HEARING BEFORE THE COMMITTEE ON POST OFFICE AND CIVIL SERVICE UNITED STATES SENATE NINETY THIRD CONGRESS FIRST SESSION ON S. 2022 TO PROVIDE INCREASED EMPLOYMENT OPPORTUNITY BY EXECUTIVE AGENCIES OF THE UNITED STATES GOVERNMENT

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP75B00380R000600180001-0
• Release Decision: RIFPUB
• Original Classification: K
• Document Page Count: 156
• Document Creation Date: December 9, 2016
• Document Release Date: November 10, 2000
• Sequence Number: 1
• Publication Date: September 26, 1973
• Content Type: REGULATION

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HEARING
COMMITTEE ON
POST OFFICE AND CIVIL SERVICE
UNITED STATES SENATE
NINETY-THIRD CONGRESS
FIRST SESSION
ON
S. 2022
TO PROVIDE INCREASED EMPLOYMENT OPPORTUNITY BY
EXECUTIVE AGENCIES OF THE UNITED STATES GOVERN-
MENT FOR PERSONS UNABLE TO WORK STANDARD WORK-
ING HOURS, AND FOR OTHER PURPOSES
Printed for the use of the
Committee on Post Office and Civil Service
U.S. GOVERNMENT PRINTING OFFICE
23-2980 WASHINGTON : 1973
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GALE W. MCGEE, Wyoming, Chairman
JENNINGS RANDOLPH, West Virginia HIRAM L. FONG, Hawaii
QUENTIN N. BURDICK, North Dakota TED STEVENS, Alaska
ERNEST F. HOLLINGS, South Carolina HENRY BELLMON, Oklahoma
FRANK E. MOSS, Utah WILLIAM B. SAXBE, Ohio
ROD CaowLI:e, Staff Director
CLYDE S. DUPONT, Minority Counsel
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CONTENTS
Page
Opening statement of Chairman McGee-------------------------------- 1
Text of :
S. 2022 ---------------------------------------------------------- 2
H.R. 9699 ------------------------------------------------------- 57
Departmental reports,:
Civil Service Commission----------------------------------------- 7
Comptroller General---------------------------------------------- 9
Postal Service --------------------------------------------------- 15
Department of Labor--------------------------------------------- 151
ALPHABETICAL LIST OF WITNESSES
Abzug, Hon. Bella, a U.S. Representative from the State of New York____ 53
Fields, Daisy B., chairman of the legislative committee, for Federally
Employed Women, Inc. (FEW) ------------------------------------- 111
Jacobson, Raymond, director, Bureau of Policies and Standards, Civil
Service Commission ------------------------------------------------ 62
Schwartz, Felice, president, Catalyst---------------------------------- 107
Tunney, Hon. John V., a U.S. Senator from the State of California------ 22
Articles by :
Roger Ricklefs, staff reporter of the Wall Street Journal, entitled
"Employes, Employers Both Discover the Joys of Part-Time Posi-
tions" -------------------------------------------------------- 29
Gall F. Bronson, staff reporter of the Wall Street Journal, entitled
"More Well-Educated Women Find Firms Willing To Hire Them
for Less Than Full-Time Employment"-------------------------- 31
International Labor Review, dated April 1972, entitled "Part-Time
Work in the Public Service"------------------------------------ 33
Entitled "The Federal Women's Program," submitted for the record
by Mr. Jacobson ----------------------------------------------- 102
Marjorie M. Silverberg, the Bureaucrat, Fall 1972, entitled "Part-
Time Careers in the Federal Government"----------------------- 117
Marjorie M. Silverberg and Lorraine D. Eyde, entitled "Personnel
Implications of the HEW Professional and Executive Corps ------- 119
Federally Employed Women, Inc. (FEW), Personnel News, Inter-
national Personnel Management Association, entitled "North Caro-
lina State Employees Introduced to `Flexitime' "------------------ 128
Nadine Brozan, from The New York Times, entitled "Making Inroads
Into A Full-Time World"--------------------------------------- 128
HEW Federal Women's Program. May 1973, entitled "Part-Time
Employment, A Manager's Alternative in Staging"________________ 131
Correspondence to:
Senator Tunney from Daisy B. Fields, chairman, legislation commit-
tee, Federally Employed Women, dated April 6, 1973-------------- 27
Chairman McGee from Senator Tunney, dated October 10, 1973, a
reply to opposition to The Flexible Hours Employment Act -------- 48
Chairman McGee from Raymond Jacobson, director, Bureau of Policies
and Standards, U.S. Civil Service Commission, dated October 10,
1973, with enclosures submitting addtional material for the record- 67
Part of correspondence by Daisy B. Fields, Federally Employed Women,
Inc., wth enclosures, dated October 22,1973__________________________ 114
(III)
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Prepared statements: Page
Webber, Clyde M., national president, American Federation of Govern-
ment Employees --------------?----------------------------------
17
Filbey, Francis S., general president, American Postal Workers Union,
AFL-CIO --------------------------------------------------------
20
J. Stanly Lewis, executive vice-president, National Association of
Letter Carriers -------------------------------------------------
147
James J. La Penta, Jr., director, Federal-Public Service Division,
Laborers' International Union of North America------------------
148
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FLEXIBLE HOURS EMPLOYMENT
WEDNESDAY, SEPTEMBER 26, 1973
U.S. SENATE,
COMMITTEE ON POST OFFICE AND CIVIL SERVICE,
Washington, D.C.
The committee met, pursuant to notice, in room 6202, Dirksen Sen-
ate Office Building, Hon. Gale W. McGee (chairman of the commit-
tee) presiding.
Present : Senators Fong and Bellmon.
Staff members present: Richard G. Fuller, associate staff director;
Dan Doherty and John Giannini, professional staff members.
The CHAIRMAN. We will turn now to S. 2022, the bill that is pending
here, introduced by Senator Tunney, and Senator Javits, provides in-
creased employment opportunities in Government for persons unable
to work standard working hours.
This bill, intended to institutionalize flexible hours in Federal em-
ployment, is designed to permit employees, especially women with
schoolchildren, to find meaningful Government employment now de-
nied them because of the prevailing standard working day.
A number of employee organizations are obviously interested in this,
as well as many select groups of individuals currently affected ad-
versely in their judgment by the existing procedures.
Statements will be submitted by the American Federation of Gov-
ernment Employees, and the American Postal Workers Union, so that
we may round out the record. We will also include as part of the record
the views of the Department of Labor,' whose chief advocate of this
measure is out of the country at the moment, and then a statement
from the Postal Service itself. Also a copy of S. 2022, with agency
reports.
[The aforementioned follows:]
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93D CONGRESS
1ST SESSION
S. 2022
Jr xr: 19 (legislative rla}=, JuNr: 18), 1973
Nlr. TLNNET introriuce~l the following hill; which was read twice and referred
to the Committee on Post. Office and Civil Service
A BILL
To provide increased employment opportunity by executive
agencies ti the United States (iovennn'nt for persons unable
to work standard working; hours, and for other purposes.
1 Be it enacted b!t the Senate and House of Representa-
2 fives of the United States of Ameriica in Congress assembled,
:3 That this Act may be cited as the "Flexible Hours Employ-
4 merit Act'.
a SECTION 1. As used in this Act, the term-
6 11) "executive agency" means an executive depart-
7 nwnt. a Government corporation, and an independent
8 estab_ishment, including the United States Postal Serv-
9 ice;
i() (2) "flexible flours employment" means part-time
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1 employment, as for example, four hours per work day or,
2 one, two, three, or four days per workweek, and includes
3 such other arrangements as the Secretary establishes
4 consistent with the policy set forth in section 2 (a) ; and
5 (3) "Secretary" means the Secretary of Labor.
6 SEc. 2. (a) It is the policy of the United States Govern-
7 went that, unless adjudged impossible by the Secretary, at
8 least 2 per centum of the positions at each and all levels in
9 all executive agencies shall be available on a flexible hours
10 employment basis for persons who cannot work or do not
11 desire to work full time within one year after the date of en-
12 actment of this Act. Not later than two years after the date of
13 enactment of this Act, 4 per centum of such positions shall be
14 available for such persons. Not later than three years after the
15 enactment of this Act, 6 per centum of such positions shall be
16 available for such persons. Not later than four years after the
17 enactment of this Act, 8 per centum of such positions shall be
18 available for such persons. Not later than five years after the
19 date of enactment of this Act, 10 per centum of such positions
20 shall be available for such persons.
21 (b) Each executive agency shall adopt and maintain
22 procedures, continuously conduct activities and projects, and
23 undertake such other efforts as may be appropriate to carry
24 out the policy of subsection (a) of this section. The Secretary
25 shall promptly formulate and implement and thereafter super-
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1 vise a program to assist executive agencies in carrying out
2 such policy.
3 (c) Each executive agency shall report quarterly to the
4 Sccretary on the procedures, activities, projects, and other
5 efforts, undertaken to carry out the policy of subsection (a)
6 of this section. The quarterly reports shall contain documenta-
7 tion concerning the extent to which the employment require-
8 meats of subsection (a) have been fulfilled and an explana-
9 tion of any impediments to their fulfillment and of measures
10 undertakers to remove these impediments.
11 (d) The Secretary shall report annually to the Con-
12 gross on the procedures, activities, projects, and other ef-
13 forts undertaken to carry out the policy of subsection (a) .
14 The annual reports shall contain documentation concerning
15 the extent to which the employment requirements of sub-
16 section (a) have been fulfilled and an explanation of any
1.7 impediments to their fulfillment and of measures undertaken
18 to remove these impediments.
19 4EC. 3. (a) The Secretary shall carry out all his or
20 11er functions relating to the welfare of wage and salary
21 earners through the Employment Standards Administration
22 of the Department of Labor, or any administration of the
23 Department of Labor that may, after the effective dale of
24 this At, be charged with responsibilities similar to those
25 of the Employment Standards Administration, including-
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1 (1) the conduct of research and experimentation
2 projects and any other activities designed to promote,
3 in public and private employment, the advancement of
4 opportunities for persons who are unable or who do not
5 desire to work standard working hours;
6 (2) the promotion and supervision of programs for
7 flexible hours employment in the executive agencies;
8 and
(3) the encouragement of adoption of flexible hours
10 employment practices by all public and private em-
11 ployers.
12 (b) The Secretary shall carry out all of the functions
13 of this Act through the Employment Standards Adminis-
14 tration of the Department of Labor, or any administration
15 of the Department of Labor that may, after the effective
16 date of this Act, be charged with responsibilities sunilar to
17 those of the Employment Standards Administration.
18 SEC. 4. No person who is otherwise qualified for full-
19 time Federal employment shall be required to accept flexible
20 hour employment as a, condition of new or continued cmn-
21 ployment.
22 SEC. 5. All. persons employed in flexible hours employ-
23 meat positions pursuant to the policy established by section
24 2 (a) of this Act shall receive, on a pro rata basis, all benefits
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1 normally available to full-time employees of all executive agen-
t ties in similar position orgrade.
3 Sit . (i. No executive agency subject to the provisions of
4 this Act shall, for the purpose of determining that agencies
5 persomne] ceiling requirement, count any employee employed
6 on a flexible hours employment basis other than on a pro rata
7 basis according to the percentage of hours such employee
8 works in each forty-hour workweek.
9 SN ice. 7. No person employed as an expert or consultant
10 pursuant to section 3109 of title 5, United States Code, and
11 no person who is employed for more than twenty hours in any
12 forty-hour workweek by any employer other than an executive
13 agency may be counted for the purpose of determining oompli-
14 once with the policy established in section 2 (a) of this Act.
15 SEC. 8. The re are authorized to be appropriated such sums
16 as may be necessary to carry out the purposes of this Act.
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UNITED STATES CIVIL SERVICE COMMISSION
WASHINGTON, D.C. 20415
Honorable Gale W. McGee
Chairman
Committee on Post Office
and Civil Service
United States Senate
This is in further reply to your request for the views of the Civil
Service Commission on S. 2022, a bill "To provide increased employment
opportunity by executive agencies of the United States Government for
persons unable to work standard working hours, and for other purposes".
While we agree with the general purpose of creating as many part-time em-
ployment opportunities. as possible, the Commission is opposed to this bill.
It is our view that legislation to accomplish the basic objective of
the proposal is neither necessary nor desirable. There is now available
administrative flexibility that enables Federal executive agencies to
employ workers on a part-time basis. This flexibility has been used by
agencies for many years to provide employment opportunities for those
workers unable to work full-time and also to carry out essential functions
and workload demands that lend themselves to accomplishment by part-time
workers. For example, the Department of Health, Education, and Welfare
employs about 2,300 part-time workers and the Department of Agriculture
has about 2,100 employees in this same category. The Veterans Adminis-
tration has some 11,500 part-time workers.
In addition to the fact that legislation is not necessary, we object
to the proposal because it would require that a fixed percentage of
positions at each and all levels in all executive agencies be set aside
for part-time work. This is impractical and would produce many problems.
The requirement does not take account of the amount and type of work to
be done and would be imposed whether or not such work could best be
accomplished, by part-time employees. In effect, the bill would severely
impair an agency head's ability to manage.
The bill would require that some jobs now filled on a full-time basis
be converted eventually to part-time. This would be more costly because
of additional overhead expenses and would result in inefficient opera-
tions in some work situations. We seriously question whether these
undesirable, and unnecessary results are in the public interest.
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The proposed employment system also ignores the fact that large blocks
of Federal jobs do not lend themselves to being filled on a part-time
basis. By uay of example, these would include:
- most supervisory and managerial positions
- jobs that require continuity
- jobs for which training costs are high and could be prohibitive
for part-time employment
- those requiring frequent or extensive travel
- most investigative positions.
Labor market conditions, and fluctuations in labor market conditions
completely beyond the control of the Federal government, would in our
judgment make it impossible to hire enough well qualified employees
in some types of jobs to meet the employment requirements of the bill.
Examples of these are:
- many blue collar and trades positions, especially in areas of
highly concentrated blue collar employment
- jobs such as Air Traffic Controller, Border Patrol Officer, Park
Ranger, and Forester which require specialized experience not
readily found among candidates, willing to work part-time.
We object also to'that feature of the bill which designates the Secretary
of Labor as the official responsible for its administration. The Civil
Service Commission has general responsibility for employment policies
and programs within the Federal government. To the extent that legis-
lation is needed in this program area, and it is not in this instance,
the Civil Service Commission should be charged with administrative
responsibility.
In conclusion, it should be noted that the Commission encourages
agencies to use a variety of techniques, including part-time work
assigments, to provide employment for women and men whose family or other
personal responsibilities do not permit full-time employment. While the
Commission agrees with the general purpose of the bill as stated, we
cannot agree with the establishment of this type of arbitrary numerical
employment standard.
The Office of Management and Budget advises that from the standpoint
of the administration's program there is no objection to the submission
of this report.
Sincerely yours,
S/Robert E. Hampton
Chairman
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COMPTROLLER GENERAL OF THE UNITED STATES
WASHINGTON, D.C. 20540
The Honorable Gale W. McGee, Chairman
Committee on Post Office and Civil Service
United States Senate
We refer to your letter of June 29, 1973, requesting our views and
comments on S. 2022, 93d Congress, which, if enacted, would provide in-
creased employment opportunity within executive agencies of the United
States Government for persons unable or not wishing to work standard
working hours and would be cited as the "Flexible Hours Employment Act."
Section 1(1) of the bill defines "executive agency" as an
executive department, a Government corporation and an independent estab-
lishment (including the United States Postal Service) apparently in
accordance with those terms as set forth in sections 101, 103 and 104 of
title 5, United States Code. Presumably the military departments as
defined in section 102, supra, are also intended to be encompassed
within the scope of the bill. To remove any doubt in this respect you
may wish to specifically include a military department in the term
"executive agency" as defined in section 1(1) of the bill.
Section 2(a) of the bill proposes as a policy that all executive
agencies shall make positions available at each and all levels on a
flexible hours or part-time employment basis for persons who cannot or
do not desire to work full time "unless adjudged impossible" by the
Secretary of Labor. The bill requires that these positions be made
available in annual increments of at least 2 per centum of positions at
each and all levels starting one year after enactment until 10 per centum
of such positions shall have been made available for flexible hours
employment not later than 5 years after the date of enactment.
Responsibility for monitoring achievement of part-time employment
goals required by the bill would be assigned to the Secretary of Labor.
Each agency would report quarterly to the Secretary on progress made on
the program and the Secretary would be required to report annually to
Congress on efforts undertaken to meet the percentage goals and reasons
for failure to do so where pertinent.
The existing law governing hours of work for Government employees
is contained in section 6101 of title 5, U.S.C., and reads in pertinent
part as follows:
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"9 610]. Basic 4Q-hour workweek;work schedules; regulations
"(a)(1) For the purpose of this subsection, 'employee'
includes an individual employed by the government of the
District of Columbia, but does not include an employee or
individual excluded from the definition of employee in
section 5541(2) of this title.
"(2) The head of each Executive agency, military
department, and of the government of the District of Columbia
shall-
"(A) establish a basic administrative workweek of
40 hours for each full-time employee in his organization; and
"(B) require that the hour: of work within that work-
week be performed within a period of not more than 6 of
any 7 consecutive days.
"(3) Except when the head of an Executive agency, a
military department, or of the government of the District of
Columbia determines that his organization would be seriously
handicapped in carrying out its functions or that costs would
be substantially increased, he shall provide, with respect to
each employee in his organization, that-
"(A) assignments to tours o "duty are scheduled
in advance over periods of not less than 1 week;
"(B) the basic 40-hour workweek is scheduled on
5 days, Monday through Friday when ?ossible, and the
2 days outside the basic workweek are consecutive;
"(C) the working hours in each day in the basic
workweek are the sane;
"(D) the basic nonovertime workday may not exceed
8 hours,
"(c) The Civil Service Commission may prescribe
regulations, subject to the approval of the President, neces-
sary for the administration of this section insofar as this
section affects employees in or under an Executive agency."
The above-quoted statute provides for a 40-hour administrative
workweek, consisting of 5 eight-hour days, normally running from Monday
through Friday. However, the law does not make it a mandatory
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requirement that every employee work 40 hours per week. The Civil Service
Commission (CSC) in implementing the aforementioned statute has made pro-
visions for a workweek of less than 40 hours for part-time employees by
defining "Regularly Scheduled Administrative Workweek" in 5 CFR 610.102(b)
as follows:
"(b) 'Regularly scheduled administrative workweek,' for
full-time employees, means the period within an administrative
workweek, established. in accordance with ? 610.111, within
which these employees are required to be on duty regularly.
For part-time employees, it means the officially prescribed
days and hours within an administrative workweek during which
these employees are required to be on duty regularly."
It is the. policy of the Federal Government to encourage appropriate
part-time employment as expressed in section B-4, Appendix B, Chapter 312,
of the Federal Personnel Manual:
"B-4. FOSTERING APPROPRIATE PART-TIME EMPLOYMENT
"The Office of Management and Budget and the Civil Ser-
vice Commission have strongly urged that Governmet.t agencies
make employment available to women who can work only part-
time; to the physically handicapped, some of whom cannot work
full time; to persons who want to work only part-time because
of their desire to continue their education; and to other
appropriate categories. If executive agencies wish to move
along similar, lines, they will find the Office of Management
and Budget administers the ceilings in a way that permits and
encourages the kind of flexibility that results in improved
efficiency and productivity."
We have no information as to the desirability of assigning to the
Secretary of Labor the responsibility for formulating, implementing
and supervising a program to assist executive agencies in carrying out
the flexible hours employment policy as required by section 2. How-
ever, in view of the statutory authority of the CSC to regulate hours
of work cited above it would appear that the responsibilities
assigned to the Secretary of Labor by the bill may duplicate or conflict
with those of the CSC. Also for consideration are the broad authorities
delegated to the CSC to administer the Civil Service System in such areas
as (1) employment and retention of employees under chapter 31 of title 5,
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U.S.C., and Executive orders implementing these statutes; and (2)
examination, selection and placement of employees under chapter 33 of
title 5, supra, and Executive orders implementing these statutes; and
(3) pay and allowances of employees and classification of positions
under chapter 51 of title 5, supra. In light of authority already
exercised by the CSC, it would seem more appropriate to place the
responsibilities imposed by the bill in the CSC or jointly in the CSC
and the Secretary of Labor.
Section 3 of the bill assigns responsibility for administration of
its provisions specifically to the Employment Str:ud.rds Acli,inistrstion
or a similar organizational unit of the Department of Labor. In addition
to the progrem for designating certain percentages of Government posi-,
tions as part: time the bill also requires the Employment Standards
Administration to develop programs to expand opportunities for part-time
employment ire private industry. With respect to this provision we suggest
that such a statutory designation may unduly limit administrative flex-
ibility and that the determination as to the organizational unit best
suited to execute the program should be left to the judgment of the
Secretary.
Section 5 of the bill provides that employees in flexible hours
employment positions shall receive on a pro rata basis all benefits
normally available to full-time employees of executive agencies in
similar position and grade." However, the bill does not specify with
particularity just what these benefits are, and neither does it specif-
ically vest authority in any designated agency to regulate such benefits.
Under existing law the CSC has been delegated the responsibility of
regulating in most fringe benefit areas including authority to exclude
from such benefits certain classes of employees. For example, specific
authority has, been delegated to the CSC to regulate such entitlements
as leave in 5 U.S.C. 6311; retirement, 5 U.S.C. 8347; life insurance,
5 U.S.C. 8716; health insurance, 5 U.S.C. 8913; severance pay, 5 U.S.C.
5595 as implemented by Executive Order 11257; and back pay, 5596(c).
Therefore, in order to avoid conflicts in jurisdiction, we suggest the
bill be amended so that the fringe benefits authorized for employees
covered thereunder will be granted under regulations of the CSC or such
other agency as presently has jurisdiction of the particular benefit
involved.
Section 6 of the bill proposes that agencies count an employee
employed in it flexible hours position for purposes of personnel ceiling
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requirements on a pro rata basis according to the percentage of hours
such employee works in each 40-hour workweek. The existing Office of
Management and Budget policy with respect to agency personnel ceiling re-
quirements on counting part-time employees is set forth in sections B-2
and B-3, Appendix B to Chapter 312, Federal Personnel Manual, 1969 edition,
as follows:
"B-2. CEILINGS AS CONTROLS
"a. Two kinds of ceilings are established. These are
(1) full-time permanent employment and (2) total employment.
By substracting (1) from (2) the difference, called a 'derived
ceiling', becomes, in effect, a limitation on the number of
part-time, temporary, and intermittent employees. Since all
ceilings apply to the last day of each fiscal year, June 30,
the agencies have flexibility in applying these ceilings,
within the year, particularly with respect to the
nonfull-time employment.
"b. All employment is subject either to the actual
full-time employment ceiling or to the derived ceiling. All
employees in each category of employment must be included in
the monthly employment reports which ar furnished to the
Congress and which the Committees of t1.c Congress, the
President, and the Office of Management and Budget use to
monitor administration of the ceiling requirements.
"c. Most agencies understand clear:.y how requests for
revisions in employment ceilings must be submitted to the
Office of Management and Budget and what thorough justifica-
tion must be advanced to support an asserted need for addi-
tional employment. (See OMB Grcular A-64 and its revisions.)
Misunderstanding has, however, arisen from time to time with
respect to part-time employment.
"d. For purposes of this discussion, a part-time
employee, regardless of the nature of his or her employment,
is one who works less than 40 hours a week. The employment
may be regular and recurring (loosely referred to as
'permanent'); it may be for a temporary period; or it may be
intermittent in the sense that the person works only when
called in, but it is still the kind of employment which is
subject to the derived ceiling.
