommittee requests for data.

This was a study by citizens representingdifferent points of view and different back-grounds. From the beginning the Management

Team. which served as a steering and planninggroup for the study. took care to ensure thatthe committee itself was balanced. and thatresponsible resource persons represented all

major sides of the issues.

Members of the JCCI Study COI8d.ttee onCivil Service:

*Max Morris. Chairman

*0. B. Cosby. Management Team

*Frank Reneke. Management Team*Suzanne Schnabel. Management TeamAudrey Baker. Management Team*Robert P. T. Young. Management Team

Bernice Butler

*William Caldwell*Dan Castle*Joan Carver

Dan Donaldson

*Honey Danziger*Dottie Dorion

*George Frank*Marvin Ganson*B. A. Grubbs

*Hattie Jackson

*Madelyn Levin*William Mathias

Ginger McCaskillDon Miner

Linda PadgettSteve Romeo

Isabella Sharpe

*Mari TerbruggenDarlene Tye

*Indicates current members of JCCI.

Marian Chambers served as JCCI staff associate

for the committee. with supporting services

from Annette Van Sickle and Essie Simpson.

12

--

REFERENCES

Beaumont, Enid. A Pivotal Point for the Merit A Model Public Personnel Administration Law.Concept. Public AdministrationReview, National Civil Service League, 1970.September/October1974. Peirce, Neal R. State-Local Report/Civil Service

Blueprint for Improvement.Local Government Systems Experience Quiet Revolution. NationalStudy Commissionof Duval County. 1966, Journal, December 1975.pp. 56-61. Rules and Regulations, Civil Service Board.

The Committee for Economic Development..Improv- City of Jacksonville, Florida~~ Mana~ementof the Public Work Force, the Savas, E. S. and Ginsburg. The Civil Service:Challenge to State and Local Government. A Meritless System. The Public Interest,November, 1978. no. 32, Summer 1974.

The JacksonvilleCity Charter. Section 19. Stanley, David T. Merit: The Now and FutureKranz, Harry. Are Merit and Equity Compatible? Thing. Public Administration Review,

Public AdministrationReview, September/October September/October1974.1974. Wurf, Jerry. Merit: Union View. Public

Administ~ationReview, September/October 1974.

RESOURCE PERSONS TO THE COMMITTEE

DoyLe Boree, member Civil Service Board,City of Jacksonville

Bob Brown, Office of the General Counsel,City of Jacksonville

Rose Boyd, Executive Director, NationalCivil Service League

phiL Cope, Office of the General Counsel,City of Jacksonville

Chartie Cr~s, Ad~inistrative Assistant,Department of Health and Bio-environmentalServices, City of Jacksonville

Bitt Davis, City Manager, Atlantic Beach,Florida. (Former Director of EmployeeRelations. )

Joe C. Dekte, member, Civil Service Board,City of Jacksonville

Raymond Duncan, Office of Employee Relations,City of Jacksonville

Picot F'loyd, former City Manager, Clearwater,Florida

James Fortenberry, former Director of Adminis-tration, Jacksonville Electric Authority

HaroLd Gibson, member Civil Service Board,City of Jacksonville

Jim Harris, Administrative Assistant, DepaTtmentof Central Services, City of Jacksonville

Gary Keys, President~Lnternational Association

of Firefighters t !.oca 1 122, City of Jacksonville

John Netson, Undersheriff, City of JacksonvilleLincoln Onfray, Union Representative, AFSCME,

University HospitalJohn Pialorsi> P~esident, Fraternal Order of

~f Police, Lodge 530Frank Reneke, Division Chief, Division of Data

Processing, City of Jacksonville

Andy Sabol, Chief, Division of Employee Relations,Jacksonville Electric Authority

Normcm Sh.a:rpless, Director, Department ofPersonnel, City of Jacksonville

Jim SterJa:l't, AdGlinistrativeAssistant, DepaJ:t-ment of Health and Bio-environmental Services,

City of JacksonvilleHans Tanzler, Sr., former Mayor of Jacksonville

James Taylor, Vice-President, Marketing Division,Barnett Bank of Jacksonville

Thomas Todd, Director of Personnel, UniversityHospital, Jacksonville

Herb Undel"vJood, former aide to Mayor Tanzler,City of Jacksonville

John Van Ness, Director, Department of Housingand Urban Developmeut, City of Jacksonville

