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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