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"B-3. CEILING SPACES TO MEET NEEDS FOR PART-TIME EMPLOYEES
"a. The Office of Management and Budget states that
if persons seeking regular, permanent, part-time jobs have
been told that it is impossible to offer this kind of em-
ployment because each position of this kind must be charged
against the full-time permanent ceiling, they have been in-
correctly advised. The first course of action that an
agency should always explore is to determine whether the
assigned total employment ceilings are large enough to ac-
commodate a desired part-time program. Part-time employees
can be hired against vacancies in the 'derived ceiling as well
as against vacancies in the full-time permanent ceiling.
These hirings against vacancies can be carried out without
recourse to the Office of Management and Budget.
"b. If however, the derived ceiling is not high
enough to meet an agency's legitimate needs for part-time
employment, an attempt should be made to accommodate the
part-time employee within the full-time permanent ceiling.
If this accommodation is not possible, an application to
the Office of Management and Budget for the conversion of
spaces from the full-time permanent ceiling to the derived
ceiling to permit splitting full-time jobs 'would normally
receive favorable consideration upon request.' In other words,
the application of the ceiling need not always force an
agency to count a part-time employee as the equivalent of a
full-time: employee or reduce the total men-hours of
employment available to an agency."
We believe that a rigid designation of prescribed percentages of
each and all levels of positions in the executive branch of the Govern-
ment as flexible hours positions would prove to be an administratively
impractical approach to the objective of insuring that professional,
technical, clerical, supervisory and support positions are freely avail-
able to part-ti.ne workers. We note that as of April 30, 1973, there
were 2,732,023 positions in the executive branch of the Government
(Federal Civilian Manpower Statistics, United States Civil Service
Commission, June 1973), of which 2,432,350 were permanent full-time
positions and 129,322 were part-time, regularly scheduled positions.
Since the numbers and grade levels of this magnitude of positions
located in all 50 states and numerous foreign countries is subject to
constant variation we believe it is not feasible to require, as S. 2022
proposes, that at all times a specified percentage of each level of all
positions be designated and set aside for part-time employment.
For LheComptroller General
of the United States
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LAW DEPARTMENT
Washington, DC 20260
Dear Mr. Chairman:
This is in response to your request for the views of the Postal Service
on S. 2022, the proposed "Flexible Hours Employment Act". This bill
would require each executive agency of the United States Government,
including the United States Postal Service, to make an increasing per-
centage of positions available on a part-time basis for persons who
cannot work or do not desire to work full time.
We oppose the application of this bill to the Postal Service, because it
would interfere with collective bargaining between postal management
and organizations of postal employees.
In general, the Postal Reorganization Act patterned labor-management
relations in the Postal Service after those existing in the private sector
of the economy under the National Labor Relations Act. Chapter 12,
title 39, United States Code, provides for the establishment and recog-
nition of bargaining units of postal employees and for the negotiation of
collective-bargaining agreements between these bargaining units and
postal management. Moreover, Congress expressed an intent that
postal collective bargaining should cover the full gamut of issues
negotiated by labor and management in the private sector of the economy.
In its report on the Postal Reorganization Act, the House Committee on
Post Office and Civil Service said:
. . . Rank and file postal employees would, for the first time,
have a statutory right to organize collectively and to bargain
collectively with management on all of those matters -- in-
cluding wages and hours -- which their neighbors in private
industry have long been able to bargain for.
H.R. Rep. No. 91-1104, 91st Cong., 2d Sess. 13-14 (1970).
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The employment of part-time workers has long been a matter for
negotiation in private labor relations, because such workers often
occupy jobs which might otherwise be filled by union members em-
ployed on a permanent basis. Similarly, both postal unions and
postal management have taken aggresive bargaining positions on
what number of part-time postal workers should be hired and what
positions they should fill. The current contract provisions, achieved
as a compro:.ni.se between union and management views, direct that
90% of postal craft employees must be hired on a full-time permanent
basis.
We feel that it would be entirely inconsistent with the legislative
purposes of the Postal Reorganization Act to restrict the scope of
the issue of part-time employment as a subject for collective bar-
gaining in the Postal Service. Although the policies that would be
established by S. 2022 may be commendable, we would oppose their
application to the Postal Service unless a decision is made to make
such policies applicable to employees in the private sector who bar-
gain with their employees. Accordingly, we oppose the enactment
of S. 2022, in its present form, and urge that it be amended so as
to make it inapplicable to the Postal Service.
4e1
Honorable Ga:'e W. McGee
Chairman, Committee on Post
Office and Civil Service
United States Senate
Washington, U.C. 20510
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American Federation of Government Employees
CLYDE M. WEBBER - DENNIS GARRISON DOUGLAS H. KERSHAW
NATIONAL PRESIDENT EXECUTIVE VICE PRESIDENT NATIONAL SE-TREAS.
* * * * * * * * * * * * * * * * * * * * * * * * * * *
NATIONAL HEADQUARTERS
1325 MASSACHUSETTS AVE., N.W.
WASHINGTON, D. C. 20005
(2021 737-8700
STATEMENT OF CLYDE M. WEBBER, NATIONAL PRESIDENT
AMERICAN FEDERATION OF GOVERNMENT EMPLOYEES
BEFORE THE SENATE COMMITTEE ON POST OFFICE AND
CIVIL SERVICE ON S. 2022, A BILL PROVIDING
FOR FLEXIBLE HOURS
September 26,.1973
The American Federation of Government Employees, AFL-CIO, is
vitally interested in providing as much flexibility and opportunity
as possible to all classes of persons to obtain employment. For
this reason, our union looks favorably upon underlying purposes
incorporated in S. 2022, a Bill introduced by Senator Tunney to
provide increased employment opportunity by executive agencies of
the United States government for persons unable to work standard
office hours and for other purposes.
The Federal executive branch already provides part-time
employment under two separate provisions of law. One relates to
basically seasonal employment, such as the summer employment of large
numbers of students who work less than 700 hours a year; the other
is under a provision of law providing for part-time employment of
persons who work less than 40 hours a week. In addition,
flexibility is provided the Federal government in the employment
of part-time employees who are compensated on the basis of work
"when actually employed."
Consequently, in considering S. 2022, our organization believes
it is encumbent to bear in mind existing provisions for flexibility
in providing flexible hours for persons who cannot work normal hours
TO DO FOR ALL THAT WHICH NONE CAN DO FOR HIMSELF
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or whose services are not required by the Federal authorities
during standard hours, days or weeks of employment.
THE PRINCIPLE OF A FLEXIBLE CAREER SERVICE
Despite our endorsing the purposes of providing flexibility
of working hours, we do have reservations about S. 2022 which arise
out of our concern for the career aspects of Federal employment.
We believe that it would be in the interests of all persons who
would be the intended beneficiaries of this Bill that it be amended
so as not to erode the career protections now existing in law.
Your Committee will recall the abuses that existed in the Federal
service from the employment of persons on Temporary Appointments
Pending the Establishment of Registers. We fear that some of the
provisions of this Bill might enable some of the less scrupulous
personnel administrators to resuscitate the system that existed
under the old TAPER program.
However, once an employee has achieved full career status and
is entitled to the full protections of the law, we believe that
situations might. arise where changed conditions in the life of the
career employee justify flexibility. For example, in a Reduction-
In-Force situation, some of the employees would be prepared to go
to a part-time career status, thus accomodating both the pressures
on management and on other employees while the agency adjusted its
work force.
We are
which might
today. The
also concerned with two other provisions in S. 2022
create greater managerial inflexibilities than exist
first is the assignment of enforcement responsibilities
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to the Secretary of Labor, rather than to the Civil Service Commission
which is responsible for the supervision of meat of the other statutes
concerning Federal employees. Rather than providing for efficient
flexibility, this division of responsibility may result in conflicts
of authority. The second is the mandatory requirement that 10 per
cent of the work force be in status of flexible hours of work.
Considering the existence of other part-time employment arrangements,
it is apparent that in some agencies a considerable portion of the
of the work force already is in "flexible" status. To add another
ten per cent to the existing situation would impose a rigid system
based on law, which some agency managements could use to manipulate
the work week and conditions of employment of Federal employees to
their detriment.
Under these conditions, we believe that S. 2022 should be
amended to assure that the desirable flexibility which it affords
is not exploited to deprive career Federal employees of the clear
and firm rights they now have based on statutes for which they have
fought for a long time.
in our belief, the best road to flexibility is the road to
collective bargaining, such as incorporated in S. 351, introduced
by the Chairman of this Committee to provide a statutory basis for
collective bargaining in the Federal Service.
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Honorable Gale W, McGee
Chairman
Committee on Pow: Office and Civil Service
United States Senate
Washington, D. C.
The American Postal Workers Union, AFL-CIO wishes to advise you and,
through you, the members of your honorable committee, of our viewpoint
concerning S. 2022, The Flexible Hours Employment Act introduced by the
Honorable John V. Tunney, United States Senator from California.
We have examined the provisions of this proposed legislation and, while
we are sympathetic with the avowed purposes of the legislation, we strenu-
ouzl- obiecr to that Dart of the legislation which oroooses to include the
U.S. Postal Serv ice within the purview of the Bill. As I am sure you and
the members of your honorable committee know, flexible hours of employment
exist not only in the U.S. Postal Service since its creation, but existed
for many, many years in its predecessor organization, the U.S. Post Office
Department. Both the former U.S. Post Office Department and the present
U.S. Postal Service have had, and continue to have, available flexible hours
of employment which exceed the 10 percent requirement proposed in this legis-
lation and, thus members of your committee may wonder why we object to the
inclusion of the U.S. Postal Service in this piece of legislation.
While it is true that far more than 10 percent of the postal employee
population are employed for less than 8 hours per day or 5 days per week, it
is alsc true that this Union has consistently advocated that more full-time
regular positions should be established by the U.S. Postal Service. The
present Labor Agreement signed by the Postal Unions and the U.S. Postal Ser-
vice on July 20, 1973 spells out a limitation of 7 percent of the total work
force to be known as Casual Employees with a term of employment not to exceed
90 days in any one calendar year, and no minimum or maximum required number
of hours per day. Based on a postal population of approximately 700,000 this
section of our Labor Agreornant alone permits the employment of up to 49,000
such Casual Employees. In addition, another section of our Labor Agreement
permits the U.S. Postal Service to employ in offices of 200 man years or
more up to 10 percent of each post office complcmentof Lull-time regulars,
flexible part-time employees who are part of the permanent work force whose
hours are set at a minimum of 2 hours per day when scheduled for duty, with
2 S44 ~e.a.o-ap9 /I ~r,+.. ~i r. .I~ v !~ ;^~r i^~r nt~l~&y4 1? ~yi ~ ~~6IV f~
i(r 11& l. er.i~Lt ~~ w~~r"., t~ , T.GI . i:r ~ So Ya~mt, A b.w+ ..rF'" eY..:+:. wr
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no limitation as to the total hours per day or days per week. In all other
post offices there is no actual limit on the number of flexible part-time
employees.
Realizing that 65 percent of the postal employees are employed in post
offices of 200 man years or more, this again affords the U.S. Postal Service
an opportunity to make available easily 50,000 or more part-time flexible
positions. We can assure you that the U.S. Postal Service avails itself of
this opportunity.
With this large flexible work force permitted under our Labor Agreement
your honorable committee might again raise the question "Why does our Union
oppose the inclusion of the U.S. Postal Service in this piece of legislation
since should the legislation be adopted, it would merely require the U.S
Postal Service to make available some 70,000 part-time flexible work assign-
ments." We oppose the legislation because it is our considered opinion that
the passage of the Postal Reorganization Act granted unto postal employees'
recognized bargaining units the right to negotiate with the U.S. Postal
Service a labor contract covering wages, hours, fringe benefits and working
conditions. The passage of this legislation would dilute the bargaining
rights granted the Postal Unions under the Postal Reorganization Act in that
we could never negotiate with our employer the elimination of part-time flexi-
bLe work assignments oelow cue scatucory figure proposed in this pending Legis-
lation. We sincerely believe that the determination as to the number of such
part-time flexible positions necessary to properly operate the U.S. Postal
Service should continue to be a matter for negotiations between our employer
and our Union.
For the Committee's information, we wish to advise that we have had a
Long experience with the influx of part-time temporary employees into the
former U.S. Post Office Department wherein it was not uncommon for the former
Post Office Department to have, in addition to the then regular quota of
career part-time employees (which was then a ratio of one to five or 20 per-
cent) from time to time as many as 100,000 additional part-time temporary em-
ployees added to the work force, thus denying to thousands of persons an op-
portunity to gain a full-time career position with the U.S. Post Office Depart-
ment.
In short, Mr. Chairman and Members of the Committee, it is our prayer
that the inclusion of the U.S. Postal Service in this pending legislation
will be stricken from the Bill in order that the promise made in the adoption
of the Postal Reorganization Act that matters of this type would be the sub-
ject of collective bargaining between the Postal Unions and the U.S. Postal
Service without any Congressional floors or ceilings proposed by legislative
action may he kept.
We appreciate this opportunity to express our views to you and to
your honorable committee on this most important matter.
Sine ly yours,
Francis S. Filbey,
General President.
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The CHAIRMAN. John, it is nice to have you here and to applaud
you for your leadership and initiative in focusing attention on this
measure, so proceed as you best see fit.
STATEMENT OF HON. JOHN V. TUNNEY, A U.S. SENATOR FROM THE
STATE OF CALIFORNIA
Senator TUNNEY. Mr. Chairman, thank you very much for giving
me the opportunity to appear today and I deeply appreciate the fact
that you, as chairman of the committee, scheduled hearings on this
legislation on what I know was short notice, and the fact that you
have so many other bills that are before your committee, I realize
how difficult it was to squeeze in this legislation.
I am am very appreciative to you for doing it. I know you are a
hard worker, but I have a feeling you are a glutton for punishment,
and I want to thank you very much for this effort.
I feel that this legislation is very important. This legislation would
make possible more fulfilling working and family lives for thousands
of Americans and help end the discrimination, particularly against
women with children, imposed by the basic pattern of working hours
in our society.
This bill would institutionalize the practice of providing flexible
hours employment opportunities in the Federal Civil Service. As these
flexible hours personnel practices are systematically implemented, the
Federal Government hopefully would serve as a model to be emulated
by private and other public employers.
The prime beneficiaries would be working parents, particularly
working mothers, and men and women approaching retirement age who
still have much to contribute and wain to gradually end full-time
work, rather than abruptly retiring.
Also benefiting would be those pursuing educations, from the high
school through the graduate and professional school levels, and those
temporarily or permanently disabled.
Over the long run, as flexible work scheduling becomes institutional-
ized in our society, I believe it would enhance the quality of the work.-
ing family lives for countless citizens.
The legislation provides that, wherever feasible and after a 5-year
phasein period, 10 percent of all positions at all levels of Federal Civil
Service shall be made available on a "flexible hours" basis. A "flexible;
hours" job is one which provides a permanent, responsible position
with standard civil service protections and prorated fringe benefits,
but which allows people to work hours consistent with their parents;!.
responsibilities, physical limitations, or educational requirements.
The flexible hours concept has been successfully used by Federal
agencies in the past. Unfortunately, these efforts were small in scale;
and administered strictly for the convenience of the agencies involved,
Some local governments have provided flexible hours scheduling with
great success in. such diverse areas as education and welfare administra-
tion. Many employers in the private sector have discovered that struc-
turing working hours to meet certain special needs of their employees
has resulted in benefits to both themselves and their staffs.
An obvious question that one might ask is, "Why require flexible
hours employment by law, when it is already available in some Fed-
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eral agencies?" The answer is that the personnel policymakers in the
Federal Government have taken a far too narrow view of their respon-
sibilities to the American people. Rather than encouraging the use of
creative work-scheduling to enhance the attractiveness of Federal em-
ployment, they have used interpretations and misinterpretations of
the Office of Management and Budget and civil service regulations as
excuses for inaction.
At the conclusion of my testimony, I would like to insert into the
record a letter from Ms. Daisy Fields, chairman of the legislation com-
mittee of a group called Federally Employed Women. This letter ex-
plains in some detail how many Federal agencies have hidden behind
various interpretations of OMB and civil service regulations to assert
the impossibility of stimulating flexible employment opportunities.
The CHAIRMAN. That will be made a part of the record.
Senator TuNNEY. Another reason for requiring that agencies set
aside a proportion of all positions for flexible hour opportunities also
relates to the narrow perspectives of many personnel policymakers in
the Federal Government. These people typically view flexible hours as
a gimmick to be used for the temporary convenience of the agency and
then abandoned whenever it suits the agencies' fancy.
At various times over the last 8 years, the Atomic Energy Commis-
sion and the Departments of Health, Education, and Welfare and of
Housing and Urban Development have implemented and then aban-
doned special programs to employ professionally trained women on a
less-than-full-time basis. Those I have talked with in the Federal Gov-
ernment all agree these programs were successful. Nevertheless, they
were eliminated.
A similar problem prevails with respect to official attitudes toward
grade levels and flexible hours scheduling. S. 2022 calls for provision
of flexible hours opportunities at all grade levels, except in those spe-
cific cases where the Secretary of labor finds such provision infeasible.
This provision was included to offset the demonstrated disposition of
Federal personnel officials to concentrate flexible hour opportunities
in nonprofessional and lower level positions.
I believe it is necessary and important to encourage creative work
scheduling at all levels. The bill recognizes that special difficulties may
arise in certain agencies and at certain levels by encouraging efforts to
eliminate these difficulties while allowing the Secretary to make exemp-
tions where necessary. The burden of proving infeasibility is, however,
where it should be-on the shoulders of employing agencies.
Mr. Chairman, I earlier pointed out the benefits of this bill to work-
ing parents, especially mothers of young children, to civil servants
approaching retirement, to the disabled, and to those who must work
while continuing their education. In addition to expanding work op-
portunities for the millions who fall into these categories, the program-
matic implementation of flexible work scheduling in the Civil Service
would benefit the Federal Government and the American taxpayer.
In the interest of time, I will briefly list and explain the many ways
flexible-hours employment benefits the Government and the taxpayer.
Substantiations and elaboration of these points is provided in the arti-
cles I would like to have inserted in the record at the conclusion of my
testimony.
The CHAIRMAN. They will be inserted in the record.
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Senator TurrrEY. First, by vastly expanding the available quantity
of less-than-full-time positions, the Government's ability to choose
highest quality applicants is significantly increased. Mr. William
Lewis, placement manager for Career Blazers Agency, Inc., a large
New York employment service, reports that he receives "five times as
many responses for a part-time job as for a comparable job full time.
Adele Lewis, president of Career Blazers, has found that, "For many
jobs, the best people on the market are people who want to work part,
time."
It seems self-evident; that as the demand for less-than-full-time jobs
grow-the number of people working part time increased from 7.8
million in 1963 to 12.6 million in 1972-the Federal Government effec-
tively forecloses its access to a significant and highly productive source
of talent if it fails programmatically to promote flexible-hours
scheduling.
Second, there is substantial evidence that less -than-full-time workers
are more efficient and productive than those in comparable full-time
jobs. Testimonials from many employers demonstrate that employee,,;,
working flexible-hours schedules show more enthusiasm for the job?
are less distracted by family and other outside responsibilities, and do
not develop the counterefficient boredom that often comes with stand-
ard hours emp`ioyment.
Third, if this bill were adopted, many highly experienced, expen.
sively trained civil servants approaching their final -years of Govern-
ment service would choose to stay on in a less-than-full-time capacity
rather than retire early.
Similarly, the Government would be able to retain the services of
other experienced employees who, for reasons of new family obliga-
tions, educational needs, or disabilities, must now withdraw from
public service because they can no longer work full time.
Finally, by providing increased employment opportunities to people
continuing their education, the Government gets increased access to
knowledge of new ideas and developments as they evolve in the
various academic disciplines.
It is difficult to put a dollar sign on the total value of these benefits.
Clearly, however, they easily outweigh the relatively minor costs of
administering implementation and oversight of a flexible-hours pro-
gram such as provided in this bill.
Mr. Chairman, you may have, noticed that S. 2022 departs from
conventional procedure in that it assigns administrative and oversight
responsibilities to the Department of Labor, rather than the Civil
Service Commission. This was done at the suggestion of many Federal
employees I talked with who felt that the Civil Service Commission
is a rather narrowly focused, management-oriented agency whose dis-
position would be to resist and frustrate the provisions of this bill.
The Commission's lack of leadership on flexible hours supports this
supposition. The Labor Department, on the other hand, has a solid
record of advocacy on behalf of employee rights, It has shown itself
by its own internal personnel programs to be ready and uniquely able
to insure the success of flexible-hours programs throughout the Fed-
eral Establishment.
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In closing, let me say that flexible-hours scheduling in public
employment is beyond doubt an idea whose time has come. West Ger-
many, France, Finland, and Denmark all have national legislation
providing flexible-hours opportunities in the public service.
In 1963, the President's Commission on the Status of Women recom-
mended that the Federal Government lead the way by establishing a
permanent structure of less-than-full-time job opportunities in Fed-
eral agencies. The Civil Service Commission spoke of the same need
in its booklet "A Point of View." The Department of Labor has also
endorsed the concept in the publication "Calling All Women."
So far, we have had many nice words and very little action from
the executive branch. Whatever problems exist are those of means, not
ends. I sincerely hope this committee will give most thoughtful con-
sideration to S. 2022.
Although it may not be perfect, it is clearly a constructive first step
toward improving the quality of our working and family lives.
The CHAIRMAN. I want to thank you for your efforts on this, Sen-
ator. You strike a very responsive note here on the committee. I think
one thing that would give the committee trouble, leaving out all the
emotional factors at the moment, is the function of the bureaucratic
part, the part concerning the Department of Labor. I understand the
reason for it. You get more receptive climate at the moment there.
I would call into question whether that is necessarily good Govern-
ment structuring to spread the base or diversify the base. I can under-
stand the expediency. We all sense that.
We also have a responsibility, if we can, as we contribute to it, to
try to tighten up our whole administrative infrastructure in terms of
good and efficient administration. I would wonder if it perhaps would
not be better advised if we focus our efforts on trying to modernize
and update and increase the base and philosophy of the Civil Service
Commission. In other words, address to the Commission the problem
of educating, rather than taking on the problem of restructuring the
current procedures to get around a point of view whose time has long
since passed. That would be, I am sure, a serious question that the
committee members will concern themselves with.
Senator TTNNEY. I can understand that, Mr. Chairman. I share
some of your concerns. I feel that it is important that the program
be implemented in a way that is going to make it effective.
It does not do any good to have a program on the books if the agency
that is administering it really is opposed to it and thereby will not
make sure that the various agencies are responsive to the thrust and
the intent of the legislation.
Now, just one or two points in addition. I think it ought to be made
very clear that the individuals who will be working on the flexible-
hours basis, part-time basis, will have all the benefits of career civil
servants. They are not civil servants who are there on a temporary
basis and do not share thereby in the benefits of a career civil service
appointment. I think that that is important, because some people are
wondering whether or not what we are attempting to do is to create a
situation where these part-time workers would not have all the bene-
fits of career civil servants. That is not the intention.
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We want them to have the benefits of career civil servants. We
recognize they will be working part time.
A second aspect of it that I cannot help but feel from my own per-
sonal experience and having had the opportunity as a Senator and
before being a Senator as a Congressman to hire people on a part-
time basis to do specific Jobs for me that my office has benefited tre-
mendously, and my legislative production has increased. I think that
the quality of effort of my office has been improved as a result of
having these part-time employees, and they should not be looked upon
somehow as second-class citizens because they are only working part
time. After all, if you take a look at some of the top executives of our
major industries in the country, really, they work part time.
The C ms AN. They are paid full time.