Captain John Waters, Director, Department ofPublic Safety, City of Jacksonville

13

~

ABOUT THE JACKSONVILLE COMMUNITY COUNCIL, INC. "

The Jacksonville Community Council, Inc. is anon-profit broad based citizen organizatiop

chartered in 1975. JCCI represent~ a merger(Ifthree former community groups:

JCGI functions primarily through the volunteercitizen study committee process:

The Community Planning CouncilThe Commission on Goals and Priorities

for Human Services

Delegates to the Jacksonville CommunityPlanning Conference at Amelia Island

A Program Committee from the JCCI member-

ship recommends issues of community interest.

The JCCI Board of Managers approves theissues of study for the year.

Its goals are:

Study committee ch:lirpersons and managementteam are selected.

To build citizen competence and awareness

in effectively participating in communityaffairs.

Study Committee participants are recruited

from JCCI membership and the community.

To strengthen and improve the capabilityof community institutions to serve citizens

~f the community.

The Study Co~aittee obtains a data base

by means of regular meetings with respon-sible, knowledgeable resource persons,and staff research.

. To forecast emerging trends and opportunities

that will impact the quality of communitylife.

When the fact finding phase is completed,the committee reaches conclusions and

makes recommendations as part of thefinal report.

To act as a catalyst for bringing togetherdecision-makers.

The report of the Study Committee is re-leased to the public after consideration

and approval by the Board of Managers.Jccr is funded by:

The United Way of Jacksonville

The City of Jacksonville

Gifts from private corporationsGrants for specific research and

projects

evaluation

JCCI members work to implement therecommendations of the report by communica-ting their findings to appropriate public

officials and the community at large..

BOARD OF MANAGERS

YankD. Coble.Jr. .........Robert D. Davis ............Joan Carver ................GeorgeCorrick .............

PresidentPresident-ElectSecretaryTreasurer

Eleanor AshbyJacquelyn BatesJohn BryanJ. J. DanielVeraDavis

Albert ErnestHowardGreensteinDavid HicksKenJohnsonDaniel L. Lauray

Flo rJel1 OzellRobert SchellenbergSuzanne SchnabelRobert T. ShircliffEddie Mae Steward

14

..

::

James H. AbernathyHenry AdamsRobert H. Adamscary AdlerFred Aldridge

jo AlexanderBob AlligoodEleanor Ashby

James AtkinsBarbara BaldRonald J. Bannister

W. Ray BarbeeJohn BarbourGerald Bartels

Judy BatchelderJacquelyn BatesC. Ronald BeltonLuann BennettJames V. E. Bent

Stephen BerryW. O. Birchfield

}1argaret BlackSusan H. Black

James R. Boddie, Jr.Arthur H. BolteForrest F. BooneJames L. Borland

John BowdenBruce Bower

Hayne BowersFrederick W. Bowman

~~ry-Louise BoyerLew BrantleyAlexander BrestClanzel Brown

John C. Bryan

J. Shepard Bryan, Jr.Cecilia A. Bryant

Ezekiel BryantJ. D. Buchanan, Jr.John BunkerJames W. Burke

J. W. Burnette

Johnnie Lee Byrd

John F. ByrneWilliam H. Caldwell

Betty CarleyJoe CarlucciDeloris R. Carn

Tom CarpenterDale Carson

Ulys~es B. CarterWilliam CarterJoan CarverRobert Carver

R. Daniel Castle

Gene Center

Frank Cerveny

Yank CobleCorine W. Cole

Eddie Collins, Jr.Cecil W. Cone

Daniel CookWilliam CookGenie Cooke

George CorrickO. B. CosbyRichard CoveyNancie CrabbL. E. Crittenden

William J. Crossen

Joseph CullenGerald DakeHoward L. DaleJ. J. Daniel

Lee Daniel, Jr.James E. DavisKevin L. DavisRobert DavisVera Davis

Walter Dickinson

Honey DonzigerDottie DorionWalter Dorman

Paul C. DoyleVarina M. Druce

Ruby R. DuBoseLawrence J. DuBow

Connie EdgarKen Eilermann

Albert Ernest

Shirley EtheridgeRoosevelt EvansJimmie FantDrema FarmerJames S. FarrRichard G. Fenn

Emmett Ferguson

Ronnie FergusonGeorge R. FisherSusan FisherRobert Flowers

Joe ForsheeTillie Fowler

Ginger FraileyEllen Frank

George A. FrankMoses Freeman, Jr.Juanita L. Fre're

Frank Friedman, Jr.