Senator TUNNEY. They are paid full time and work part time. They
make the final decisions. Sometimes these final decisions can be made
working 1 or 2 days a week, if they have proper staffing below them.
I do not want people to think that what we are attempting in this
legislation is to create two castes of civil service employees, one caste
being the full-time employees who are sort of superior variety, and it
lower caste, the part-time--
The CHAIRMAN. The untouchables, in other words.
Senator TUNNEY. Yes.
The CHAIRMAN. We will go through this very carefully. We cer-
tainly agree it is an idea whose time not only has come but is begging
for attention.
We will try to meet our responsibilities in not ducking the ques-
tion or shunting it aside or disguising it in rhetoric, but rather, to
come to grips with it.
Senator TuNvNEY. Thank you, Mr. Chairman. Thank you for the
opportunity to appear before you this morning.
[The aforementioned letter and articles follow :]
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EDERALLY E& MPLOYED V' OMEN
An`Orsanization for Opportunity and Equality for Women in Government
Founded in 1968
.:onor:.ble John V. Tunney
;;r.i?i:od States Senate
`, h ington. D.C. 20510
.',ttentions Mr., Larry Ash
car Mr. Ashs
ederally Employed Women (FEW) is pleased to have this
ouportunity to 'submit our views in connection with your study
o the Federal program for part-time employment for women.
'or the'past decade studies concerned with the employment of
r,on have stressed the, need for more part-time jobs and
?loxiblq work schedules. The President's Commission on the
a;.tus 'of Women recommended in 1963 that the Federal government
:.ad the way in the imaginative use of women's skills and
v.; t part-time jobs be established in Federal agencies. In
1967 the Federal Women's Award Study Group made the same
recommendation in its report on the status of women in Federal
;:.ployment. More recently, the Civil Service Commission spoke
f his need in its booklet "A Point of View," and the Women's
Bureau publication "Calling All Women" did the same.
;s.:i.ioen 1965 and 1970 three agencies established special
r;_ ;ram's to employ professionally trained women loss than full
The Atomic Energy Commission was the first to do so in
1965; H2W and HUD followed later. To our knowledge all the
programs were successful. However, it has come to our attention
t:;at though the need for part-time jobs is greater than ever,
throe programs are being phased out.
:.ugh the Civil Service Commission and the Office of Manage-
=-d Budget have stated that agencies have the discretion
stablish such programs within their total ceilings, no
r,oncy has given the program the type of leadership that would
11,1.x.-crags management to in fact make the effort to identify
pocific slots for part-time jobs;
On- concern of agencies is that if they convert jobs from the
fu!!-timo ceiling to the derivod coiling, they will be penalizcc
':,y G;fB in terms of their future full-time ceilings. Needless to
they are reluctant to take this risk.
A o c rS problem is that too often part-time jobs are viewed as
*
z Bible only if two people can be found to fill the single
fuel-time slot: This is not required by the Civil Service
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Coinission and 0MB guidelines, and it also limits what jobs
aro established. The part-time job programs at the three agencies
c,ontioned above did not structure their programs to require two
people for each job, and we believe that is why they proved
successful.
FEW believes that a complete review of the AEC, HEW, and HUD
programs would be helpful in developing guidelines for Federal
?crt-ti;;o jobs. We further believe that instead of continuing
to count people and part-time jobs, it might be preferable for
an agency to identify part-time jobs by manhours for a per-
centage of its total workforce.
?or example, an agency should be authorized to fill one percent
of its total manpower on the basis of hours. Thereby, an
agency with 10,000 positions would be permitted to convert 100
of those positions into hours. This would provide 4000 hours
that could then be filled by people working varying numbers
of hours per week - 30, 20, or fewer, depending on the job
and the needs of the agency. Employees hired on this basis
would have regular work schedules and would be required to
meet whatever standards are applicable to full-time employees.
This system would permit greater flexibility in recruiting for
specific skills to meet specific and perhaps short-term needs.
This would also eliminate the pressure on management to employ
two people for a particular job.
At the present time 0MB does not permit agencies to convert
positions into eight-hour blots. FEW believes that if agencies
ware authorized to fill a percentage of positions on the basis
of hours and not people, management would be more receptive to
initiating a program of part-time jobs.
In many agencies there are positions r:rgCiring very special
skills on a less than full-time basis. A program of part-time
omploycont. imaginatively conceived and supported by the CSC,
OG,B, and the Congress would go a long way towards meeting the
needs of the Federal government and of women.
The lack of direction and support from the CSC and 0MB in this
area loads us to the conclusion that leadership must come from
the Congress. We urge legislation authorizing agencies to
allocate a percentage of total jobs to be filled on the basis
of hours, rather than on total number of bodies.
Please do not hesitate to call on us if we can be of further
assistance.
Some background material about FEW is enclosed for your infor-
mation.
Sincerely yours, ,.
Daisy B./Fields
Chairman, Legislation Committee
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EMPLOYEES, EMPLOYERS BOTH DISCOVER THE JOYS OF PART-TIME POSITIONS-MOST
WORKERS WORK HARD, SEEK FEW FRINGE BENEFITS, ENJOY THEIR FREE TIME
LEAVE THE RAT RACE-SORT OF
(By Roger Ricklefs)
Rena Lemberg turned down seven offers for full-time jobs before she got what
she really wanted : the same kind of work part-time.
"Full time, this job would be boring, but part-time it's fun," says the 23-year-
old New York office assistant. "The job keeps me going and leaves me time for
the other things I want to do," adds Mrs. Lemberg, who previously worked as a
full-time secretary.
Rising numbers of workers like Mrs. Lemberg are turning to part-time or tem-
porary jobs or free-lance arrangements. They like this alternative to a nine-to-
five day, and so do their employers, who are discovering that these legions can
provide an excellent source of high-quality help-often at low cost because many
don't expect many fringe benefits. "For many jobs, the best people on the market
are people who want to work part-time. The companies tl"at go along with this
are getting good people," says Adele Lewis, president of Career Blazers Agency
Inc., a large New York employment concern. William Lewis, a placement manager
at the agency, adds that Career Blazers gets "five times as many responses for a
part-time job as for a comparable job full time."
Indeed, the .supply of people who want to work part of the day vastly exceeds
the demand even though the demand is rising rapidly. Thus, most work hard to
keep what they consider to be an ideal arrangement, their employers say.
QUILL PENS AND FLAGPOLES
At the end of last year, a record 12.6 million Americans were working part-
time, up sharply from 7.8 million in 1963 (the first year comparable statistics
were kept), the Bureau of Labor Statistics reports. Part-timers have accounted
for more than one-third of the total gain in the nation's work force since 1963, and
they now make up 14.4% of the working population, the Bureau's statistics show.
The growth stems partly from the rising number of wives who want to work-
but not all day--and from an increasing number of young part-timers.
At the same time, agencies that specialize in finding temporary employment say
their business is growing fast too. And companies say they are making increased
use of free-lancers for all sorts of assignments. Though no precise figures are
available, possibly three million Americans now do full-time or part-time free-
lance work from their own houses, estimates Leon Henry Jr., publisher of Home
Office Reports, a newsletter for people who work at home.
These jobs at home range from typing services to making quill pens and flag-
poles to running a jogging club, Mr. Henry says. "A lot of people just like doing
things their own way and not commuting," says the publisher, who also operates
an advertising promotion service from his home in suburban Scarsdale, N.Y.
"Not all the horses in China could drag me to work in New York City," he adds.
"GENERALLY DO A VERY GOOD JOB"
Some concerns find that the current economic recovery makes alternate forms
of employment particularly useful right now. "Many companies coming out of
the recession are reluctant to build up their permanent staff on the first bright-
ness, so they hire temporaries to meet the increase in workload," says Frank Mc-
Bride, executive vice president of Kelly Services Inc., the big temporary-help
concern based in Detroit. The company, which operates "Kelly Girls" and other
services, says its volume climbed to about $80 million last year, up nearly 30%
from 1971.
If the employes like working part-time, or some time, so, too, do their bosses
like the arrangements. In San Francisco, a man at Bank of America says part-
timers are "extremely helpful' in meeting peak-hour demand" because they often
want to work during those midday hours when bank lines are longest. The bank
currently employs 11,000 part-timers, up from 6,000 five years ago ; these workers
now account for more than 25% of the bank's labor force.
Chemical Bank of New York boosted its staff of such workers to 564 at the
end of last year from 310 a year earlier and expects a further 50% gain this
year, Scarborough Smith, assistant secretary in charge of employment, says.
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These workers have a slightly better record than other employes on absenteeism
and turnover and "generally do a very good job," says Raymond Farrell, assistant
treasurer in charge of a big clerical operation.
FRINGE BENEFITS? WIi( CARES?
Chemical is experimenting with a pilot project called "Chem Tenip," which one
official says cuts labor costs in his office 50 cents to $1 per hour. "Chem Temps"
are hired by the bank but carried as employes of a temporary labor contractor.
The bank uses the workers for the exact number of hours they are needed-and
avoids paying fringe benefits. These benefits, paid to other employes who work
20 hours or more per week, equal 24.8% of salary, the bank says.
Labor unions cringe at such arrangements, and it is no coincidence that the
use of part-timers generally is strongest in industries where unions are weakest.
(Chemical has no clerical union at all.) But many workers are quite willing to
forfeit fringes to get part-time jobs. "Benefits don't matter to me because I get
all that through any retirement," says Irene Canfield, who joined the Chem Temp
program so she could work part-time. "I wanted to keep active, to be around
people. You get to be a vegetable if you don't," adds the clerk, who worked nearly
all her adult life at the Federal Reserve Bank of New York.
Though Miss Canfield supervised over 30 clerks at the Fed, she is glad now
to work as a routine clerk at $2.25 an hour. "I don't mind having less respon-
sibility. Besides, at my age, you can't be too particular, you know," explains the
vigorous-looking 66-year-old.
While part-time work is growing fast in the clerical and retailing fields, it is
also expanding in the professions. Newtime Employment Agency Inc., New York,
specialists in part-timers, says it has ;placed eight lawyers in part-time jobs in
the past two years and has another 50 registered as seeking such work.
The agency is also promoting use of "Newtime," a schedule similar to the
standard schoolday and thus popular with working mothers. "If Madame Curie
were alive, and only able to work from 9:30 to 3:15, would you hire her?"
asks a Newtime brochure.
Some believe corporate moves to the suburbs are also of spurring the part-
time trend because much of the suburban work force consists of mothers who
want to work only part of the day. The Progressive Corp., an insurance holding,
company that plans to move from downtown Cleveland to a suburb, is consider-?
ing using part-timers for as much as half of the new office's labor force, up from.
less than 5% at present, David N. Hyde, vice president, says.
In a random eiurvey of Cleveland suburban women that the Newtime agency
conducted for Progressive, 89% of the respondents who were working or who
wanted to work preferred a permanent part-time schedule to any other deal.
Indeed, only 40% of these respondents were even willing to work full time.
Though Progressive hasn't made any final decision on work schedules, it figures
part-timers may allow the office to stay open much longer hours, Mrs. Hyde says.
While millions choose part-time work because they want more for their chil-
dren, a growing minority of such workers simply want to work less. They often
consider part-time work as an economically feasible half-way house between the
"daily rat-race" and "dropping out."
"I want as much free time as possible," says Marce Pollan, a recent University
of Michigan graduate who is seeking part-time secretarial work in New York.
"I'd work full-time only if I really needed the money or really liked the work,
but I'd do almost any job. part-time," she says.
EBE(IU'rIVES, TOO
(Such workers often become masters of bargain living in order to keep their
free time. Miss Pollan says she shares a third-floor, $125-a-month Greenwich
Village walk-up apartment whose two bedrooms are five feet wide. "It's a hole--
really a tiny place," she concedes. "I don't know how I could live in New York on
less than $160 a month," she says with a sigh. "Of course, $250 would be plenty.")
Kelly Services' Mr. McBride reports : "We're getting more and more people who
simply want to work less and have more free time." The number of young people
"who work a year in New York, then go to another city for six months" is grow-
ing particularly fast, he says. "They're usually very good. They're young, they're
often skilled, and they realize they do have to work," he says. The company fre-
quently just ships their records along to its branch In the new city, he adds.
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But executives, as well as youthful workers, are seeking temporary work. In-
ternational Executives Inc. (Inter), founded three years ago to place execu-
tives in temporary jobs, says its offices in New York and Europe now list 1,500
job seekers, including 400 Americans. The supply of these job seekers still greatly
exceeds the demand. But the new company says it has placed about 75 executives
so far, mainly in specialized projects like making a market survey in a foreign
country.
Though 60% of the registrants are simply out of work for one reason or an-
other, many others are executives seeking an alternative work arrangement.
"Dozens and dozens of executives come to us saying they are dissatisfied with
their jobs and want to set up something part of the year so they can be on their
own," says Arnold Hartpence, Intex president.
But alternative work arrangements have their problems, too. "A lot of part-
timers won't stay in the job very long," reports Mr. Lewis of Career Blazers. "But
you can tell a lot by their background, and you just have to screen them out
carefully."
Also, some companies find that certain jobs just don't lend themselves to un-
usual schedules. The Premium Ventures division of Bantam Books Inc. of New
York late last year terminated an arrangement that had three office employes
working part-time.
The division, which arranges the use of paperback books in sales promotions,
laid off two of the workers and kept another full time. A spokesman declines to
comment on the change, but John Sedlak, one of the laid-off workers, says : "The
jobs really did have to be manned continuously all day. When one woman left at
3 p.m., somebody had to take over her functions, and the passing of the baton
was always a little awkward."
PART-TIME PROFESSIONALS: MORE WELL-EDUCATED WOMEN FIND FIRMS WILLING
To HIRE THEM FOR LESS THAN FULL-TIME EMPLOYMENT
(By Gail F. Bronson)
Last year, Frances Loughran was caught in a dilemma : After 20 years of mar-
riage and child rearing, she yearned to take advantage of her previous training
as a psychologist.
"At the same time, I didn't want a job that wouldn't leave me with the time
necessary for my family," says Mrs. Loughran, who lives in Westchester County,
N.Y., with her husband and eight children.
She solved her problem by landing a part-time job as a market researcher with
Educational Records Bureau, a New York company that does testing for private
schools. "I get a sense of satisfaction by working as a professional, yet my hours
are flexible enough that I have time for the rest of my life," says Mrs. Loughran,
who holds a Master's degree in psychology from Fordham University.
Such a solution isn't unique. A growing number of women, who want to utilize
their professional backgrounds but who don't want careers that could consume
most of their time and energy, are looking for stimulating part-time work. And
employers, noting this previously untapped reservoir of womanpower, are finding
a surprising array of jobs, ranging from managing offices to editing and legal
work, that can be handled by women on a part-time basis.
SOME WORK OUT BETTER
Until recently, the idea of hiring anyone as part-time professionals or man-
agers-other than using the knowledge of consultants and, in some cases, re-
tirees-was avoided as being too disruptive to work routine and simply causing
administrative headaches. Lately, however, employers are finding out that "the
woman with a professional background but who can't work full-time because of
home responsibilities often works out better than regular employees," says Peter
Powers, general counsel for the Smithsonian Institution, who has two part-time
women attorneys on his staff.
Others agree. United Publishing Corp. of Washington, for instance, used 54
part-timers (all women) among the 200 writers and researchers who recently
put together its "New American Encyclopedia." Grayson & Associates, an Engle-
wood, N.J., marketing concern, has a female office manager who works about 25
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hours a week. And the Atomic Energy Commission has at least one part-time
professional-a female physicist-on the payroll.
"I prefer working with part-time women. The mind doesn't have to be in ark
office 40 hours a week to be creative, and many women seem to put in a lot more
time thinking about their job than the number of hours they get paid for it,"
says Allan Kulen, vice president of United Publishing. Besides, he says, the com-
pany doesn't have to pay fringe benefits to part-timers ; these usually lift labor
costs by at least 6% above salaries.
Peter Lewis, president of Progressive Insurance Co., Cleveland, is also staunchly
pro part-timers. He says that after experiencing the enthusiasm of women clerks
working part-time, he's going to begin :hiring females as claims adjusters, under-
writers and "the entire work schedule permitting women to be on five-hour shifts.
Why not use these talented, motivated and well-educated people?"
FEAR OF WORKING MOTHERS
Not everyone shares that attitude. The trend thus far appears limited primarily
to small companies that are perhaps more flexible in their personnel policies
because of relatively limited number of employes. Then again, some employers
fear working mothers-whether full-time or part-time-will miss more time than
co-workers because of sick children or other problems that could crop up at
home. Also, some women claim "male chauvinism" is still a strong deterrent to
hiring women in a part-time capacity for other than clerical or manual jobs.
"There's still tremendous resistance by many company officials to scheduling
shorter hours for women," complains Vickie Kramer, who works with Options
for Women, Phi;iadelphia, one of a mounting number of organizations trying to
get companies to loosen up their policies regarding "short-shift" women. "It's it
gut reaction to thinking their wives might dare to go out and do a job similar
to theirs on a part-time basis."
A good many husbands, though, apparently find their wives' jobs more thera-
peutic than threatening. "I think it's great. Working has improved my wife's
frame of mind quite a bit. And it's good for the children not to depend on her
all the time," saps Jim Malaro, a physicist at the Atomic Energy Commission. His
wife, Marie is one of the Smithsonian's part-time lawyers. (Mr. Malaro himself
works with the &EC's part-time female physicist.)
"Women usually aren't working part-time just to help support the family.
Work is simply an important part of their lives. But you have to convince the top
brass of companies that that's the case," says Fran Goldman, a founder of
1)istaffers, a Washington agency similar to Options for Women. (Mrs. Loughran,
for instance, used her first paycheck from Education Records Bureau to buy a
painting she had long admired.)
Some steps are being taken, though, to get the women's cause into the execu-
dve suite. Catalyst, a nationwide women's educational organization based in
New York, recently received grants totaling $300,000 from the Kellogg, Ford and
Rockefeller foundations to draw up a program for the employment of well-
educated women on a less than full-time basis. Catalyst representatives will begin
approaching executives this month in hopes of bringing together companies in-
terested in hiring such women and women who want such work.
To show the value of part-time women, Catalyst points to a study it made last
year of 50 women working half-time as case-workers in Boston with the state
department of welfare. The study shows the women actually had more face-to-
face contact with the people they were aiding than did regular employes, they
carried slightly more than half the case load of the full-timers, and their turn-
over rate was significantly below that of full-time case-workers.
Despite progress made thus far, however, those seeking more part-time pro-
fessional jobs for women say that steps toward their goal are a good bit daintier
than they would like. The major obstacle that must be overcome, they say, i.s
getting giant employers, including the federal government, to pursue actively the
hiring of women professionals on a part-time level. (In 1967, John D. Gardner,
then head of the Department of Health Education and Welfare, initiated a
project to attract women to part-time career jobs with the agency. When he
resigned a year later, however, the program fizzled out.)
"The government is just one big employer that's ignorant of a lot of talent
under its nose," says Felice Schwartz, Catalysts president.
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105:335-49 April 1972
Part-Time Work in the
Public Service
T HE DEMANDS of a complete working day prevent the employment of
various categories of workers-such as students, married women, or
older or disabled persons-often representing a considerable labour
potential, which is thus lost to the community. The idea that these
persons should be afforded greater opportunity for part-time employment
is now gaining ground.
At the same time experience in different places has shown that
greater flexibility in the organisation of work, and especially in hours of
work, is not necessarily incompatible with high output or the efficient
operation of an undertaking. In a number of countries the system of free
work schedules is becoming more common, enabling each employee,
both wage and salary earning, to choose the most convenient hours.
Although these two systems-free choice of hours and part-time
working-are by no means the same thing, they do both reflect the desire
to allow for the workers' preferences and convenience. The system of free
choice does not alter the status of full-time employee, combined with all
the usual economic and social advantages this implies, but the system of
part-time working remains ill-defined and sometimes results in the exis-
tence of a category of marginal workers without any recognised status or
genuine legal safeguards.
A comparative study undertaken by the ILO 2 in 1963, which exam-
ined the situation of part-time workers and analysed legislation on the
subject in some fifty countries, pointed to their precarious situation,
especially in regard to employment security, unemployment insurance
and pensions. Its conclusion was that it is difficult to safeguard equality
of treatment and of employment conditions for part-time workers.
' International Labour Office.
' " An international survey of part-time-employment ", in International Labour Review,
Vol. LXXXVIII, No. 4, Oct. 1963, pp. 380-407, and No. 5, Nov. 1963, pp. 490-517.
335
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Since then nearly ten years have elapsed and for most of the countries
dgalt with in this article this period has been marked by a situation of full
employment and even serious manpower shortages, offering relatively
favourable circumstances for part-time employment. Under the pressure
of this and other factors various governments have introduced provisions
authorising state employees to work part time and regularising their
status.
For various reasons it has been considered worth while to study
these provisions and to attempt to determine certain general trends. Part-
time work continues to be surrounded by lively controversy; without
going into the detailed. pros and cons put. forward it may be mentioned
that the opponents of part-time employment consider it to be incompat-
ible with a normal career and fear that it may tend to result in the
creation of a marginal class of manpower, bereft of job security and
serving as a potential reserve for employers. -
Employment security has always been considered as one of the prime
advantages of the public service. Does this mean that part-time employ-
ment is feasible in the public service only because of this prior condition
of employment security and, in more general terms, on account of the
greater facilities available to governments in determining the conditions
applying to their employees, or should it be seen, on the other hand, as
proof that the incompatibility mentioned above is purely imaginary?
In other words, should the statutory provisions introduced in this
way be regarded as the forerunner of what may become a normal situ-
ation in the future, with the State leading the way? Or do these attempts
amount to nothing more than sporadic experiments with little chance of
spreading further? This only the future can tell, but the experiments
undertaken in this direction certainly call for closer acquaintance.'
The French Government has not concealed its intention of treating
the Act of 19 June 1970 respecting half-time working by public servants
as a trial venture. The report presentii}g the Bill 2 stated that its aim was
" to undertake a limited experiment in an important and leading sector,
with the possibility of general application if successful ".
A further reason why these legislative provisions seem both timely
and promising is that although, as described below, they are designed for
the time being to cater for strictly defined needs of various categories of
workers prevented temporarily from working full time, they nevertheless
acknowledge a form of employment which may well be used increasingly
often in the future for quite different purposes and specially to satisfy the
' In the Federal Republic of Germany federal legislation was enacted in this connection
following the satisfactory results produced by legislation passed in the two provinces of Lower
Saxony and Baden-Wurttemberg.
2 Report of the Committee on Constitutional Law, Legislation and General Administra-
tion of the Republic on the Bill (No. 1022) respecting half-time working by public servants,
appended to the minutes of the sitting of 15 April 1970 of the National Assembly (No. 1077),-
336
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Part-Time Work in the Public Service
need for lifelong education. It is generally recognised nowadays that the
rapid evolution of science and technology demands permanent updating of
knowledge and that the future of an undertaking is increasingly dependent
on its employees' ability to keep abreast of progress. Various methods
have been advanced or are already being applied to enable workers at all
levels either to upgrade their abilities under social promotion schemes, or
to follow refresher courses or updating programmes. Paid educational
leave is one such method. It is not always easy to organise, specially for
management personnel whom the undertaking finds it difficult to do
without, even for a short time. Evening courses are another means of
organising continuing education. In our over-populated industrial cities,
where the fatigue of long commuting journeys is added to the exhaustion
from a working period crowded into five days per week, this is not
perhaps the best solution. -
There remains the possibility of making greater use of part-time
work, which can enable people to continue in their jobs. Although they
may do so at a slower pace, their presence in the undertaking is assured,
together with the acquisition of new knowledge essential for the operation
of the undertaking. Far too little thought seems to have been given to the
ways in which continuing education may be helped by wider application
of part-time working. This may be because both governments and
employers are unable to separate it from the discouraging image produced
by haphazard and mistaken application.
The fact that administrations in several countries are attempting to
give part-time employment some form of statutory framework with a
definition of its limits and scope, while endeavouring to free it from any
prejudice, whether unfavourable or favourable, may perhaps constitute
an important landmark in the acceptance of this form of work and its
utilisation for increasingly diversified aims.
* *
This survey covers only a limited number pf economically advanced
countries 1, because the question arises in different terms in the develop-
ing countries, for which there is in any case little or no information.
I have not attempted to include specific categories of workers under
the term " public service ", because each country has its own practice in
this respect.' For example, teachers are public servants in some countries
but not elsewhere; the same situation applies to railway workers, dock-
workers, nurses or the police. Moreover, within each country public
servants are not all covered by the same regulations, those applicable to
'Austria, Belgium, Canada, Denmark, Finland, France, the Federal Republic of
Germany, Norway, the United Kingdom and the United States.
' United Nations: Handbook of civil service laws and practices (New York, 1966),
document ST/TAO/M.29.
337
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them depending on whether they work for the central administration or
for local authorities, or whether they are employees of the State or
recruited under special agreements or contracts. Sometimes they may
even come under different ministries and, therefore, be subject to a
particular ministry's regulations.
Consequently, it has not been possible to present a complete picture
of the situation in each country. Generally speaking, owing to the lack of
sufficiently detailed information regarding the conditions of work of local
authorities' employees, I have endeavoured primarily to analyse the
regulations governing the situation of central authorities' employees.
In addition, owing to the complexity of the administrative organisa-
tion in each country, the persons approached with a view to obtaining
statistics on the part-time employment of public servants were not gener-
ally able to se;ad complete data, either because this would have meant
consulting too many authorities or simply because such data did not,
exist. The study may seem fairly inconclusive on this point, but I did not
feel that the statistical aspect was what counted most. Although com-
paratively few public servants work part time, this does not necessarily
mean, as the law stands at present, that this form of employment is not;
deserving of interest; it may be quite simply that the conditions offered,
are not particularly attractive.
What is meant by part-time work?
Among the various legislative systems there is a very wide range of
concepts and definitions of part-time employment, so that it is difficult to
find any common denominator except for the definition given by the ILO
in the 1963 survey mentioned earlier, which has become something of a
classic by dint of constant quotation: " Part-time employment is taken to
mean work, on a regular and voluntary basis, for a daily or weekly
period of substantially shorter duration than current normal hours of
work ". Keeping to this specification of the regular character of the,
activity I have left out any form of casual or temporary employment,
with which part-time work is sometimes confused.
In some countries a minimum number of hours must be performed
by a public servant to provide entitlement to certain rights. In the United
Kingdom, for example, a civil servant is required to work not less than
eighteen hours per week to be entitled to holidays with pay and other
benefits.
In France: the hours of work performed by public servants covered
by the Act of June 1970 must amount to not less than half the hours
required of persons performing the same functions full time.' The state-
' Decree No. 70-1271 of 23 December 1970 laying down public administrative regula-
tions to apply the half-time working system for public servants (Journal ofciel, 30 Dec. 1970).
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ment of reasons for the Act places special emphasis on the desire to
introduce half-time rather than part-time working; this means that the
daily or weekly hours must amount to half the time worked by full-time
employees in the day or the week, but it does not rule out the possibility
of concentrating the necessary amount of work within a few days of the
week in order to avoid excessive travelling that would make the whole
reform pointless.
In Canada under the Public Service Part-Time Employment Regula-
tions a part-time worker is a person not normally required to work more
than fifteen hours per week. Depending on the particular job, employees
are allowed to work in the morning, in the afternoon or a shorter number
of hours per day. Under a special programme established in 1967 by the
Canadian Treasury Board for women university graduates, the working
week was between twenty and thirty hours and during term-time only.
In the Federal Republic of Germany the law is applied very flexibly.
It allows shorter working hours of not less than half the normal duration
and permits all sorts of combinations as best suit those concerned.
In the United States the regulations also seem fairly elastic, but an
agency or department may not offer permanent part-time jobs unless and
until it has established that the work to be performed is continuous and
not casual. After that, however, the contractual arrangement may consist
of a given number of hours per day, per week, per month or .per year.
In Finland public servants who so desire may work either two to
three days per week or a fixed number of hours per day.
Reasons advanced in favour of introducing part-time employment
The general report concerning conditions of employment of public
servants submitted to the First Session of the ILO Joint Committee on
the Public Service states that " there is now a decided trend towards
recognition of the importance of part-time work for certain categories of
workers whom it may assist-mothers (particularly those with small
children), students, workers wishing to continue their training or studies,
retired persons, etc.; the value of recruiting workers on a part-time basis
is also becoming recognised in certain sectors where there is a labour
shortage."' An analysis of the situation in the various countries covered
by the present survey confirms this statement and shows that almost all
provide the possibility for public servants who so desire to have their
working time reduced.
In this respect there are two quite distinct groups, however: those
which have for various reasons considered the question sufficiently ripe
and the needs sufficiently pressing to justify special laws or regulations
' ILO: General report: general review of conditions of employment of public servants,
Report I, Joint Committee on the Public Service, First Session, 1970 (Geneva, 1970), p. 24.
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clearly defining the employment conditions of this category of workers
and designed to assimilate them to those of full-time employees (Denmark;,
France, the Federal Republic of Germany), and those where the condi-,
tions governir.g part-time employment remain ill-defined, sometimes,
inequitable, and not calculated to attract public employees (Austria,
Belgium, Canada, Norway, the United Kingdom and the United States).
Some of the countries in the latter group (Austria, Belgium, Norway, the
United Kingdom) are, however, contemplating or already studying regula-
tions, which shows that there is a definite trend towards more serious
coverage of this type of work.
In Austria., for example, Parliament requested the Government in
1962 to examine the possibility of offering part-time employment in the
public service to women with young children. Two Bills 1 were introduced
but were not passed owing to the objections and opposition which they
encountered. This, nevertheless, reflects the: interest shown by the adminis-
tration in this problem, which is undoubtedly shared by the persons
concerned.
These dual considerations (the administrations' interest and certain
workers' needs) have, therefore, been widely advanced in support of
special action to promote part-time employment. It may even be observed
that legislation comes to be introduced when there is a fair balance
between these two sets of interests. So long as administrations have no
difficulty in meeting their staffing requirements they are not particularly
interested in part-time employment. But when it becomes hard to find
suitable personnel they are prepared to make some concessions. In this
respect they do not differ in any way from private employers.
In recent years the female contingent in several state sectors-educa-
tion, postal and telecommunication services, health services, offices,
etc.-has considerably increased, and there are many more women who
remain in the service after marrying.
The statement of reasons for the Federal German Act respecting
part-time employment in the public service 2 does not conceal the diffi-
culties caused to the administration by the departure of large numbers of
women public servants for family reasons, and the report on the applica-
tion of the Act, prepared in March 1971 at the request of Parliament 3,
notes with gratification that, since the new provisions came into force, the
number of women leaving their jobs has declined considerably. Moreover,
it was reckoned that the special statutory measures would encourage
' The Federal Bill authorising the reduction of hours of work for certain female public
servants (1963) and the Federal Bill respecting the acceptability of reducing hours of work for
female public servants (1967).
' Sixth Act to amend the regulationsgoverning the status and remuneration of public
servants dated 31 March 1969 (Bundesgesetzblatt, 1969, Part I, p. 257).
' Deutscher Bundestag: Teilzeitbesclraft,gwrg and langfi?istige Beurlaubung von Beanuin-
nen and Richterinneu: Erfahrungsbericht, Druc:ksache V1/2064 (Bonn, 30 Mar. 1971).
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some of the women employees who had already left the service to return,
because a decision adopted at the same time permits the re-engagement
of women who resigned in the two years preceding the entry into force of
this Act. Here again, statistics show that this expectation was not
unfounded.
In France the Secretary of State for the Public Service informed the
Senate on 6 December 1969 1 that the reform authorising half-time
working " could improve both the situation of public servants and the
functioning of the administration. Moreover, if it succeeds it could
be extended in the categories concerned as well as to other sectors."
Here again, therefore, it is a case of the law meeting the dual
concern of safeguarding the interests of the administration and those of
employees. -
As mentioned in the same report, one of the aims of the Act was " to
reduce the number of departures from the service representing a consider-
able cost to the administration " and " to remedy the chronic absenteeism
of women employees bringing up children, who account for a high
proportion of the staff in certain departments, in particular the Depart-
ment of National Education and the Postal and Telegraph Service." The
report also suggested that the Act would " open new prospects for the
engagement of temporarily handicapped persons, whose employment is
necessary both for themselves and for society ".
In other countries this need for a personnel policy permitting a more
human approach and a more flexible distribution of functions is not yet
felt to anything like the same extent.
In the United Kingdom the present policy followed by the various
departments consists of recruiting part-time employees only when there is
a shortage of persons prepared to work full time or where a specialist or
expert is needed but can only be obtained on a-half-time basis. Requests
by individuals to work shorter hours are only accepted if refusal would
cause them to resign from a post in which it would be difficult to replace
them.
In various countries the system of part-time employment is commonly
practised for certain work that does not require permanent attendance.
In Norway, for example, the jobs of maintenance staff, school secretaries,
physicians attached to state enterprises, school caretakers and grave-
diggers come within this category. In Canada part-time working is
authorised in the public service in any of the following three circum-
stances: (1) for certain jobs requiring attendance for a number of hours
less than the average; (2) when it is not possible to recruit skilled
personnel full time; (3) to encourage highly skilled women with children
of school age to accept jobs.
I Report already quoted presenting the Bill respecting half-time working by public
servants.
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International Labour Review
In other cases the introduction of part-time working has resulted
from the ' difficulty experienced by certain services in coping with the
public demand. In Finland, for example, following the introduction of
the forty-hour week, the post office brought in part-time employment in
order to be able to continue to deliver letters on Saturday mornings.
Conditions for part-time employment
As we have already seen, very few countries have so far adopted
special legislation covering part-time employment in the public service.
Elsewhere public service regulations contain piecemeal provisions on the
subject but these are less complete and, moreover, less favourable to the
part-time employees themselves.
Depending on the reasons that have induced governments to contem-
plate this form of employment, the relevant provisions may cover either
women only (Belgium, the Federal Republic of Germany) or both men
and women. Where legislation applies only to women there may be a
problem in regard to the discriminatory character of such provisions.
This has not gone unnoticed by legislators: in Denmark the Act of 7 June
1958 respecting the conditions of public servants made provision for the
part-time employment only of women with dependent children under
18 years of age but the 1969 Act 1 replacing it grants this right both to
men and to women wishing to take care of their young or sick children.
In the Federal Republic of Germany the committee instructed by
Parliament to report on the application of the 1969 Act and to propose
any necessary changes 2 stated that its application to women alone might
be considered as contrary to article 3 of the Constitution, which guaran-
tees equality of the sexes before the law, and it suggested that the scope
of the provision concerned should be extended to male public servants
and judges subject to the same conditions as applied to their women
colleagues.
Where governments have found that there is a need for provisions
permitting part-time employment they have had to lay down fairly strict
conditions governing the use of this system as well as to impose limits
regarding the length of time during which people may continue to work
on this basis.
In France and the Federal Republic of Germany, as will be seen
further on, the determining factors are the age and number of public
servants' children. In Belgium only women in certain categories and
grades qualify.' In Canada the special programme established by the
' Act No. 2011 of 18 June 1969 respecting officials employed by the State, state schools
and religious communities.
' Deutscher Rundestag, Drucksache VI,!2064, op. cit.
Section 26 of the Royal Order of 1 June 1964 respecting certain forms of leave granted
to public servants I Moniteur beige, 23 June 1964).
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Part-Time Work in the Public Service
Treasury Board (see above) was originally limited to three professions
affected by shortage of staff-those of economist, statistician and librarian.
As regards the maximum period of time during which anyone may
work part time, in France it is three years, which may be renewed, subject
to a maximum of nine years; in Belgium, six months, with the possibility
of further six-month extensions if compatible' with the demands of the
service; in Denmark, for a limited period, until further notice; in. the
Federal Republic of Germany, not more than twelve years.
There are also restrictions concerning the categories of officials who
qualify. In France only established public servants are eligible, which
excludes supernumerary and fixed-term employees and state-employed
wage earners who do not belong to the pension scheme. Nor are judges
eligible, because the general public service regulations do not apply to
them. In the Federal Republic of Germany, however, the relevant federal
legislation (in common with the legislation of the Lander) specifically
covers female public servants and judges, and is also applicable to public
servants during probation. In Denmark persons employed by the State
under a contract are not covered by the Act of 1969.
In contrast to the virtually general rule that part-time working is
allowed only for serving employees, the Federal German Government
decided, as mentioned above, to extend this right to all female public
employees fulfilling the statutory conditions who had resigned in the two
years preceding the entry into force of the Act, provided they had made
their request before the end of 1969. In France it was decided that if the
trial period produced conclusive results the possibility of re-employing
former public servants who had been placed on the reserve list or who
had resigned would be considered. In Canada the special programme is
designed essentially for university women who have not yet joined or who
are no longer members of the public service and whom these facilities
might attract to the administration.
Apart from general conditions certain countries lay down detailed
provisions specifying cases in which a public servant, of either sex, may
apply to work part time. The systems in France and the Federal Republic
of Germany are the most recent and by far the most developed in this
respect.
In France the decree to apply the 1970 Act provides that a public
servant may apply to work part time in the following circumstances:
(a) to raise one or more dependent children under 12 years of age;
(b) to take care of a child suffering from a condition requiring continuous
. attendance;
(c) to assist the spouse or a parent of the public servant or of the spouse,
if their condition as a result of an accident or-serious disease neces-
sitates the presence of another person;
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International Labour Review
(d) in the case of at least 85 per cent disability;
(e) when a medical board has ruled favourably on half-time working
because of an accident or a serious disease.'
The right is granted to the official " in the light of the exigencies of
the service ". This provision, which is a safety clause designed to protect
the authority of heads of units and to avoid the complete disorganisation
of certain services, clearly places considerable bounds on the scope of the
law, and it was hotly debated in the legislative committee. Similar provi-
sions in one form or another are to be found in other countries.
Another provision contained in French legislation, and also appearing
in that of other countries (in particular Belgium and the Federal Republic
of Germany), forbids a half-time official to occupy another remunerated
post or to engage in private gainful activity. This is justified by the idea
that it would not be fair to reduce an employee's work load in view of his
social situation to allow him to offer his services elsewhere.
In the Federal Republic of Germany the right to work part time is
recognised under the 1969 Act for any female salaried public employee or
judge having at least one dependent child under 16 years of age at home.
The existence of these limits and restrictions brings us to the heart of
the problem raised by part-time employment. The adoption of this system
corresponds to obvious social aims which are felt increasingly strongly in
most countries, but if it were applied too broadly it might well offend
feelings of equity, particularly in regard to holidays and pension entitle-
ment. Efforts are, therefore, being turned towards striking a proper bal-
ance between the advantage granted to part-time workers and any possible
disadvantages.
If the advantages are insufficient the whole exercise will be bound to
fail. Certain countries have already found this out for themselves; in
France, for example, a campaign to recruit half-time shorthand-typists in
the Paris administrations in 1963 and another scheme to find nurses were
unsuccessful owing to the insufficient incentives, both social and financial,
that were offered.
Remuneration, advancement and promotion, leave and pension rights
Remuneration
The law is generally too concise and unforthcoming to give a precise
idea of the working conditions offered to part-time employees.
In most cases, however, their remuneration is calculated on the basis
on actual hours worked. Generally a commensurate proportion of special,
allowances and supplements is also payable.
' Part-time employment on medical grounds is provided for in several countries"
legislation.
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Part-Time Work in the Public Service
Advancement and promotion
The effects of part-time working for the purposes of calculating
seniority are not always clearly indicated. The decree to apply the French
Act of 1970 provides that the period of assignment of employees to half-
time working should be counted in full towards advancement within the
same grade or promotion to a higher grade. The same holds good in the
Federal Republic of Germany. In Norway supplements in respect of
length of service and promotion are payable at the same rate as in the
case of full-time employment. But most legislative systems have nothing
to say on this point, despite its importance.
Nor are they more explicit with regard ,to promotion. The system
applying in administrations is generally based on the criteria of length of
service and merit, although in variable proportions, so that the opportu-
nity for promotion depends to a great extent on the way in which part-
time working is included in the length of service.
In the United States the method depends on each administration, with-
out any uniformity. In Canada the same method of advancement applies
to all public servants, provided that they work for more than one-third of
normal hours. For example, in replacing an experienced typist working
part time, applications from other part-time employees in the same service
or department will be considered. For a full-time post, however, only those
willing to work the whole day are allowed to compete.
Leave
In some countries the leave entitlement of part-time public servants
does not appear to be affected by their special status and remains the
same as for full-time employees (Denmark, France, the Federal Republic
of Germany), while in other countries it h reduced in line with their
hours of work (Belgium, Canada). Holiday pay corresponds to their
remuneration and is generally reduced in the same proportion.
In Canada a holiday allowance equivalent to 4 per cent of part-time
employees' gross remuneration is added to each month's pay.
In the United Kingdom any public servant working at least eighteen
hours spread over the week or under an equivalent arrangement on a
continuous footing is entitled to sick leave payable on the same basis as
for full-time employees, and to annual leave corresponding to grade and
calculated in proportion to the hours actually worked.
Pension entitlement
In certain countries part-time officials are not eligible for membership
of the civil service pension fund. In the United Kingdom any person
working less than the normal hours is considered to be in an unestablished
capacity and may not claim a pension unless subsequently placed on an
established footing following recognition of his part-time services (at least
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44
r,ighteen hours per week). In Canada part-time public servants, in common
with any other person earning over S600 per year, are required to
contribute to the Canada Pension Plan or the Quebec Pension Plan at the
rate of 1.8 per cent of gross salary.
In the United States, on the other hand, the various pension systems
for civil servants are open to part-time employees. The remuneration
taken into account in calculating the pension is the remuneration actually
received.
In France the period of half-time service is reckoned at half its
duration in calculating pension entitlement. Contributions are based on
actual earnings.
In the Federal Republic of Germany the remuneration taken as the
basis for calculating the pension rate is the full remuneration for the most
recent full-time employment. In calculating the period of pensionable
service, however, only the actual hours worked are taken into con-
sideration.
These fragmentary indications give some idea of the wide variety of
measures called for in order to ensure fair treatment for part-time
employees. By far the most important provisions in this connection relate
to pensions. The system that is still frequently applied, whereby part-time
employees are excluded from the public service pension scheme, is a
serious obstacle to the extension of this system of working.
Categories of public servants working part time
Generally speaking, part-time working is still not very common in
the public service and occurs mainly in three very different types of
employment: first, highly skilled jobs; secondly, certain subordinate posts
either in offices or in state undertakings; and lastly, jobs which by their
very nature can only be performed on a part-time basis (those of cleaner,
canteen worker, etc.). Almost everywhere the majority of part-time
employees are women.
In the Federal Republic of Germany most women who have availed
themselves of the opportunity provided by the Federal Act of 1969
belong to the category of medium-level employees, working mainly in
post offices, the telegraph service, postal cheque offices, and so on. By the
end of March 1971 no woman judge had yet taken advantage of this
opportunity. In Lower Saxony and Baden-Wurttemberg, which have
allowed public servants to work part time since 1960 and 1962 respectively,
little use has been made of this facility. As of 1 August 1964 only
272 female primary-school teachers out of 13,246 (2 per cent) were
working part time in Baden-Wurttemberg.
In Finland, also, part-time working is most widespread in the postal
service (postmen and office staff), but the system is also in operation in
museums, libraries and local family help services.
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In Canada as of 30 September 1970 there were 5,100 part-time
employees out of the total of 205,000 working for the Treasury Board.
The largest concentration was in the highly populated provinces of
Ontario and Quebec (3,600). The postal service accounted for the largest
number (4,200), mainly postmen and office staff. There were 650 persons
working part time in the general services (cleaners, storekeepers, messen-
gers, maintenance staff), 100 in subordinate office jobs and 70 in scientific
and technical occupations (dentists, meteorologists and nurses). In the
United States general clerical staff, technicians and machine operators
account for the largest proportion of part-time employees.
It can thus be seen that in almost all the countries the jobs most
often performed on a part-time basis are for the time being ones that do
not involve a great deal of responsibility, and certainly do not include
posts of authority, with which this system of working is considered
incompatible. None the less, when administrations want to get hold of
highly skilled staff they have no qualms about disregarding this supposed
incompatibility, ,
Problems raised by the organisation of part-time working
In addition to the problems already discussed in regard to the
provision of satisfactory conditions of work for part-time public servants,
it is generally acknowledged that there are a variety of organisational
difficulties as well. These relate, first, to the type of job that can be
performed part time; opinions diverge in this connection, which suggests
that there may not yet be enough practical experience to permit any final
conclusions to be drawn.
In the United Kingdom, for example, where the Civil Service Com-
mission is considering how female civil servants might be helped to
reconcile careers with family responsibilities, it has been considered that
the organisational difficulties would be particularly great in office jobs, in
services open to the public and in jobs involving the making of payments.
In other countries, however, part-time working has been specially advo-
cated or is particularly widespread in office jobs or in services open to the
public. The fact remains, however, that even if all jobs do not lend
themselves equally to this system, it can be of undeniable interest for a
large number of persons.
In addition to the nature of the job another decisive factor is the size
of the service concerned. In the Federal Republic of Germany it has been
found that part-time working causes less trouble in large administrations
where the bulk of the staff consists of women than in small services.
Another problem consists of reintegrating employees in a full-time
post after they finish working part time. Should there be certain condi-
tions, as under French legislation, whereby a part-time official may be
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assigned to a full-time job only if a post is vacant, or should the whole
matter be left to individual decision? Limits on the permissible duration
of part-time working provide a partial solution, because even if there is
not always a vacant post at the particular time when an employee wishes
to resume full-time working he will be sure of finding one by the end of
the period laid down by law. In any event, some sort of limit on freedom
of reintegration seems inevitable if services are not to be exposed to
excessive disorganisation. It was pointed out in the Federal Republic of
Germany, for example, that certain administrations, such as the customs,
had been able to overcome organisational difficulties only because the
number of persons interested in part-time working was fairly small. In
the postal administration it was found easier to approve applications
when two employees had agreed to occupy the same post. Generally
speaking, half-time working has resulted in less disorganisation than
working for two-thirds or three-quarters of the time.
In Finland it is reported that the greatest difficulty 'comes from the
high degree of mobility of part-tine employees.
A study concerning the public service in Canada 1 seems to have
found the main causes of a good number of these difficulties. It points
out that the whole system of manpower utilisation is conceived for full-
time staff. Any other type of employee is seen as a special case, a
nuisance ar,.d often as a second-class citizen, with consequent difficulties
in finding a proper place in the system?
Experience in Canada also shows that if part-time workers are to
enjoy better conditions there should not be an accumulation of exemptions
in their favour. The opportunity given to university women with families
to work only during term-time, which makes them not just part-time
employees but temporary employees as well, has not facilitated their
integration.
The fact that the system of part-time working in the public service
has gained ground in recent years despite all of the difficulties described is
confirmation of what was stated in the introduction to this article about
there being keen enough interest in it on the part of both administrations
and employees to encourage efforts to find solutions satisfactory to both
sides.