George Gable, Jr.John F. Gaillard

Marvin Ganson

Sallie Garlington

Judy Gefter

Courtney L. George

JCCI MEMBERSHIP

Margaret GibbsHarold Gibson

Jim GilmoreA. E. GirardeauJames A. Gloster

Jake M. GodboldHerbert GoldGerald GoldsmithLois Graessle

AJ.ice Grant

Cynthia Carey-GrantMonty O. GreeneHoward GreensteinAnne GrimesRichard G. GroffB. A. Grubbs

Ginger Guye tteAJ.ice R. Hadwin

Mattox HairPat Hannan

Major Harding

George HarmonDavid HarrellWilliam Harrell

Rosanne HartwellPreston Haskell

Tom HealyJames HenryDavid Hicks

Marvin Hill, Jr.Helen HoekengaR. B. Holmes

Wendell Holmes

Betty HolzendorfElla Hornsby

Homer HumphriesJ. Earl HuntleyRodney L~ Hurs tKitty InmanAlberta JacksonDavid B. JacksonHattie R. JacksonJesse A. JacksonWilliam Jackson

Marilyn JacobsJudy JacobsonIsaiah JamesKenneth L. Johnson

William L. JohnsonCharlene JonesSilas E. Jones

Morton Kesler

Charles E. KingIra KogerDaniel KossoffJulie H. Kuntz

Helen Lane

Daniel Lauray

15

William G. Lee, Jr.Melinda J. LeightyMadelyn LeviuEarl LewisJohn Lewis

Max LongGeorge LongworthJean Ludlow

Royce Lyles

Wilford C. Lyon, Jr.Lacy Mahon

Bruce ManningRichard C. MartinHugh Maston, Jr.

William S. Mathias, Jr.Meltonia MayDonald McClure

Jane McCullaghJames T. McGihonyAnne G. McIntosh

Rudolph McKissickWilliam C. Merwin

Joseph F. MikulasBobbie-Sue MillerGene Miller

Doug MilneTeala Milton

John P. Minahan

John MonskyHax K. Morris

Linda Moseley

Michael J. MoyE. Ronal MuddRod M. Nicol

Maria 0'Hearn

Michael S. 0' LearyJames M. OlsenPrime OsbornFlo Nell OzellSteve PajcicTed PappasGene Parks

Espie PatrinelyPam Paul

Trinita L. Petersen

Mary Alice Phelan

Brenda PriestlyJack QuaritiusCaroline RademacherAnn Radwan

Christine Rasche

Harry ReaganBobby G. ReidMelvin P. Reid

Mac ReiggerFranklin ReinstineDel Revels

Robert L. Richard

James C. Rinaman

Lynwood RobertsAndrew RobinsonAnne Ross

Johnny Sanders

Herbert SangFrank R. Satchel

Bob SchellenbergGert Schmidt

Harry SchnabelSuzanne SchnabelFred SchultzIsabelle Sears

Fred Seely

Bettye SessionsBarbara SharpSandra L. Sheppard

R. T. Shircliff

Mary Lou ShortFrances SimmonsKennethM. SmithBette J. SoldwedelLeonard SpearmanMary SpuhleI"John Stafford, Jr.Martin SteinRobert A. SternEddie Mae StewardKa thryn StrayerJohn J. SulikI. M. SulzbacherWilliam SulzbachecMarcus TamplinHans G. Tanzlet'

C. Chadwick TaylorMari TerbrueggenRobert H. Threlkel

James H. TobinArnold TrittBarbara Twine

Ashley VerlanderB. J. Walker

Larr¥ J. WeasThomas E. WeaverAl WellsJim WellsDick Weston-JonesCoby R. WhiteMargaret WiegandIsaiah Williams

Walter Williams, Jr.Courtenay l-1ilso[\Hugh WilsonStephen R. Wis~

Betty WoodWayne WoodJulie WoodruH

Benjamin WygalClaude YatesR. P. T. YoungA. P. ZechellaBarbara Zimmerman