But this evolution does not result just from a closer coincidence of
individual interests and economic requirements; it also reflects a turn
towards a new concept of employment. In a statement he made in 1966
regarding the right to work, Jean Fourastie pointed out that " this right
' Kathleen Archibald: Sex and the public service, a report to the Public Service
Commission of Canada (Ottawa, 1970).
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has hitherto mainly been understood in the sense of the right to work for
one's livelihood.... The other interpretation now gaining acceptance is
the right to share in production, in social life, and to develop one's
personality. This new interpretation is given prominence in numerous
surveys of public opinion. " The latitude offered to certain public
employees to take time out during their career to devote themselves
partly and temporarily to other interests allows for this aspiration.
It also gives due consideration to the preferences felt by women for
whom it would be an excessive strain on health and family life to
continue full-time employment when they have young children to look
after. And it allows for other needs felt to an increasing extent by
workers, including the need for advanced training, continuing education
and social promotion.
The new arrangements deserve attention, moreover, on account of
the positive effect they will undoubtedly have on the integration of
women in occupational life. They are entirely in accordance with recom-
mendations recently made to the Second European Demographic Confer-
ence 2, which noted that the difficulties experienced by women in reconcil-
ing their family life with an occupation were one of the causes of the
declining birth-rate and the aging of the European population and pre-
sented as one possible solution the development of part-time employment
and social amenities (kindergartens, schools, hot-meal services, etc.)
enabling women to combine the functions of production and repro-
duction.
' As quoted by Jean Hallaire in Part-time employment, its extent and its problems,
Employment of Special Groups Series, No. 6 (Organisation for Economic Co-operation and
Development, Paris, 1968).
'See Journal de Geneve, 7 Sep. 1971.
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w a.or .. ,, w...,,.. .o..~, d-... ..a ';Unsfeal zf"fez Zonate
:;cnator Gale IV. McGee
Chrii rman
Senate Post Office and Civil Service CoDnittee
Senate Office Building
Wa;h:ington, D. C.
T am writing in reply to the statements submitted
to your Connittee by Robert F. Hvnpton, Chairman,
United States Civil Service Commission and Francis S.
Filbey, Cenera] President, American Postal Workers
Union in opposition to S. 2022, 11be Flexible Flours
imulovment Act.
1 would like to state at the outset that I agree
with the position of Mr. Filbey to the effect that the
Postal Service and Federal employers whose hours and
working conditions are determined by collective
bargaining contracts should be exempt from the require-
nieits of this legislation. I have no problem with
chimes which accomplish this objective. Similarly,
I igrec with the Chairman of the Civil Service Comunission
th't the interests of administrative efficiency are
best served by lodging enforcement and oversight
responsibility in the Conunission rather than in the
Department of Labor.
Several points made by Mr. llampton require rebuttal.
They are:
1. "There is now available administrative flexibility
that enables Federal executive agencies to employ
workers on a part-time basis."
In the most limited sense, of course, this is true.
I'he Federal Government does employ a very small percentage
of its work force in part-time positions. Analysis of the
difficulties confronting Federal personnel managers indicates,
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Page 2
Senator Gale IV. McGee
October 10, 1973
however, that the present rules in fact systematically
exhibit such flexibility. I invite the Committee to learn
more on this subject by reading the JV monograph, "Part-
Time Employment, A tIanager's Alternative to Staffing?"
a copy of which is enclosed. I would like to quote
below several key paragraphs:
Managers can hire part-time or intermittent employees
against unused coiling for full-time employment in
permanent positions, but only on a one-for-one basis.
Thus, if a manager with an unfilled permanent position
wanted to hire two people half time, he might be pre-
vented as it would mean counting two people against
the organization's employment ceiling instead of one
were the position filled by a full-time person.
The apparent inequity of the last exanml.e has been
the subject of much discussion. In November 1970, Senator
Javits smoke to the Senate on Part-time Jobs for women in
Federal Government. Senator Javits pointed out the need
for flexibility in employment ceilings in order to permit
the conversion of one full-time job into two half-time
jobs without paying any 'extra price' in terms of job
ceiling," He introduced into the Congressional Record
correspondence on part-time employment exchanged between
his staff and OkIP.
From the correspondence with 0lf he concluded, "Thus
it now appears that applications for conversion of an
employment ceiling to permit the splitting of one full-time
job into two half jobs would be most routinely granted...
The Javits/OMR exchange. subsequent news articles, and
an issuance on the sane subject by CSC have served to keen
alive misguided efforts to promote job splitting for veterans
and women, Many have felt that managers coed easily
convert permanent positions on a 2-for-1 basis; that OMIR
had now changed policy and was now willing to allow agencies
to count two part-time employees against one full-time position.
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Senator Gale N. McGee
October 1.0, 1973
tltfnrtunately, the asstmiptions are not accurate. (fIB
has said that "if concrete plans are developed and as an
m'cncy can demonstrate the need, we will he glad to
entertain specific proposals for the reduction of full-time
periancnt, and increase the part-time positions in a ratio
tiat seen---, reasonable under the circumstances."
Thus, the basic ground rules are still the same: you can
give up permanent positions (that is, eliminate them From
your budget) in exchange for "other employment", but you
cannot count two half-time employees against one full-time
position,
Ten when a manager gives up pernanent positions, the
justification requirement established by O`T' makes it
unlikely that agencies will seek approval for such a
conversion. The CSC has also made it clear that the
conversion mechanism applies to "program-size adjustments...
and not simply to a small number of cases..."
R.si.des, neither O'di3 nor CSC make any provisions For
reversing the process - giving back the permanent slots -
should the situation which led to the conversion later change.
Clearly this is not the mechanism for the individual
manager to use to obtain an optimal staffing mix of full-time
and part-time employees. Dior does the process live up to
Senator Javits' hope of a flexibility that will permit the
executive to make the most effective use of an important
and effective segment of the employee population.
The facts and observations made in this memoranchun by a
group of knowledgeable Federal personnel officials clearly
indicate that the flexibility claimed by Mr. Pompton is
illusory.
"The requirement does not take into account the amount and
type of work to be done and would be imposed whether or not
such work could best be accomplished by part-time employees."
in this instance the Chairman overlooked not the
realities of Federal employment but the language of the
_egislation. Section 2(a) clearly and simply allows the
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Senator Gale 11. McGee
October 10, 1973
Secretary to find that fulfillment of the part-time positions
requirement is not feasible and thus to allow specific
exemption from the bill's requirements. Obviously, some
positions must always be filled on a full-time basis.
Experience with many types of employment in the private
sector, however, demonstrates, that with a bit of creative
leadership and imagination it is not difficult to fill
one out of ten positions with less-than-full-time
employees.
3. "The bill would require that some jobs now filled on
a full-time basis be converted eventually to part-time.
This would be more costly because of additional overhead
expenses and would result in inefficient operations in
some work situations."
There may well, be some additional overhead and training
expense involved in providing a more adequate number of
part-time positions. The evidence presented to the Committee
in the Hearing, however, indicated that part-time employees
are generally more efficient and productive on an hour-for-
hour basis than their full-time counterparts. The growing
use of part-timers in the private sector, indeed their use in
the Federal service, should be sufficient to disabuse anyone
of the prior assertion that full-time employment is
necessarily more efficient than part-time.
4. "Labor market conditions... would... make it impossible to hire
enough well qualified employees in some types of jobs..."
This is no doubt true. As noted before, the bill makes
adequate provision for such circumstances. It should be
noted that testimony and materials inserted into the
hearings record demonstrate that there is a vast simply and
even oversupply of qualified people desirous of working less
than full-time, Additionally, it might be expected that
many highly trained and qualified civil servants who now elect to
retire early might well be willing to stay on in part-time
positions if such positions were created.
In closing, I would like to point out that, unlike the
proponents of the bill, Mr. Hampton has produced no evidence
in support of his position. One must wonder how the
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Senator Gale W. McGee
October 10, 1973
C"on iss'_on can claim to be actively interested in promoting part-
time employment and yet so devoid of any empirical evidence
regarding its merits. Like the dismal statistics concerning the
ctual rxtent of part-time employment '..n the Civil Service, Mr.
Ialampton's letter is another monument to the Connnission's
indiffe:-ences toward promotion of new and creative approaches
to publ:Lc employment.
Thank you again, Mr. Chairman, for your concern with
improving the opportunities offered by the Federal government.
11 nce'rc:Ly ,
01
,4'.
J01 I V. T[>T!IIEY
United States Senator
.NT/lar
Frclosures
cc: Mr. Robert E. Hampton
Mr. Francis S. Filbey
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The CHAIRMAN. The next witness is the Honorable Bella Abzug.
Welcome aboard, Bella. Proceed in whatever manner you wish.
STATEMENT OF HON. BELLA ABZUG, A U.S. REPRESENTATIVE FROM
THE STATE OF NEW YORK
Ms. Aszuo. I am very pleased to appear before you. This is really a
joint statement on behalf of Congresswoman Yvonne Burke and my-
self, who has joined me in sponsoring H.R. 9109, the Flexible Hours
Employment Act, which is the House counterpart to the bill that
Senator Tunney just testified about. Because of illness in Representa-
tive Burke's family, she cannot be here.
Let me also explain that I will try to be brief because of my com-
mitments to the deliberations about to commence in the other body.
What this committee is considering may prove in the future to be
one of the most important pieces of legislation to be proposed in this
or any other Congress. The concept of flexible hours employment
should be defined at the outset as I and Representative Burke and the
19 cosponsors of H.R. 9109 understand it. It is basically a two-part
definition.
The first involves part-time employment. That is generally under-
stood to mean less than the normal 40-hour workweek. This could mean
either less hours per day for 5 days or less than 5-day-a-week employ-
ment. The second part of the definition would involve breaking the
normal pattern of the 9 to 5 workday. This alone can produce some
very interesting results that I will go into in a moment.
Part-time workers comprise an increasingly important proportion
of the Nation's work force, supplying trained manpower needs. In
1967, 6 million women worked part time out of choice. Three million
of them worked part time year round. In a 16-year period (1950-66)
the full time labor force increased by 20 percent, and the part-time
work force by 69 percent. The proportion of women in the part-time
labor force increased by 79 percent.
In 1967, BLS estimated that by 1980 one worker out of every seven
would be part time. But the rate of increase in part time workers has
been so great that the ratio of 1 to 7 was reached by the end of 1972,
8 years ahead of the estimate. More than 12.5 million American work-
ers were part-timers at the end of last year, 5 million more than BLS
found in 1963 when it began keeping those statistics.
The need for this legislation is demonstrable on a number of
grounds. First, it would increase the opportunity for the Federal
Government to employ the skills, resources, talent, and brain power
of many segments of the population that, because of the current rigid
system of employment practices, are denied that opportunity.
Indeed, the President's Advisory Committee on the Economic Role
of Women finds that the addition of these millions of women to the
labor market contributes significantly to the national output as meas-
ured by gross national product.
While most of the benefits of this additional output accrue to the
women who produce it and to their families, there are direct benefits
to society at large, including the taxes paid on women's earnings.
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If we had a meaningful system of flexible hours, using the definitions
that I have provided, more women--especially women with children,
the handicapped, and the elderly, would have a chance to work for the
Federal Government.
The problem of talented women with children who would like to
return to work is great.
Skilled professional part-time workers are usually women. Those
men who have part-time jobs are generally students or older men.
Many more women want to work part time but cannot find jobs. The
unemployment rate in 1971 for women with young children was al-
most 12 percent, close to three times the rate of other married women?
a condition which is costly to the women, their families, and the
Nation.
Some 353 million women workers represent 43 percent of the Na-
tion's work force. These workers have 5 million pre-school age child-
ren. I don't have to go into detail with you about the grossly inade-
quate number of quality child-care facilities available or even the in-
equities in the child-care deduction now allowed within the income
tax system. Let me give you an example from a letter I received :
For the past ?; years, I have been it civil servant and for the past 4 years
of this time have worked for the Office of Child Development, Department of
Health, Education, and Welfare in Dallas, Tex. I wholeheartedly support this
legislation for several reasons. But this year, I am particularly interested since
I will become a mother for the first time in December.
While the Federal regulations presently are quite liberal compared to most
private industry, they are rigid. For instance, you are allowed a period of ab-
sence for maternity reasons of about 14: weeks--'6 weeks before expected date of
delivery and 8 weeks after actual delivery, unless an operating agency head
establishes, by regulation, that a longer period of incapacitation is normal in his
agency for types of positions of a strenuous or physically exacting nature.' No
provision is made for part time during this period-it is an 'all or nothing at all'
situation.
Many women would come back to work sooner if they were allowed to work
only part time. And this makes sense. I have observed that many women come
back to work full time only to find themselves exhausted in their new dual role
of mother and worker. If they were allowed to ease back into their workday
which would allow adjustment to their work schedule at home also, all sides
would benefit.
But with a little help from the Federal Government-with the help
provided by a broad flexible hours program-we can upgrade the effi-
ciency of current Federal employees who might opt for fl.exi-hours
positions, attract talented women, who because they can't find child
care or have some commitments at home, can't work 40 hours a week
from 9 to 5.
That part-time workers are "management bargains" has been the
theme of most evaluations which the increase of part-time workers has
generated. Some of the advantages found were-
Greater selectivity possible by the employer ;
Low turnover rates ;
Lower fringe benefit rates;
High productivity ;
Greater maturity-ability to organize, to make relations, to synthe-
size work ;
Stronger motivation, growing out of appreciation for maintaining
skills.
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The American Society for Public Administration endorsed part-
time work in private business as a source of specialized, high caliber
professionals. The Wall Street Journal considered the advantages
of part-time workers as meriting a front-page story in March of this
year.
The Russell Sage Foundation, the Radcliffe Institute, Harvard,
Stanford, and Princeton are among institutions finding the use of part-
time women of value. John Kenneth Galbraith in his recent book,
"Economics and the Public Purpose," states unequivocally that there
should be greater flexibility in work hours to allow more sharing by
husband and wife of family chores.
Finally, almost 24,000 workers responded to the survey in which
21,683 were in favor of a flexible-hours program by suporting a 4-day,
40-hour workweek.
Of course, I would like to make it clear that nothing in this legisla-
tion should be construed to interfere with any existing or future col-
lective bargaining agreements or Federal wage-and-hour statutes.
Let me briefly mention at least four other segments of the working
force population that could benefit from such a program. The talents
of the handicapped are lost to the Federal Government for a variety
of reasons, including prejudice, and often architecture, but one of the
problems that groups representing the handicapped have expressed
to me, is the problem that the handicapped have in competing with the
crush of people during the rush hour. Adoption of this measure could
add this large group to the Federal work force in significant numbers.
Students could more easily work for the Federal Government, and
Federal employees could more easily pursue advanced degrees or spe-
cialized training. People who are thinking of retiring from the Fed-
eral service might think about working longer, giving us the benefit
of their experience, if they could reduce their number of hours.
Another segment of the population that would benefit from this
program are men. Men who are considering the responsibilities of child
bearing and would like to assume a greater share of that responsibility
could opt for participation in this program.
Within the Federal Government there have been some experiments
with part-time workers-mostly women in the AEC, Department of
Labor, HUD, Peace Corps, National Science Foundation, and the
Veterans' Administration. But there are inherent impediments within
the Federal Government's employment policies which have retarded
its development. Why hasn't the Government moved ahead in this
critical area ?
According to a very thorough report of the HEW women's pro-
gram : the answer seems to lie in the budget process and employment
ceiling controls which have created an artificial dichotomy between
full-time and part-time employment, a dichotomy which need not
persist if the facts are understood.
These controls have emphasized full-time employment and given
little attention to part time. The effect has been to focus management
attention of full time with no incentive to establish and maintain an
optimum employment mix.
Does it work? Yes. It has been successful in private industry where
it is being used. Let me give you a few examples. In a recent (Septem-
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her 10) article in Newsweek, a vice president of Hewlett-Packard,
which recently converted its 15,000 employees to flexible hours, said,
"I now have people from 7 a.m. to 5:30 p.m." Still quoting from News-
week, "Executives say the system virtually eliminates tardiness, cuts
absenteeism, and boosts morale * * *." Let me just cite some other
American companies that have adopted this system. Nestle, Occidental
Life of California, Lufthansa German Airlines, Metropolitan Life,
and Hewlett-Packard.
There is a subsidiary point that should be raised at this time. I am
sure that in your considerations of the civil service in general, you
have come across the problem of getting the civil service to serve the
people. You have probably heard complaints about Government agen-
cies, especially those that deal with the public, being opened only
from 9 to 5, 5 days a week. People complain about having to miss
their own work to take care of some problem with the Government.
If we had a flexible-hours program, it is possible that we can open
the doors of the agencies before 9 and keep them open after 5.
With the adoption of this proposal, we can increase productivity
and efficiency in, Government, open the work force to groups that are
excluded, and increase the Government's contact with the people it
serves.
I would like to insert in the record the text of the House version
which Mrs. Burke and I have introduced, with a list of its
cosponsors.
The CHAIRMAN. I want to thank you very much for your contribu-
tion to this, your leadership. We may have some other questions that;
we will want to put to you as we begin to sort this out, because it is
very complex.
Ms. ABZUG. 'des.
The CHAIRMAN. We would like to feel free to do that or for a mem..
her of your staff to wrestle with that with us.
Ms. ABZUG. I would very much welcome that opportunity. If there
is anything we can answer or anything we can be helpful with, we
would be more than glad to answer any questions.
The CHAIRMAN. Thank you very much.
Ms. ABzuG. Thank you for your courtesy here this morning.
The CHAIRMAN. The committee hearings will be recessed until 1:30.
We will resume at 1:30 to hear the remaining witnesses on this bill.
We will reconvene in this room at 1:30.
[Whereupon, at 12:26 p.m., the committee was recessed, to reconvene
at 1:30 p.m., the same day.]
[The aforementioned bill H.R. 9699 follows:]
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93D CONGRESS H
18T SESSION
. R. 9699
IN THE HOUSE OF REPRESENTATIVES
JULY 31,1973
Ms. ABZUa (for herself, Ms. BURKE of California, MS. CHISHOLM, Mr. CONYERS,
Mr. CORMAN, Mr. DELLUMS, Mr. EDWARDS of California, Mr. FRASER, Mr.
HARRINOTON, Mr. MCCORMACK, Mr. MITCHELL of Maryland, Mr. MOAKLEY,
Mr. OWENS, Mr. REEs, Mr. ROSENTHAL, Mr. ROYBAL, Mr. STOKES, and Mr.
WALDrE) introduced the following bill; which was referred to the Com-
mittee onPost Office and Civil Service
A BILL
To provide increased employment opportunity by executive
agencies of the United States Government for persons unable
to work standard working hours, and for other purposes.
1 Be it enacted by the Senate and House of Representa-
2 tines of the United States of America in Congress assembled,
3 That this Act may be cited as the "Flexible Hours Employ-
4 ment Act".
5 SECTION 1. As used in this Act, the term-
6 (1) "executive agency" means an executive depart-
7 anent, a Government corporation, and an independent
8 establishment, including the United States Postal Serv-
9 ice;
(2) "flexible hours employment" means part-time
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1 employment, as for example, four hours per work day or,
2 one, two, three, or four days per workweek, and includes
3 such other irrangemeuts as the Secretary establishes
4 consistent with the policy set forth in section 2 (a) ; and
5 (3) "Secretary" means the Secretary of Labor.
6 SF.c. 2. (a) It is the policy of the United States Govern-
7 went that, unless adjudged impossible by the Secretary, at
8 least 2 per centum of the positions at each and all levels in
9 all executive agencies shall be available on a flexible hours
to employment basis for persons who cannot work or do not
11 desire to work full time within one year after the date of en-
12 actment of this Act. Not later than two years after the date of
13 enactment of this Act, 4 per centum of such positions shall be
14 available for such persons.. Not later than three years after the
1.5 enactment of this Act, 6 per centuni of such positions shall be
16 available for such persons. Not later than four years after the
17 enactment of this Act, 8 per centum of such positions shall be
18 available for such persons. Not later than five years after the
19 date of enactment of this Act. 10 per centum of such positions
20 shall be available for such persons.
21 (b) Each executive agency shall adopt and maintain
22 procedures, continuously conduct activities and projects, and
23 undertake such other efforts as may he appropriate to carry
24 out the policy of subsection (a) of this section. The Secretary
25 shall promptly formulate and implement and thereafter super-
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3
1 vise a program to assist executive agencies in carrying out
2 such policy.
3 (c) Each executive agency shall report quarterly to the
4 Secretary on the procedures, activities, projects, and other
5 efforts undertaken to carry out the policy of subsection (a)
6 of this section. The quarterly reports shall contain documenta-
7 tion concerning the extent to which the employment require-
8 ments of subsection (a) have been fulfilled and an explana-
9 tion of any impediments to their fulfillment and of measures
10 undertaken to remove these impediments.
11 (d) The Secretary shall report annually to the Con-
1.2 gross on the procedures, activities, projects, and other ef-
13 forts undertaken to carry out the policy of subsection (a) .
14 The annual reports shall contain documentation concerning
15 the extent to which the employment requirements of sub-
16 section (a) have been fulfilled and an explanation of any
17 impediments to their fulfillment and of measures undertaken
18 to remove these impediments.
19 SEC. 3. (a.) The Secretary shall carry out all his or
20 her functions relating to the welfare of wage and salary
21 earners through the Employment Standards Administration
22 of the Department of Labor, or any administration of the
23 Department of Labor that may, after the effective date of
24 this Act, be charged with responsibilities similar to those
25 of the Employment Standards Administration, including-
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4
1 (1) the conduct of researeh and expcrimcntatinn
2 projects and any other activities designed to promote,
3 in. public and private employment, the advancement of
4 opportunities for persons who are unable or who do not
5 desire to work standard working hours;
6 (2) the promotion and supervision of prograrns for
7 flexible hours employment in the executive agencies;
8 and
9 (3) the encouragement of adoption of flexible hours
10 employment practices by all public and private em-
11 pl oyers.
12 (b) The Secretary shall carry out all of the functions
13 of this Act through the Employment Standards Adininis-
14 tratiort of the Department of Labor, or any administration
15 of the Department of Labor that may, after the effective
16 date of this Act, be charged with responsibilities similar to
17 those of the Employment, Standards Administration.
18 SE.c.. 4. No person who is otherwise qualified for full-
19 time Federal employment shall be required to accept flexible
20 hour employment as a condition of new or continued em-
21 ployment.
22 Si;c. 5. All persons employed in flexible hours employ-
23 ment -positions pursuant to the policy established by section
24 2 (a) of this Act shall receive, on a pro rata basis, all benefits
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r
J
1 normally available to full-time employees of all executive agen-
2 dies in similar position or grade.
3 SEC. 6. No executive agency subject to the provisions of
4 this Act shall, for the purpose of determining that agencies
5 personnel ceiling requirement, count any employee employed
6 on a flexible hours employment basis other than on a pro rata
7 basis according to the percentage of hours such employee
8 works in each forty-hour workweek.
9 SEC. 7. No person employed as an expert or consultant
10 pursuant to section 3109 of title 5, United States Code, and
11 no person who is employed for more than twenty hours in any
12 forty-hour workweek by any employer other than an executive
13 agency may be counted for the purpose of determining compli-
14 ance with the policy established in section 2 (a) of this Act.
15 SEC. 8. There are authorized to be appropriated such sums
16 as may be neces .ary to carry out the purposes of this Act.
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The CHAIRMAN. The committee will come to order and resume the
hearings on the bills on the agenda.
We are at the moment in the middle of testimony on S. 2022, a
measure introduced in the Senate by John Tunney from California.
The next witness on the list is Mr. Raymond Jacobson, Director
of the Bureau of Policies and Standards of the Civil Service
Commission.
I would like to mention to the upcoming witnesses that if it is pos-
sible for you not to emulate the Senate but to zero right in on your
targets, it would be very much appreciated inasmuch as we are already
being threatened by rollcall votes. I am always embarrassed to have to
interrupt with testimony, if you can expedite it with the understand-
ing that your full statement will be a part of the record intact, and if
you can leave out any part in any way that in your judgment is the
most effective, it would be appreciated.
Proceed in any case. If you will proceed, Mr. Jacobson.
STATEMENT OF RAYMOND JACOBSON, DIRECTOR OF BUREAU OF
POLICIES AND STANDARDS, CIVIL SERVICE COMMISSION
Mr. JACOBSON. Thank you very much, Senator.
I n view of the fact that I do not have a prepared statement, I think
it will be possible for me to accede to your desires.
The CHAIRMAN. Sometimes those are more dangerous situations.
Hr. JACOBsoN. I realize that.
The CHAIRMAN. You are challenged.
Mr. JACOBSON. I. will try to rise to the challenge, sir.
The Civil Service Commission has supplied the Senate committee
yesterday with a report on bill S. 2022.
The CHAIRMAN. How come you are opposed to Billie Jean King
down there?
Mr. JACOBSON. As a tennis player myself, I was very pleased to see
Billie Jean doing such a great job the other night. I am not opposed
to Billie Jean. I think she is great.
As our report indicates, Senator, we are very much in favor in the
Civil Service Commission of a Government policy of creating as many
part-time employment opportunities as possible. We are very inter-
ested in that. We think that is a desirable goal. We already have, in
the Federal work force, a significant number of people engaged in
part-time employment and we feel that it is a very useful contribution
to the Government's meeting its obligations. We do have considerable
objections to the bill as written. Those are stated in specific detail in
our bill report, and I would not necessarily try to repeat them. I think
to summarize them basically
The CHAIRMAN. I think Senator Tunney and others who support it
are not necessarily insisting on the bill's language per se. It is their
idea that we want to give life to and procedures to implement it so
that we do not suffer from further delays, if we can avoid it.
Mr. JACOBSON. I think my point is that we feel that the approach the
bill takes it not ,appropriate to achieve the objectives desired. We fully
endorse the objectives, increasing part-time employment opportunities,
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or maximizing them; we have to do this in the light of the current cir-
cumstances and the needs of the Government to get the job done. We
do not really think legislation of this type is necessary. For example,
insofar as the administrative flexibility that is needed to enable Fed-
eral agencies to employ workers part time, such flexibility does exist.
We, in fact, have in the Federal service now, 2,421,000 full-time perma-
nent employees. We have 130,000 part-time regular employees. And
63,677 part-time intermittent employees.
The great bulk of the part-time workers are in the Postal Service,
which as I understand the wording of 'the bill would be covered by the
bill, so I have included those. But if we were to exclude the Postal
Service from those calculations, the numbers are smaller but still siz-
able. The number of Federal employees, full time, permanent [exclu-
sive of Post Office] is close to 1,900,000. The part-time regulars are
24,900 and the part-time intermittents, some 35,000.
Now the mere fact that we have something like 60,000 part-time
employees, exclusive of the Postal Service, indicates that it is not un-
heard of in the Government to have part-time employment. We obvi-
ously have a significant amount of it. Whether the particular percent-
age is the right percentage or not, I certainly am not prepared to speak.
The CHAIRMAN. I am trying to mentally calculate a percentage now,
it would be roughly what?
Mr. JACOBSON. Roughly, close to 31/2 percent, I suppose. I have not
figured those out, but I will be glad to do that.
I think our point is really that the making available of part-time
opportunities necessarily will vary within the different departments
and for different programs and different kinds of jobs.
There are certain kinds of jobs we feel do not lend themselves par-
ticularly to part-time employment. There are other kinds of jobs that
do. We think that to the extent that we have the types of positions
which do lend themselves to this type of employment opportunity, we
should maximize the use of this part of the labor market.
I must add, of course, that we also feel it is necessary to deal with
the whole problem. We are faced with applications, each year, from
almost 2 million citizens for Federal jobs, and a small proportion of
these are interested in part-time employment. We make about 175,000
hires a year. Now the number of those who are part time will vary
greatly. We find, for example, that in certain kinds of agencies and
certain kinds of conditions we have had very effective use of part-time
people and we would like to see more of them. As a specific example, if
I can get personal in terms of my own responsibilities, I have a staff of
1.90-some employees in the Bureau of Policies and Standards in the
Civil Service Commission. It is not a large bureau, but an organization
that does, we think, very significant work. We have at the moment
nine part-time people working in professional and clerical jobs, work-
ing at several levels.
These are people who are making a very effective contribution to the
work of our bureau. I am proud of them, I am happy to have them.
We are making attempts right now to find more such people. But I
must say that we do feel that the establishment of the kind of require-
ments that this law would seem to lay on the Federal agencies, to put
a uniform requirement on all agencies at all levels, to have certain
fixed numbers of part-time positions available, is simply unrealistic.
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We believe, for example, that in many of our blue collar and trades
positions-and we have something like 600,000 of our total Federal
employment in that area-we really thank that the skills will not
be available for the large part of the labor market. We do have some
part-time blue collar employees, but not a large proportion.
For certain jobs, such as border patrol officers, park rangers, or
foresters, where they tend to work in relative isolated circumstances,
we think the use of part-time people is going to be rather difficult
from everybody's concerns, and therefore we cannot see applying a
kind of uniform requirement or standard.
I should also note that the Civil Service Commission has focused
on the problem of part-time opportunities through our responsibili-
ties under the Equal Employment Opportunity Act. As part of that
total program, as part of the Federal woman's program component
of the equal opportunity program, we are getting information from
agencies on their affirmative action plans. Where we find that their
plans are not adequate, we are dealing with that on an individual
basis, with individual agencies.
We really think this problem has to be approached individually,
by job site, by agency, by work situation, and by the market condi-
tions. I think there has to be recognition of the real relationship be-
tween market and available opportunities.
The techniques for dealing with the problem perhaps have not
been stressed enough. We are certainly willing to explore the possi-
bility of trying to emphasize more to the agencies both their respon-
sibilities and the flexibilities possible in the system. For example, I
noticed that in the testimony of Senator Tunney this morning there
was reference to inflexibility in the. system insofar as manpower con-
trols of ceilings are concerned. We dealt; with this problem some 2
years ago, with the Office of Management and Budget. We looked
at it specifically with them.
We arrived at agreements with them as to their willingness to treat
part-time work flexibility, and we issued to all departments and
agencies of the Government formal instructions which explained how
they might deal with this problem. I would be glad to submit a copy
of that letter for the record.
The CHAIRMAN. I would like to have a copy of that for the record,
and if you could., summarize or make a summation or listing of other
ways in which the record would show that the Commission has en-
couraged greater flexibility in this direction.
Mr. JACOBSON.. There are two or three other items. I will be glad
to submit those for the record.
I think the only other point I would like to make is that while the
bill has the title of flexible hours, and there was reference to this in
both testimonies of Senator Tunney and Congresswoman Abzug this
morning, I have a little problem understanding the intention
The CHAIRMAN. I think it is Congress--
Mr. JACOBSON. Pardon me. I have a little, trouble understanding how
this bill relates to what is popularly known as flex time; that is, an ar-
rangement in which employees have more freedom in setting their own
hours, in which the employer and employee work out a schedule ap-
propriate to particular circumstances-somebody comes in a little early
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or leaves later, something of this sort-this bill seems to me to not be
related to that. It seems to be related only to part-time employment as
I read it, at least as I read section 7 of the bill, and I may be misread-
ing it. But it seems to me that section 7 in effect says that this can only
deal with people who are employed for 20 hours, and that people em-
ployed more than that would not be counted.
I may be misreading that, because we have not had a great deal of
time to study it. At this point at least it seems to us to read rather
strangely.
The question of flex time is a quite different question than this bill
deals with. It may well be that the Commission and the committee
may want to turn its attention to that. Here we are presently exploring
separately with the agencies and with our General Counsel the possi-
bility under the present provisions of law to deal with some of the ideas
about experimentation with variable work schedules or flex time. The
provision of the law that we are concerned about here is that section
of title 5 which deals with the requirement for a 40-hour week and an
8-hour workday, and provides for overtime beyond 8 hours in any
one day or beyond 40 hours in any one week.
The question of whether we could authorize under the present word-
ing of the law experimentation with flex time, that is 40 hours spread
some way differently, is a question we are currently having a good deal
of trouble wrestling with legally. We may find we might need to seek
legislative solution here, rather than be able to do it under the current
legal structure.
If we feel we can do it under the current legal structure, we would
hope to have some experimentation going on in that area, and several
Government agencies have expressed an interest.
The CHAIRMAN. The reason for this hearing and the obvious expla-
nation for the deep concern on this is that there is or has not been a
great deal of movement on it or perhaps, probably more awareness of
it than many would have thought. But before we had equal employ-
ment opportunity agencies, before these things came center stage, there
was, for whatever reason, whether it was comfortableness or the habit
of having done it differently for so long, that they seem to have im-
pressed on the sensitivity to the changing climate in this whole area.
That is the reason for the concern. I think if there had been more fluid
track record even on this, that this kind of bill might not have oc-
curred. So you get it drawn in the dimensions that we have it in the
pending bill.
What we are really exploring here is not this bill as the ultimate
= answer necessarily. We want to arrive at a wise answer all the way
around. Significant movement would be one of the keys, rather than
for studies of problems.
Mr. JACOBSON. I think my oxily reaction, Senator McGee, would be
that-if we separate the two issues, part time versus flex time-in the
area of part time we are already doing a great deal. I think it is evi-
denced simply by the data, the statistics I have given. Whether statis-
tics appear adequate to any particular individual, I do not know.
The CHAIRMAN. The law you allude to may be a factor that requires
legislative adjustment. I think that is quite obvious.
Mr. JACOBSON. I would just make one other point, as far as the law
goes, the law does not give us any problem with part-time employees.
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In connection with another point made by Senator Tunney this morn-
ing, the present part-time regular employees of the Federal Govern-
ment do receive all the benefits. That is, they receive their proportion-
ate share of leave, retirement, and everything else to which a full-time
employee would. be entitled. We do not have a problem with them. We
do have a problem, but it is with a much smaller part of the part-time
population. There are a few people in the temporary category, tem-
porary part-timers, who do not receive some of these benefits. If they
are genuine temporaries, I do not think that is really a legitimate
problem. However, if they are temporaries who are really not tempo-
raries, but called that, then I do think it is a legitimate problem.
But in terms of part-time staff with regular tours of duty, generally
speaking, they do get all the benefits of the full-time work force. They
are not distinguished. It is not a two-class society.
The CHAIRMAN. What problems would this give you if it were
shifted to the Department of Labor-administratively?
Mr. JACOBSON. We have taken position quite specifically in our report
that matters pertaining to Federal employment and to the Federal
work force. as a work force, should not be divided between the Civil
Service Commission and other agencies. We feel that we are the
central agency of the Government that is charged by the Congress and
by the President with personnel management leadership. We take that
responsibility seriously and we do not feel that this responsibility
should be assigned some place else. Besides then you face the adminis-
trative officers of the Government with having to carry out their jobs,
doing the public's business, with the confusion of having directions,
orders, and instructions emanating from different sources without coor-
dination or clearance.
This is simply, we feel, an intolerable and unwise situation. We
would very strongly oppose placing such authority with the Secretary
of Labor.
The CHAIRMAN. I know we will have some more questions for you
after we get the full record made. 'But subject to that, I have no more
questions at this time.
Mr. JACOBSON. I will be glad to deal with your staff or you at any
time.
The CHAIRMAN. Thank you very much.
[The aforementioned material follows:]
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UNITED STATES CIVIL SERVICE COMMISSION
WASHINGTON, D.C. 20415
Honorable Gale W. McGee
Chairman
Committee on Post Office and Civil Service
United States Senate
Washington, D.C. 20510
I am submitting additional material for the record in support
of my testimony on S. 2022 given Wednesday, September 26, 1973.
The statistics shown on the attached sheet represent employment
as of June 1973 and exclude employees in agencies with personnel
ceilings of 2,499 or less. These agencies account for less than
one per cent of the Ececutive work force.
Copies of the following U. S. Civil Service Commission issuances
relating to or which include information on part-time employment
are also enclosed.
FPM Letter 312-3 Deployment Ceilings and Part-time
Positions on Deployment
FPM Letter 713-22 Equal Deployment Opportunity
Plans -'Appendix II, page 9 --
Cites need to make available
part-time opportunities by
agencies.
Pamphlet No. FEID 2 The Federal Women's Program: A
Point of View -- Section on
part-time employment
Sin rely,
Raymond Jacobson
Dir~ctor /
Bur6au of Policies and Standards
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OP P
O I
d N
N H
OD
CI N
>.O 0H m H
~-i 01 07 Y. N l'
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69
PUBLISHED IN ADVANCE OF INCORPORATION
IN FPM CHAPTER 3L2
RETAIN UNTIL SUPERSEDED.
UNITED STATES CIVIL SERVICE COMMISSION
FEDERAL PERSONNEL MANUAL SYSTEM
LETTER
Washington, D.C. 20415
March 29, 1971
New FPM Material
Because the Office of Management and Budget administers the ceilings on
employment, the Federal Personnel Manual has had little, if anything, to
say about these ceilings. It has, however, become evident that users of
the Manual need certain basic information about the ceilings, especially
as they apply to part-time employment.
The Office of Management and Budget has cleared for technical accuracy
a statement we are issuing in the FPM, chapter 312. The statement is
designed to provide positive guidance to personnel people and to correct
any mistaken impressions that desirable part-time employment opportunities
cannot be fostered because a part-time employee must always be counted as
a full-time employee under the ceiling.
Establishment of Ceilings
Maximum allowable employment figures (employment ceilings) for each agency
are determined by the President at the time of the annual budget review,
both for the end of the fiscal year then in progress and for the end of
the succeeding fiscal year. These ceilings are administered by the
Executive Office of the President, Office of Management and Budget.
Ceilings as Controls
a. Two kinds of ceilings are established. These are (1) full-time
permanent employment, and (2) total employment. By subtracting (1) from
(2) the difference, called a "derived ceiling", becomes, in effect, a
limitation on the number of part-time, temporary, and intermittent employ-
ees. Since all ceilings apply to the last day of each fiscal year,
June 30, the agencies have flexibility as to how to apply these ceilings
within the year, particularly with respect to the non-full-time employment.
INQUIRIES: Bureau of Policies and Standards, Code 101, Ext. 25582
CSC CODE 312, Position Management
DISTRIBUTION: FPM
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70
FPM LTt. 312-3 (2)
b. All employment is subject either to the actual full-time employ-
oent ceiling or to the derived ceiling. All employees in each category
of employment must be included in the monthly employment reports which
are furnished to the Congress and which. the Committees of the Congress,
the President, and the Office of Management and Budget use to monitor
administration of the ceiling requirements.
c. .Most agencies understand clearly how requests for revisions in
employment ceilings mustPe submitted to the Office of Management and
Budget and what thorough justification must be advanced to support an
asserted need for additional employment. (See OMB Circular A-64 and its
revisions.) Misunderstanding has however arisen from time to time with
respect to part-time employment.
d. For purposes of this discussion, a part-time employee, regard-
less o:= the nature of his or her employment, is one who works less than
40 hours a week. The employment may be regular and recurring (loosely
referred to as "permanent"); it may be for a temporary period; or it
may be intermittent in the sense that the person works only when called
in, but it is still the kind of employment which is subject to the
derived ceiling.
a. The Office of Management and Budget states that if persons
seeking regular, permanent, part-time jobs have been told that it is
impossible to offer this kind of employment because each such position
must be charged against the full-time permanent ceiling, they have been
incorrectly advised. The first course of action that an agency should
always explore is to make a determination whether the assigned total
employment ceilings are large enough to accommodate a desired part-time
program. Part-time employees can be hired against vacancies in the
derived ceiling as well as against vacancies in the full-time permanent
ceilinf;. These hiring, against vacancies can be carried out without
recourse to the Office of Management and Budget.
b. If, however, the derived ceiling is not high enough to meet an
agency's legitimate needs for part-time employment, an attempt should
be made to accommodate the part-time employee within the full-time
permanent ceiling. If this accommodation is not possible, an applica-
tion to the OMB for the conversion of spaces from the full-time permanent
ceiling to the derived ceiling to permit: splitting full-time jobs "would
normally receive favorable consideration upon request." In other words,
the application of the ceiling need not always force an agency to count
a part-time employee as the equivalent of a full-time employee or reduce
the total man-hours of employment available to an agency.
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o Two persons each working 20 hours a week equal one job
of 40 hours a week full-time. If employment of two such persons
could be accommodated in existing ceilings without change, they
would count as two individuals in the total employment ceiling.
However, if their employment could not be accomplished under
the total ceiling, the Office of Management and Budget would,
upon request, reduce the full-time permanent ceiling by one
and increase the total employment ceiling by one, thus increasing
the derived ceiling for part-time, temporary, and intermittent
employment by two.
o Similarly, if the employment of four part-time employees
each working 30 hours a week could not be accommodated within
the ceiling, the revision to be requested would be to reduce
the full-time ceiling by three (120 man-hours) and increase the
total ceiling by one, thus increasing the derived ceiling for
part-time, temporary, and intermittent employment by four.
c. The principles involved apply to program-size adjustments that
might actually be requested and not simply to the small number of cases
used for illustrative clarity.
The Office of Management and Budget and the Civil Service Commission have
strongly urged that government agencies make employment available to women
who can work only part-time; to the physically handicapped, some of whom
cannot work full-time; to persons who want to work only part-time because
of their desire to continue their education; and to other appropriate
categories. If executive agencies wish to move along similar Lines, they
will find the Office of Management and Budget administers the ceilings in
a way that permits and encourages the kind of flexibility that results in
n'-~
Nicholas J. Oganovic
Executive Director
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I PUBLISHED IN ADVANCE 'IF "fit UePORA TION
IN FPM CHAPTER 1L.~
RETAIN UNTIL SUPERS7~,E4.
iva,hamgtea, D.C. 20415
FPM LETTER NO, 713- 22 October 4, 1973
1. The purpose of this Letter is to share with you some thoughts based
on our experiences in the Commission's first year of reviewing EEO
Affirmative Action Plans submitted under Public Law 92-261, and to
provide detailed guidance including a forma-: for submission of EEO
action plans due November 1, 1973 and thereafter. This guidance is a
direct outgrowth of our first year's experience as well as suggestions
from many agencies, and should help you develop increasingly meaningful
and results oriented EEO plans which can be reviewed expeditiously by
the Civil Service Commission.
2. During this first year of operation under P.L. 92-261, the CSC
reviewed many agency national and regional EEO Affirmative Action
plans. There were very few cases where we were able to approve a
plan without first requiring that the submitting agency or field
installation make modifications. Following are some of the more common
deficiencies which prevented immediate approval:
a. Lack of evidence that an assessment o the status of equal
employment opportunity in the agency or the subordinate organizational
unit covered by the plan was made preparatory to plan development. This
is probably the most frequently noted deficiency. Without such an
assessment, it is difficult for an agency to determine what action needs
to be taken to overcome problems relating to equal employment opportunity
and the resulting plan is likely to be one that does not deal with the
real problems of the organization. Some agencies appear to have "filled
in" items under the various action areas required by Commission guidelines
without. having first determined the problems the actions were intended to
overcome in the particular agency.
INQUIRIES: office of Federal Equal Employment Opportunity, [phone]
CSC CODE 713, Equal Employment Opportunity
DISTRIBUTION: FPM (advance edition limited)
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b. Weak Upward Mobility plans. Although this plan element is
required specifically by law, many agencies failed to specify programs
under which opportunities are made available to employees for enhancing
skills so they can advance in accordance with their potential and
capability and the opportunities available for upward movement in the
job structure.
c. Lack of responsiveness to the 16-Point Program for the Spanish-
surnamed and the Federal Women's Program. This is also symptomatic of
failure to review adequately the current EEO status within the organiza-
tion and to consult with minority group and women's organizations,
unions, and community groups as appropriate.
d. Vague general statements rather than specific action items and
lack of target dates. It is nearly impossible to assign a firm target
date to an action item that is in actuality a statement of broad policy
or general intent. Agencies which have failed to complete either an
assessment of their current EEO status or an accomplishment report,
or both, often resort to such general statements without target dates,
in writing their EEO plans.
e. ,Failure to involve line managers and supervisors in carrying out
appropriate plan items. When a plan assigns very few operating managers
and supervisors (such as bureau, agency, or division heads depending
on the size, nature, and geographic distribution of the agency) responsi-
bility for carrying out action items, and when most of the actions are
assigned to Personnel or EEO staffs, chances are that the plan has been
prepared without the cooperation of and coordination with operating
officials and the plan will solve few if any of the real EEO problems
of the organization. Further, the managers and supervisors must
recognize and carry out their continuing responsibilities in the EPA
program. It is important, therefore, that they become involved in
developing and applying the affirmative action plan and the plan should
reflect their involvement in the expected accomplishments.
f. Failure to devote adequate resources to the EEO Program. The
failure of agencies to submit action plans on a timely basis and the
failure to handle complaints within time limits indicate a need to give
this activity higher priority including, where needed, additional staff
resources to adequately administer the EEO program. Agencies should
assess their staffing in light of their EEO problems and the number
of employees involved and make necessary staff adjustments to assure
that sufficient resources are available to maintain an efficient and
effective program. Equal employment opportunity must be top priority
in an agency and staffing, including full time staff where needed,
should reflect this priority.
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g. Goals and Timetables in EEO action.plans_ The establishment of
numerical goals and timetables is a usef?il management concept that can
significantly enhance EEO plans where the use of such goals will
contribute to the resolution of ecual employment opportunity problems.
When used, goals should be set at the lowest practicable level in the
agency to assure that they are reasonable in tenet of their relationship
to hiring needs and the skills available in the recruiting area. Furthermore,
national plans should clearly indicate that the establishment of local
goals must be consistent with merit principles and not be stated so as
to imply preferential selection procedures.
3. The guidance included in this Letter should assist in overcoming
the common plan deficiencies noted above and others. Appendix I
consists of a fuller explanation of how EEO plans should be developed
and the requirements for submission. Appendix II is a guide to the
organization and format and sets forth the minimum requirements for all
agency annual EEO plans. The revised format should be used for all
annual national and regional plans beginning with those national plans
due for submission to the CSC November 1, 1973.
Bernard Rosen
Executive Director
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APPENDDC I
DEVELOPING AND SUBMITTING AGENCY EEO PLANS
1. Each agency is required to submit a national EEO plan which is
responsive to the overall needs of the agency and requires action
by subordinate organizational units to assure equal employment
opportunity. To insure that Commission offices have adequate time
to review agency plans and secure such modifications as may be
necessary prior to approval, the schedule shown in Attachment 1 to
this Appendix should be followed for submission of EEO plans. The
Commission's written approval is required prior to any change in
submission dates.
2. In addition to national plans, agencies are required to submit
"regional" EEO plans to the Civil Service Commission. The purpose
of regional plans is to assure that specific plans are developed by
each agency on a geographic basis to encourage affirmative action
based on local equal employment opportunity conditions. Because of
the organizational differences among agencies, there are variations
among agencies with regard to the area of coverage in "regional" EEO
plans. The CSC, after discussions with headquarters offices of
agencies with field establishments, has established arrangements for
the submission of regional plans to the Commission. The following
criteria are considered in the establishment of individual agency
"regional" coverage definitions:
o Regional EEO plans must reflect the organizational arrangements
of the particular agency. In determining area of coverage
of the plan, consideration is given to where the appointing
authority is vested.
o Regional EEO plans must provide for a particularized view of
agency staffing and EEO activity within a defined geographical
area (e.g., region, State, SMSA, major field establishment).
o Regional EEO plans should cover a large enough segment of the
agency's workforce to make their review and approval by the
Commission on a decentralized basis meaningful'and adminis-
tratively feasible.
3. Agency regional plan coverage will be reviewed periodically by
the CSC's central office to assure that the arrangements are providing
effective and meaningful coverage of agency field activities.
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4. Regional EEO plans for each agency should be submitted 90 days
after the due date for the agency's national plan. Regional plans
must be submitted according to this schedule, whether or not final
action has been taken on the agency's national plan. Where the
national plan hasn't received final Commission approval, regional
plans can be developed by building on last year's plan, Commission
plan critiques and current Commission guidance or instructions.
5. CSC Regicnal Directors have been delegated full responsibility
for the review and approval of agency regional plans. All questions
relative to regional plans should be directed to CSC Regional
Directors. Agency regional plans should be submitted to the
appropriate (SC Regional Director for review and approval in
accordance with the arrangements agreed to by the agency headquarters.
and the Commission's Office of Federal Equal Employment Opportunity.
6. Agency activities not required to submit regional plans are not
exempt from the requirement to prepare plans and must develop such
plans and have them available for review by the CSC. CSC Regional
Directors may require regular submission of additional plans beyond
those agreed to at the headquarters level.
7. The first. step in action plan development is to assess the current
status of equal employment opportunity within the agency, to locate
problem areas:, assign objectives and goals, and develop action items
designed to overcome identified problems. Employees, labor organiza-
tions, minorities' and women's groups and other interested parties
should be consulted and their input-considered in development of
agency EEO plans. Agencies should also draw upon the results of
personnel management and EEO program. evaluations conducted by the CSC
or agency internal evaluation units.
Because of the importance of assessment to the development of a meaningful
EEO plan, agencies will be required to submit, as a part of their annual
EEO plan, an Assessment Report. This report should briefly summarize
the assessment made by the agency of its EEO situation preparatory to
developing the annual plan of action.. The assessment should be
comprehensive enough to provide for a clear analysis of the EEO situation
in the agency or the subordinate organization and to identify EEO
problems and particular situations needing corrective action. Require-
ments for this assessment, to be made preparatory to the development
of the EEO plan, are given in Appendix II.
GOALS AND TIMETABLES
8. The establishment of numerical employment goals and timetables is
a useful management concept that can significantly enhance EEO plans
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where the use of such goals will contribute to the resolution of equal
employment opportunity problems. Affirmative action to attain goals
must be carried out within the context of the merit system for Federal
employment. Agencies must assure, when using goals and timetables,
that the plan makes clear the necessity of achieving these goals
through the merit system.
9. Employment goals and timetables should be established in problem
areas where progress is recognized as necessary, and where such goals
and timetables will contribute to progress, i.e., in those organizations
and localities and in those occupations and grade levels where employment
of minorities and women is not what should reasonably be expected in view
of the potential supply of qualified members of minority groups and
women in the workforce and in the recruiting area, and available
opportunities within the organization. In addition to using turnover
data and other information relating to anticipated hiring levels, the
skills composition of minorities and women in the recruiting area used by
the organization and the occupational nature of the jobs in the
organization must be considered. For example, professional positions are
often filled from a regional or national labor market while trade and
clerical positions are usually filled from the local labor market.
10. To be meaningful, goals and timetables should be developed according
to organizational levels and components rather than establishing agency-
wide goals which do not take into account local circumstances or
occupational differences. Detailed statistics on employment of minorities
and women will aid in identifying areas where additional affirmative
action is required and can be used in developing specific EEO plan items
for the level or component concerned. Goals and timetables should reflect
considerations of data on estimated turnover and anticipated hiring, as
well as estimated changes in the total number of positions, occupation
by occupation, for the period covered by the timetables.
11. Employment goals and target dates should be reasonable and flexible
indicators for management action. If goals and timetables are realistic,
they will probably be met through appropriate affirmative action. Where
they are not met, the reasons for this should be assessed by the agency
management to see if the goals or target dates for their achievement
should be adjusted, or if additional affirmative actions are needed,
including the further commitment of resources to agency recruitment
and upward mobility efforts.
12. National plans should provide guidance and instructions to
subordinate components and installations on the development of goals and
timetables geared to specific local employment conditions and EEO problems
as outlined above, and as identified by the agency's assessment of the
current status of EEO preparatory to the development of the EEO plan.
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13. Action items should be clearly but briefly stated, along with the
organization or official assigned responsibility for carrying out each
it., and the target date for its accomplishment. The use of vague
generalities in describing actions to be undertaken, results expected,
target dates, or responsible officials should be avoided. While long
range objectives are desirable, the plan should more distinctly reflect
the progress expected during the life of the plan, which will be no
more than one year.
14. Action items should be designed and displayed in such a manner as
to facilitate and encourage changes to improve, update, and expand on
than as appropriate. Agencies should avoid emphasis on statements of
policy or of general intent which lack specificity. Plans should contain
brief, significant action items which are based on the existing employment
situation and which respond to currently identified problem areas or
impediments to equal employment opportunity in all organizational units,
occupations, and levels of responsibility. Since each plan should
contain a provision for periodic review and change, if appropriate,
at specified intervals, and must be superseded by a new plan every
twelve months, the format for action items should be designed to permit
easy entry of dates on which goals were accomplished or of dates of
significant progress toward accomplishment of goals. Appendix II
includes a suggested format for EEO plan action items.
15. Specific actions must be coupled with firm commitment in terms of
meaningful target or completion dates. The establishment and publica-
tion of appropriate achievable target dates in a plan put responsible
officials on notice that they are expected to accomplish the action
within the prescribed period of time, or be held accountable for their
failure to do so.
16. EEO plans should avoid expressing target dates as "continuing",
"now and continuing," "annually", "semiannually", etc. Calling for
specific completion dates wherever feasible will enable program
evaluators to determine in what manner the actions are being carried out
and where immediate follow-up is needed. Establishment of precise
time frames for completion of specific action items will indicate to
responsible officials the rate of progress expected, and will enable
them to plan their efforts accordingly. In those few cases where the
establishment of fixed target dates would not be realistic, it is
reasonable to schedule the action for "continuing" implementation, with
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periodic reports required to be submitted to the appropriate monitoring
office. Some recruitment activities, for example, have to be conducted
on an "as needed" basis, depending upon staffing needs. On the other
hand, development of a recruitment plan or brochure, or any other plan,
policy, or procedure, represents a concrete action for which a firm
target date should be established.
17. Ample provision must be made at agency headquarters and regional
levels for monitoring and evaluating progress in carrying out the actions
outlined in the EEO plan. Lines of feedback to the Director of Equal
Employment Opportunity should be clearly established to avoid inaction
and to identify problem areas in time to take corrective action. Agency
headquarters officials should consider requiring regional managers to
report periodically on the status of major action items and programs as
they are in progress. Similar reports should also be required of local
activities by regional office officials. With close follow-up and timely
evaluation in all program areas, EEO program officials can keep
subordinate offices informed on program ideas, progress, and problems,
thereby reducing duplicative efforts in planning and development, and
utilizing time and resources for program implementation.
18. More detailed guidance on agency internal EEO program evaluation
is contained in Civil Service Commission Personnel Management Series
Pamphlet No. 24, Guidelines for Agency Internal Evaluation of Equal
Employment Opportunity Programs (January 1972), available from the
Superintendent of Documents, U.S. Government Printing Office.
19. An EEO plan should be responsive to and include, where appropriate,
specific action items directed at special problems in assuring equal
employment opportunity, including action items on the particular
employment problems of women or of specific minorities, e.g., Negroes,
Spanish-Speaking Americans, American Indians, Orientals, and Alaskan
natives. This should be accomplished by including, under appropriate
Action Area headings, action items called for in special emphasis
programs, such as the Sixteen-Point Program for Spanish-Speaking
Americans or the Federal Women's Program, so the action plan may be one
consolidated and comprehensive document which speaks to the needs of
all employees, but at the same time responds to the special employment
problems of particular groups.
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20. An agency EEO plan is a public document and therefore agencies
should, upon request, make it available for review or, if feasible,
provide copies to interested individuals or organizations. In addition,
agencies may cart as a matter of practice to publish the plan widely.
The plan should be prepared with the thought in mind that it will be
scrutinized b) many persons and groups. Therefore, it should be
prepared carefully, address itself to the problems of assuring equal
employment opportunity and spell out with specifics the actions that
will be taken to overcome the problems.
21. Each agencywide and regional EEO plan submitted to the Commission
must include a title page identifying the submitting agency or office
by name and address, and specifying the effective date and time frame
of the plan. Public Law 92-26L and E.O. 11478 imposes responsibility
for equal empoyment on the agency head. Therefore, the title page
of the national EEO plan must include the signature of the agency head or
deputy, and the agency Director of Equal Employment Opportunity, indicating
their approval. The title page of the regional plan must include the
signature of :he regional agency official responsible for the EEO
program in the activities or installations covered by the regional EEO
plan.
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o Agencies should obtain written approval from the Commission
prior to changing the basis (fiscal/calendar) for submitting
their plans of action.
o Regional Action plans are due in the appropriate Regional
Commission office 90 days after submission of the national plan.
ACTION
Fiscal Year
May 1
ADMINISTRATIVE CONFERENCE OF U.S.
Calendar Year
November 1
ADMINISTRATIVE OFFICE OF U.S. COURTS
Calendar Year
November 1
ADVISORY COMMISSION ON INTERGOVERNMENTAL
RELATIONS
Calendar Year
November 1
AGENCY FOR INTERNATIONAL DEVELOPMENT
Calendar Year
November 1
AGRICULTURE, DEPARTMENT OF
Calendar Year
November 1
AIR FORCE, DEPARTMENT OF
Calendar Year
November 1
AMERICAN BATTLE MONUMENTS COMMISSION
Calendar Year
November 1
APPALACHIAN REGIONAL COMMISSION
Calendar Year
November 1
ARMS CONTROL AND DISARMAMENT AGENCY
Calendar Year
November 1
ARMY, DEPARTMENT OF
Calendar Year
November 1
ARMY AND AIR FORCE EXCHANGE SERVICE
Calendar Year
November 1
ATOMIC ENERGY COMMISSION
Calendar Year
November 1
CABINET COMMITTEE ON OPPORTUNITIES FOR
THE SPANISH-SPEAKING
Calendar Year
November 1
CANAL ZONE GOVERNMENT
Calendar Year
November 1
CENTRAL INTELLIGENCE AGENCY
Calendar Year
November 1
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Agency
Period of Coverage
Due in CSC
CIVIL AERONAUTICS BOARD
Fiscal Year
May 1
CIVIL SERVICE COMMISSION
Fiscal Year
May 1
COMMERCE, DEPARTMENT OF
Calendar Year
November 1
COMMISSION ON CIVIL RIGHTS
Calendar Year
November 1
COMMISSION ON FINE ARTS
Calendar Year
November 1
COST OF LIVING COUNCIL
Calendar Year
November 1
COUNCIL OF ECONOMIC ADVISORS
Fiscal Year
May I
COUNCIL ON ENVIRONMENTAL QUALITY
Calendar Year
November 1
DEFENSE CIVIL PREPAREDNESS AGENCY
Calendar Year
November 1
DEFENSE COMMUNICATIONS AGENCY
Fiscal Year
May 1
DEFENSE CONTRACT AUDIT AGENCY
Fiscal Year
May I
DEFENSE INTELLIGENCE AGENCY
Fiscal Year
May 1
DEFENSE INVESTIGATIVE SERVICE
Fiscal Year
May 1
DEFENSE MAPPING AGENCY
Calendar Year
November I
DEFENSE NUCLEAR AGENCY
Calendar Year
DEFENSE SUPPLY AGENCY
Calendar Year
D.C. GOVERNFff;NT
Calendar Year
D.C. REDEVELOPMENT LAND AGENCY
Calendar Year
November I
ENVIRONMENTJ,L PROTECTION AGENCY
Fiscal Year
May 1
EQUAL EMPLOYMENT OPPORTUNITY COMMISSION
Fiscal Year
May 1
EXPORT-IMPORT BANK OF U.S.
Calendar Year
November 1
FARM CREDIT ADMINISTRATION
Fiscal Year
FEDERAL COF4WNICATIONS COMMISSION
Fiscal Year
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Agency
Period of Coverage
Due in CSC
FEDERAL DEPOSIT INSURANCE CORPORATION
Fiscal Year
May 1
FEDERAL HOME LOAN BANK BOARD
Fiscal Year
May 1
FEDERAL MARITIME COMMISSION
Fiscal Year
May 1
FEDERAL MEDIATION AND CONCILIATION
SERVICE
Fiscal Year
May I
FEDERAL POWER COMMISSION
Fiscal Year
May 1
FEDERAL RESERVE SYSTEM
Fiscal Year
May 1
FEDERAL TRADE COMMISSION
Fiscal Year
May 1
FOREIGN CLAIMS SETTLEMENT COMMISSION
Calendar Year
November 1
GENERAL SERVICES ADMINISTRATION
Fiscal.Year
May 1
GOVERNMENT ACCOUNTING OFFICE
Calendar Year
November 1
GOVERNMENT PRINTING OFFICE
Fiscal Year
May 1
HEALTH, EDUCATION AND WELFARE,
DEPARTMENT OF
HOUSING AND URBAN DEVELOPMENT,
DEPARTMENT OF
Fiscal Year
May 1
INDIAN CLAIMS COMMISSION
Calendar Year
November 1
INTER-AMERICAN FOUNDATION
Calendar Year
November 1
INTERIOR, DEPARTMENT OF
Fiscal Year
May 1
INTERSTATE COMMERCE COMMISSION
Fiscal Year
May 1
JUSTICE, DEPARTMENT OF
Calendar Year
November 1
LABOR, DEPARTMENT OF
Fiscal Year
May 1
NATIONAL AERONAUTICS AND SPACE
ADMINISTRATION
Calendar Year
November 1
NATIONAL CAPITAL HOUSING AUTHORITY
Fiscal Year
May 1
NATIONAL CAPITAL PLANNING COMMISSION
Calendar Year
November 1
NATIONAL CREDIT UNION ADMINISTRATION
Fiscal Year
May 1
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Agency
Period of Coverage
Due in CSC
NATIONAL FOUNDATION ON THE ARTS
AND THE RU4AN'ITIES
Fiscal Year
May 1
NATIONAL GALLERY OF ART
Fiscal Year
May 1
NATIONAL GUARD BUREAU
Calendar Year
November 1
NATIONAL LABOR RELATIONS BOARD
Calendar Year
November 1
NATIONAL MEDIATION BOARD
Calendar Year
November 1
NATIONAL SCIENCE FOUNDATION
Calendar Year
November 1
NATIONAL SECURITY AGENCY
Calendar Year
November 1
NAVY, DEPARTMENT OF
Calendar Year
November 1
OCCUPATIONAL SAFETY AND HEALTH
REVIEW COMMISSION
Calendar Year
November 1
OFFICE OF MANAGEMENT AND BUDGET
Calendar Year
November 1
OFFICE OF SPECIAL REPRESENTATIVE FOR
TRADE NEGOTIATIONS
Calendar Year
November 1
OFFICE OF TELECOMMUNICATIONS POLICY
Calendar Year
November 1
OVERSEAS PRIVATE INVESTMENT CORPORATION
Fiscal Year
May 1
POSTAL RATE COMMISSION
Calendar Year
November 1
RAILROAD RETIREMENT BOARD
Calendar Year
November 1
RENEGOTIATION BOARD
Calendar Year
November 1
SECURITIES AND EXCHANGE COMMISSION
Fiscal Year
May 1
SELECTIVE SERVICE SYSTEM
Calendar Year
November 1
SMALL BUS [NESS ADMINISTRATION
Fiscal Year
May 1
SMITHSONIAN INSTITUTION
Fiscal Year
May 1
SOLDIERS HOME
Fiscal Year
May 1
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Attachment 1 to Appendix I of FPM Ltr. No. 713- 22 (5)
A enc
Period of Coverage
Due in CSC
STATE, DEPARTMENT OF
Fiscal Year
May 1
TRANSPORTATION, DEPARTMENT OF
Fiscal Year
May 1
TREASURY, DEPARTMENT OF
Fiscal Year
May 1
U.S. INFORMATION AGENCY
Fiscal Year
May 1
U.S. POSTAL SERVICE
Fiscal Year
May 1
U.S. TARIFF COMMISSION
Fiscal Year
May 1
U.S. TAX COURT
Calendar Year
November 1
VETERANS ADMINISTRATION
Fiscal Year
May 1
WATER RESOURCES COUNCIL
Calendar Year
November 1
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APPENDIX II
GUIDE FOR ORGANIZATION AND CONTENT OF
AGENCY ANNUAL EEO PLANS OF ACTION
PURPOSE
1. This guide is designed to assist agencies in the preparation of
Equal Employment Opportunity action plans and sets forth minimum
requirements for action plans. Agencies should follow closely the
directions of :his guide to assure that they have provided coverage
of all mandatory items in their plans. .Further, the format outlined
below, which separates administrative and policy matters from those
action items i ztended to be accomplished during the life of the plan
should result Ln a more functional and productive plan.
2. The action plan should be arranged into four major parts:
Part A - Introduction: This part provides a brief explanation of
the agency's organization for carrying out EEO, with
personnel and resources allotted to carry out the
responsibilities involved in a positive program including
development of the annual action plan and the adminis-
tration of the discrimination complaint system.
Parr_ B - Report of Accomplishments of Last Year's Plan
Part C Report of Assessment of Current EEO Situation
Preparatory to Development of the Annual Action Plan
Part D ?? Report of Specific Actions for the Coming Year
3. This guide sets out below the manner in which the plan should be
structured for submission to the Civil Service Commission for review and
approval. We expect each plan to respond in its action items to the
agency's particular and current EEO situation and problems as identified
by a thorough assessment of its own workforce. The national plans of
large departments and agencies with extensive: field structures are
expected to require of their field installations and regional directors
the assessment of local and regional EEO situations and problems
preparatory t3 development of their EEO plans as outlined in Part C
of this guide.
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4. Agencies should provide in this Introduction a brief summary
description of their organization for carrying out the EEO program
activities, including, but not necessarily limited to:
a. Brief statements to explain the functions, roles, and
interrelationships of important EEO program officials,
such as the Director of EEO, the EEO Officers, Federal
Women's Program Coordinators, the 16-Point Program
Coordinators, EEO Counselors, Discrimination Complaint
Investigators, and other EEO Program Officials and
employees and indicate the extent of expected involvement
in the EEO program of line and staff managers and
supervisors, unions and other employee groups, and
employees.
b. Resources allocL:ed to the EEO program (see Attachment 3,
format for submitting resource data).
c. Certification as to qualifications of principal EEO
officials (see Attachment 2, format for submitting
certification).
d. Provisions for training and orientation in personnel adminis-
tration and in equal employment opportunity for staffs
engaged in EEO work.
5. This section of the plan should provide a report on the
accomplishments of the action items in the last annual plan. The
report should speak specifically to action items explaining:
(a) whether actions in the last plan were accomplished and if not,
why not and (b) the results of these actions and whether they
achieved the intended effect. In addition, for training and
education programs supporting Upward Mobility for lower level employees,
agencies are required to report, as part of the annual accomplishment
reports in both national and regional plans, progress in reaching
program objectives, the number of target positions actually filled,
and the number of persons trained.
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PART C - REPORT OF ASSESSMENT OF THE EEO SITUATION
PREPARATORY TO DEVELOPING THE ANNUAL EEO PLAN OF ACTION
6. This :section of the plan should provide a brief summary of the
results o:: the assessment made by the agency of its EEO situation, the
EEO problimss which require priority attention and solution, and the
goals and objectives which management wants to achieve in the coming
year to overcome identified obstacles to equal employment opportunity.
The results of the assessment should lead to the development of
specific action items by which the agency believes it can meet its
goals and objectives. These then can be assigned to an appropriate
office or official, to be accomplished by a realistic target date.
7. The assessment must be comprehensive enough to arrive at a clear
analysis cf the EEO situation in the agency and identification of real
EEO problems or situations needing corrective action. Such an analysis
may need to be developed for many organizational levels and for various
categories of jobs, but should include at least:
a. Composition of the agency's and ;subordinate organizational
workforce by racial, ethnic and sex groupings at the various
grade levels and in appropriate organizational segments;
b. Composition (by racial, ethnic and sex groupings and grade
levels) of major job groupings such as professional or
technical, clerical and office, executive and managerial,
custodial and service;
c. Availability of persons, including minorities and women,
having the requisite skills and training in the agency's
workforce and in the labor market which the agency uses
as its recruiting source;
d. T.rnover rates in each of the skills utilized;
e. T'u number and kinds of jobs expected to be filled in the
coming year;
f. Consideration of the sources and kinds of complaints of
d:.ac_rimination.
8. As in any management program, the EEO program should be evaluated
periodically to assure that progress is being made towards achieving
the objectives set forth in the plan. The evaluation of operations
required to produce an accomplishment report (see Part E) at the end
of the plan year may result in, for example, a conclusion that efforts
must be made to reach all segments of the population particularly as
related to certain occupations or components in the agency. This
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consideration of past accomplishments toward the objectives set down
last year, should lead into this overall review of the agency's current
EEO status and would in turn lead into the setting of new objectives,
action items, and target dates for the new plan year. The objectives
which the agency intends to accomplish during the plan year should be
stated in this Part.
9. This section of the plan, REPORT OF SPECIFIC ACTIONS FOR THE
COMING YEAR, will contain only those actions which the agency is
planning to take during the twelve months of the plan year, to solve
the problems identified by its assessment of the current EEO status
in the organization.
Action Subject Headings
10. This section should be organized under the eight headings listed
below.
1. Organization and Resources to Effectively Administer a Positive
EEO Program Including Processing of Discrimination Complaints
and EEO Counseling.
2. Recruitment Activities Designed to Reach and Attract Job
Candidates From All Sources.
3. Full Utilization of the Present Skills of Employees.
4. Opportunities for Enhancing Employees' Skills in Order to
Perform at Their Highest Potential and Advance in Accordance
with Abilities in Light of Available Opportunity (Upward
Mobility).
5. Training, Advice, Incentives, and Performance Evaluation to
Assure Program Understanding and Support by Supervisors and
Managers.
6. Participation in Community Efforts to Improve Conditions Which
Affect Employability in the Federal Government.
7. System for Internal Program Evaluation and Periodic Progress
Reports to Agency Directors and to the Civil Service Commission.
S. Appendix - Programs and Activities for Participation in
Employment and Training Programs for the Economically or
Educationally Disadvantaged.
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11. Based on past experiences with formats used by agencies for their
EEO plans, we have found that the most effective action items contained the
following elements:
- A brief description of the current situation or problem that the
item is Lo deal with.
- The specific action(s) which will be taken during the life of the
plan.
Following is an example of how an action item might be reported in an action
plan, providir4; adequate space is allowed for making appropriate entries.
Current Accomplishment
Situation Respon- Date
or sible Target and
Problems Actions Official Date Results
12. Following are examples of subjects which might be addressed by specific
action items and projects under each of the required eight action areas.
Under item 4, Upward Mobility, there is an additional report format
(Attachment 1) which must be submitted by all agencies as a part of their
EEO plans. The situation or problems identified in these individual action
items should be those the agency has determined to deal with in the coming
year. if the agency has established a planning cycle of more than one
year, the action plan should indicate the long-term goals in the Intro-
duction (Part A) of the Annual EEO Plan, but it should not enter in the
Specific Action section (Part C) of the Annual EEO Plan an action item
with a target date later than the end of the plan year.
1. Organization and Resources to Effectively Administer a Positive EEO
Program including Processing of Discrimination Complaints and EEO
Counseling.
Assure adequate staff throughout the organization (including all
subordinate components) sufficient to effectively carry out a
results-oriented equal employment opportunity program, including a
full range of affirmative action and complaint processing activities.
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Appoint sufficient Coordinators for the 16-Point Spanish Speaking
Program and the Federal Women's Program at the central office and
at major field installations to assure responsive program develop-
ment and implementation of these special. emphasis areas.
Arrange for training and orientation in personnel administration and
in equal employment opportunity for staffs engaged in EEO work.
a. Final agency action on any complaint within six months of date
formal complaint is filed and
b. Commencement of on-site investigation of all formal complaints
within five days of receipt.
c. Processing of all complaints of discrimination, including
investigation a-,d issuance of proposed disposition, within 75
calendar days of receipt of a formal complaint, and issuance
of a final decision no later than 180 days after filing of a
complaint; follow-through when necessary to determine reasons
for failure to meet target date and needs for corrective action.
d. Complainant is given written notice of final action taken on
the complaint.
a. Assignment of adequate resources to expedite review and decision
on complaints which have been investigated and heard.
f. Complaint files are reviewed and reports sent to agency head on
corrective action taken based on findings in cases; follow-up
to ensure correction of conditions which led to the filing of
the complaints.
g. Review of all cases where there has been a finding of discrimi-
nation to determine the extent and kind of disciplinary action
against supervisors or others which is warranted by the
evidence in the case.
Arrange for training and orientation in personnel administration and
in equal employment opportunity for staffs engaged in EEO work.
By periodic follow up with employees, counselors, persons counseled,
or by other appropriate means, assure that employees and applicants
have full freedom, without fear of reprisal, to use the complaint
system to the fullest extent.
Provide for replacement and training of EEO Counselors and Discrimi-
nation Complaint Investigators as needed, and for periodic review of
the adequacy and competency of all personnel with complaint
processing responsibilities.
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- Publicize through the use of posters, bulletin boards, employee
notices or other media, the availability of EEO counseling; identify
counselors by name, photograph, location and office phone number.
Familiarize employees with the Federal Government's discrimination
complaints system; distribute Civil Service Commission or agency
developed literature outlining procedures.
Appoint and train a sufficient number of EEO Counselors, so dispersed
throughout the agency as to be available to employees. Provide at
least one trained EEO Counselor in each separate installation with
50 or more employees, and sufficient trained counselors in each
large installation that employees will have ready access to them
(ratio ordinarily no less than one counselor to 500 employees.)
Designate, train, or make arrangements to obtain from other sources
such tie the Civil Service Commission, a sufficient number of
investigators to ensure timely, competent, and objective investi-
gatiolL of formal complaints of discrimination by personnel not
associated with the unit in which the complaint arose. In
addition to providing investigative skills, training should assure
a meaningful appreciation and awareness of the objectives of the
equal employment opportunity program.
2. Recruitment Activities Designed to Reach and Attract Job Candidates
From All Sources
Monitor agency recruitment efforts to ensure that they are
reaching all sources, including minority and women's groups.
Establish continuing recruitment relationships with schools and other
educational institutions including those having significant numbers
of female or minority group students, including contacts with
fraternities, sororities, alumni groups, Spanish-speaking groups, etc.
Make certain that recruiting efforts reach all segments of the society,
including Black, Spanish-Speaking, and other minority groups.
Insure that recruitment efforts for professional level occupations
includes those sources likely to produce minority and women candi-
dates (e.g., minority groups and women's organizations, professional
societies, etc.)
Hake certain that recruitment literature is designed to reach all
sources including women and minority ;groups. It may be necessary in
some cases to design special literature (e.g., Spanish language
literature).
Develop work-study cooperative education programs and similar arrange-
ments to prepare students for Federal employment, particularly in
shortage-category occupations.
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- Assure that opportunities for part-time employment are made
known to employees and applicants.
Recruit Spanish-speaking applicants for positions identified
as requiring a knowledge of the Spanish language.
Conduct surveys of underutilized or nonutilized skills
available in the existing workforce.
Review qualification requirements used by the agency to assure
they are not unrealistically high in terms of jobs to be done
and that they do not screen out lower-level employees actually
capable of performing the real functions of the jobs.
- Establish "skills banks" to match underutilized employees with
available job opportunities.
Restructure jobs and establish entry level and trainee positions
to facilitate movement among occupational areas and enable
employees to utilize skills they already have.
4. Submitting Plans for Training and Education to Support Upward
Mobility for Lower Level Employees. See Attachment I for specific
guidance on the development and submission of data reference to
formal upward mobility programs. Listed below are general action
areas for the Upward Mobility program:
Provide for the establishment of training and education programs
designed to provide maximum opportunity for employees to advance
so as to perform at their highest potential. Identify programs
and indicate numbers of employees who will receive such training.
Ensure that agency qualifications standards do not constitute
unwarranted barriers to upward mobility.
Create career development plans for lower grade employees who
are underutilized or demonstrate potential for advancement.
Establish career systems to increase opportunities for advance-
ment, utilization, training and education of lower grade employees.
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Establish personnel procedures which assure utilization of
employees' skills, abilities, interests, training and potential.
Cond.ict positive programs of occupational analysis, job redesign,
and job restructuring to provide new opportunities for entry
employment, advancement, and bridges to higher grade job ladders.
Acti/ate programs to communicate meaningful information on upward
mobility programs and opportunities to employees.
5.
Training_ Advice Incentives
and Performance Evaluation to
Assure P'.^o ram Lfnderstandin
and. Support. by Supervisors and
Managers.
lnclude equal employment opportunity coverage in formal
super:visorv and managerial training courses.
- Provide specific and practical training to instruct and advise
supervisors and managers on carrying. out their equal employment
oppo:tunity responsibilities.
Establish and implement realistic and fair criteria for evaluating
supervisory and managerial performance in the EEO area.
- Develop programs to identify and reward supervisors who
contribute notably to EEO program success.
Utilize existing supervisory award programs to recognize
exemplary achievement in furthering equal employment opportunity.
6. Parti.Cip:ition in Community Efforts to Improve Conditions Which
Affect Er loyability in the Federal Government.
- Assist employees who find inability to obtain suitable housing
a barrier to acceptance of employment for which they are
qualified.
Cooperate with local authorities in efforts to improve
transportation between worksites and residential areas.
- Cooperate with community groups in the establishment of child
day-care centers needed by employees or applicants.
Establish continuing, productive relationships with minority
and women's organizations in the community.
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- Assist colleges, technical schools, and high schools to improve
the quality of education and to develop curricula which relate
to the requirements of Federal positions.
7. System for Internal Program Evaluation and Periodic Progress
Reports to Agency Directors and to the Civil Service Commission.
- Collect, maintain, and analyze statistical data on employment
of minority groups and women in all organizational and geographic
areas.
Provide for internal agency review and evaluation on a regular
basis of all EEO affirmative action program activities,
including special emphasis program activities aimed at women
or particular minority groups, e.g., Sixteen-Point Program for
Spanish-speaking Americans.
Develop periodic in^ernal reports on EEO program problems and
progress, and submit periodic agency-wide reports to the
Commission.
Periodically assess the effectiveness of all EEO activities,
with emphasis on results as well as intent.
8. Appendix - Programs and Activities for Participation in Employment
and Training Programs for the Economically or Educationally
Disadvantaged and the Worker-Trainee Opportunities Program.
Participate in special programs of employment and training
for the economically or educationally disadvantaged.
(Agencies filing Affirmative Action plans will include
a copy of their Worker-Trainee Opportunities plan prepared
in accordance with requirements contained in CSC Bulletin
No. 713-31, dated April 27, 1973.) Employ needy youth
under Summer Aid, Stay-in-School, and Cooperative Work-
Study Programs.
Participate in community-wide economic opportunity programs,
e.g., Concentrated Employment Program, Neighborhood Youth Corps,
which is mutually beneficial to the agency installation and the
community.
Cooperate with local authorities in developing Manpower Develop-
ment Training Act Programs or other vocational training
programs to meet Federal employment needs.
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Submitting Plans for Training and Education to
Support Upward Mobility for Lower Level Employees
Agencies are required by P.L. 92-261 to include in their annual EEO
plan, "provision for the establishment of training and education
programs des:igned to provide a maximum opportunity for employees to
advance so as to perform at their highest potential." It is
particularly important that agencies do an effective and thorough job
of planning and reporting their plans for providing upward mobility
opportunities to employees.
While the law did not specify any minimum or maximum grade levels for
upward mobility efforts, generally the greatest opportunity for impact
is at the lower grade levels. Therefore, it is anticipated that most
agency programs will be dealing with employees at the GS-7 (or
equivalent) levels and below.
The following formats are to be used by agencies in preparing and
reporting their plans for training and education designed to support
upward mobility opportunities for lower level employees. Additional
guidance in developing and implementing upward mobility programs can
be found in the following Commission issuances:
- FPM Letter 410-9, January 26, 1971, Agency Use of Training
Authority to Support Upward Mobility Programs for Lower Level
Employees;
- "Upward Mobility for Lower Level Employees" pamphlet available
from Government Printing Office (#19700-386-700).
Upward Mobility programs for lower level employees are systematic
management efforts that focus Federal personnel policy and techniques--
classification, counseling, selection, training, and development and
evaluation-- with the goal of developing and implementing specific
career ladders for lower level employees possessing the potential to do
higher level. work in their agency. Such programs are occupationally-
oriented, with heavy emphasis on work assignments and training activities
that give peirticipants in the programs a maximum opportunity to qualify
for those career ladders in the work organization that have advancement
potential.
Training and education to support such upward mobility programs for
lower level employees provides opportunities to (a) qualify for
consideration for higher level positions or series for which employees
would not be qualified without formal training and/or education not
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ordinarily a part of their present jobs; or (b) qualify for consideration
for higher level positions for which positive education requirements
exist; or (c) qualify for consideration for higher level positions
by progression through one or more bridge or trainee positions with
training and/or education a part of this planned progression. Programs
under (a) above may require a formal training agreement approved
separately by the Civil Service Commission. (For further information
on training agreement requirements, see Federal Personnel Manual
Chapter 271, Subchapter 7 and Appendix A).
In submitting training and education plans to support upward mobility
for lower level employees agencies should not include those programs
in which persons who are primarily students in high schools, vocational
schools, or colleges perform part-time or temporary work for the
agency (e.g., Neighborhood Youth Corps, summer employment, cooperative
education programs). Such programs should be reported in accordance
with instructions under Action Area 8 of the EEO plan format.
B. National and Regional Plan Coverage
National and Regional Plan Coverage. Defining regions for the purpose
of submitting plans is the same as stated for the overall EEO plan, and
regional definitions are based upon negotiations between CSC and
individual agencies.
National Plans. National plans should separately cover:
1. detailed descriptions of agency and bureau-wide plans which
apply to employees in different geographic areas and which
are centrally administered and controlled,
2. detailed descriptions of agency and bureau headquarters plans
that apply only to employees in the headquarters area,
3. a summary of all regional programs with estimates as to number
and types of positions involved, and
4. instructions to field installations on development and imple-
mentation of local Upward Mobility programs. This should also
provide for reporting to and monitoring by the headquarters
office.
Regional plans should cover those programs which are local in effect on
employees and which originate or are administered and controlled at the
field or installation level. This includes locally administered programs
which may exist under a broad agency or bureau-wide authority or training
agreement.
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i. Individual trainin&_and education program plans. Agencies should
follow the format below in submitting information on each individual
training and education program to support upward mobility for lower
level employees. These upward mobility training and education plans
must be submitted as part of the overall EEO plans at the appropriate
national or regional levels.
a. Identification and Objectives of Program
Name of Program
'rovide a brief summary of the objectives of the program
- Location (geographic and organization)
Number of participants to be selected into programs during
i. ho planning year
target series and grade levels for participants
b. Program Administration -- Provide a concise description of each
program element listed below.
Lead administrative unit and title, address and telephone
number of lead administrative official.
(election or intake methods (devices and criteria used to
c.etermine those best qualified for the program).
Length and nature of training and education, including
sources of training.
2. National plans must contain guidance to field installations on
the development and implementation of local Jpward Mobility programs.
Agencies should provide instructions to local activities which require
that they develop and implement programs in addition to those developed
nationally. This guidance should provide #or periodic reporting to
and monitoring by the headquarters level. Saecific action items should
be included in the EEO action plan which cover the headquarters
monitoring activities.
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Attachment 2 to Appendix II of FPM Ltr. No. 713- 22
This form should accompany both national and regional EEO plan
submissions. In the case of the national plan, the certification should
cover all EEO officials agencywide. Regional certificates should cover
only EEO officials in the activities or installations covered by the
regional plan. This form should be attached to the appropriate plan
upon submission to the Civil Service Commission.
(NOTE: Information is required on full-time and part-time personnel.)
I certify that the qualifications of all staff officials concerned with
administration of the EEO Program including the following:
Director of Equal Employment Opportunity
EEO Officers
Federal Women's Program Coordinator(s)
Sixteen-Point Program Coordinator(s)
Other EEO Staff Officials
have been reviewed by competent authority and the incumbents of these
positions meet the standards outlined in Qualifications Standards
Handbook X-118 under "Equal Opportunity Specialist GS-160" or
"Qualifications Guide for Collateral Assignments Involving Equal
Employment Opportunity Duties". Evidence that the review has been made
and its findings are on file and available for review by Civil Service
Commission officials.
SIGNATURE OF DIRECTOR OF
EEO OR OTHER OFFICIALS: Date:
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the following sample report of allocation of personnel and resources
illustrates the type of information and method of presentation required
of agencies as inclusions in or attachments to their EEO plans of
action. This data covers items appearing in Action Area 1 of the plan.
National plans should include all personnel and items listed under
Parts A., B, and C. Regional plans should omit A-1, B-1, and C-l.
A. Total Number of All Employees:
1. (Includes Headquarters offices and Bureaus and similar subordinate
components.)
2. Total Number of All Field Employees:
B. Total Number of EEO Program Personnel:
1. HEADQUARTERS:
Director of Equal Employment Opportunity
Equal Employment Opportunity Officer(s)
Federal Women's Program Coordinator(s)
Sixteen-Point: Program Coordinator(s)
Other EEO Of:fir_e or staff Officials
EEO Counselors
Discrimination Complaint Investigators
Others
2. FIELD:
Equal Fnploynent opportunity Officer(s)
Federal. Women's Program Coordinator(s)
Sixteen-Point Program Coordinator(s)
Other EEO Office or Staff Officials
EEO Counselors
Discrimination Complaint Investigators
Others
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Upward Mobility Training and Education
Remarks:
C. Personnel and Fiscal Resources
1. HEADQUARTERS
EEO Counseling
Complaint Processing
EEO Program Administration
EEO Subject-Matter Training
Upward Mobility Training and Education
Remarks:
2. FIELD
EEO Counseling
Complaint Processing
EEO Program Administration
EEO Subject-Matter Training
* (Include the dollar cost for salaries and benefits and other expenses
such as travel, transcripts, all reimbursement fees for EEO
Investigators and EEO Complaint Examiners, etc.)
Include all costs involved in formal and on-the-job training relative
to Upward Mobility program efforts.
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For women who work, the Government is a good place to start or to resume
a career. And the Federal Women's Program is one of the reasons why.
Under the Federal Equal Employment Opportunity program, agency heads are
responsible for finding out what can be done to advance the status of women
and minorities in their particular agencies, for making specific plans for Improve-
ment and for seeing that these plans are put into effect. Each Federal agency has
a Federal Women's Program Coordinator or Chairwoman of an FWP committee.
Within this framework, the FWP Coordinator or committee acts as the agency's
contact point, source of information and advisor to the head of the agency on
matters involving the employment of women.
Specific FWP program priorities may vary, depending on the mission of the
agency, the kinds of occupations it uses and the particular area where inequities
inay occur. The situation in an agency where women are not hired for a particular
job at all (as was the case for a long time) is very different from that in an
agency where the great majority of the employees are women in dead-end jobs
with no chance to progress to other, more responsible work. The coordinator,
being on the spot gauges the particular emphasis her agency's program shoulid
have. The overall objectives below are common to all agency programs.
Federal
Government,
percent
women
United
Statas,
percent
women
Mathematics -------------------------------------------------- ------------------
22.2
10.0
Law--------------------------------------------------------------------------
6.2
2.0
Chemistry-----------------------------------------------------------------------
15.1
10.0
Medicine---------------------------------- ---------------------------------------
7.3
7.0
Engineering------------------------------------- -------------------------------
.5
.5
Accounting-_ - ----------------- ----------------- ---------------------------
7.0
20.0
Soda work -------- ------------------------------------------------------------
47.8
60.0
l.ibrary science ---------------------------------------------------------- ---------
70.4
85.0
Recruiting and hiring of qualified women.
Placing women in jobs which offer there advancement in line with their
abilities and ambitions . opening up the dead-end job.
Counseling women about opportunities and encouraging them to plan a career,
rather than muddle through (And where do you want to be ten years from now?)
Encouraging agencies to expand their opportunities for part-time work and
to restructure lobs so that women can compete for them on an equal basis with
rrsen.
Child care for children of Federal employees. FWP Coordinators work In their
communities to support day-care projects. Several agencies have, and others are
starting, experimental pilot programs for the care of their employees' children;
existing programs usually are related in a direct way to the mission of the
agency.
Communications-among agencies, between women's groups and the FWP and
between the FWP and management. This includes using news media to focus
on the program's achievements. When someone becomes the first woman s.ky
marshal, or armed security guard, or printing apprentice or GS-17 controller,
we spread the word. In all probability, some people will see these "women firsts"
as tokenism--and there's no denying that it. would have been nice if they had
made it yesterday. But they are breaking through today-and because they are,
more will make it tomorrow. So we publicize the firsts-to make the seconds
and the thirds e.nd the fourths come faster.
]Development and use of statistical information to assess employment trends
and to evaluate progress of women.
Promoting continued education for employees by arranging work schedules
and granting leave to allow participation, and by participating in community
efforts to set up adult education courses.
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The concept of Upward Mobility-at all levels. This goes deeper than merely
helping women who are already qualified for higher work obtain that work ; it
involves getting women trained to do higher work.
Training is at the heart of the Federal Woman's Program. If we are to open
up dead-end jobs, we have to provide a bridge from those jobs to other more
responsible work and train people to cross this bridge. By the same token,
women who are in professional fields must have access to training for higher
supervisory work if they aspire to it. And at the top, executive development
programs, which are opening up to women, must have increased female
participation.
No one, man or woman, should be promoted to a job he or she can't fill ade-
quately. (We're against tokenism, too.) That's why training is vitally important
to the Federal Women's Program-to provide well-qualified women who can
compete successfully when promotions are available.
THE MYTHS ABOUT MS.
Like the top-heavy person below, women who work are encumbered ; they get
bogged down by a stereotype which keeps them from progressing as fast or as
far as their abilities could take them. Generalizations about "The Working
Woman" hobble them and hold them back. Because this happens, in Government
as well as private industry, part of FWP's function is to track down the myths,
find out the facts and spread the word.
"Women take more sick leave than men."
The national average for sick leave for women is 5.9 days. For men, it's
5.2 days. While the average Is slightly higher, the difference is insignificant.
"Women only work until they have children; then they stay at home."
More than two-thirds of the women on Government maternity leave in
1967 were back on duty by May of 1968.
42 percent of all mothers in the United States work outside the home.
This represents an increase of from 1.5 million in 1940 to 12.1 million in
1970. And the percentage is expected to rise.
Two out of 5 working mothers have children under 6 years of age. 84
percent are from homes where a husband Is present.
"Women have a higher quit rate than men."
Higher turnover rates are true of all employees who 1) are under 25;
2) are in low income clerical jobs; and 3) have only a few years of service-
and women make up a big part of these groups.
At professional levels, the difference Is much less. In a study on the turn-
over of men and women chemists of comparable responsibility, a majority
of the laboratories surveyed reported that the turnover for women was
"about the same" as it was for men, and not a deciding factor in the em-
ployment of women.
"Most women don't really have to work. They just want extra money for hair-
dos, clothes and the luxuries of life."
Most women work because of economic need. Of over 37 million women
who worked in 1968, 17 percent were widowed, divorced or separated from
their husbands-23 percent were single-8 percent had husbands with In-
comes of less than $3,000 a year-22 percent had husbands with incomes of
between $3,000 a year and $7,000. (The annual income needed for even
a low standard of living at the time was estimated at $6,567 for an urban
family of four.)
This assumption has been called the "cake winner fallacy." The gist of
it is that "if women work, it is only because they want to add to the family
income, so it is essentially a temporary situation and they don't want ca-
reers or aspire to responsible positions," Men are bread winners, while
women are cake winners.
It Is interesting that the myth persists in spite of the fact that the average
number of years of employment for working men is 43 years, while it's 45 for
single women. Even working women with children work an average of 25
years.
"Women prefer men as supervisors and men don't want to work for women."
Studies of attitudes have shown that women have no preference in the
matter, and that most men who complain about women supervisors have
never worked for a woman.
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In one survey, three-fourths of the male and female executives who had
worked with women managers reacted favorably to women as managers.
The that managers h d a cult ral/t aditionoal biasoabouttothernsubject 1 as w le lumen
"Women aren't mobile."
This may be truer than most generalizations about women. Married women,
at least, tend to go where their husbands' jobs take them. However, as
shown flu ncedlibyehusba husbands' jobs. 23 women working single and 17 percentllwere
widowed, divorced or separated.
There are other factors to be considered. Just how necessary is mobility
for particular jobs? How many men are mobile? A study published in 1969
on the characteristics of Federal executives showed that more than half
of the executives, of whom 98 percent were men, had spent their entire
Government careers in a single agency. Of 28,000 people in grades GS-15
through GS-i 8 and equivalent levels, only 594 were women. Twenty-three
-percent of these women had worked in more than one agency, an indication
that many women in Government are mobile,.
There are many dimensions to the mobility question, of course, including
how it is to be defined : for example, movement from one job to another, one
agency to another, or from one location to another.
But however mobility is defined, and whatever its relative importance, the
point is this : all women should not be considered to be immobile, simply be-
cause some are. Some men are too.
Myths about working women have advanced a stereotype which is no closer to
fact than the "Average Housewife" we see on television. (You know, that woman
who hovers around the house, comparing instant coffee brands and ecstatically
waxing her kitchen floor in spike heels, designer suit and lacquered hairdo.)
Getting the truth around, to both men and women, is an important part of the
program.
FYI/possxBILrrIES FOB PART-TIME JOBS
For women who want to balance their family responsibilities with a chance to
use their education and training outside the home, a part-time job is the ideal
solution. One of I'WP's aims is to encourage agencies to expand their use of part-
time employees--not only by increasing the number they hire, but in opening:
up the kinds of Jobs they will consider filling on a part-time basis.
Many thousands of part-timers already work for Government agencies that
need expanded work forces at certain times during the year to cope with their
fluctuating workloads. The Census Bureau needs census takers ; the Passport.
Office, the Internal Revenue Service and the Department of Defense, among
others, also have intermittent needs for more employees.
On a more continuous, year-round basis, many agencies hire part-time workers
to provide clerical. support, perhaps working only certain days each week, o.r
particular hours each day.
Although some agencies-notably the Department of Health, Education, and
Welfare, the Department of Housing and Urban Development, the Atomic Energy
Commission and the National Aeronautics and Space Administration-have suc-
cessful, ongoing programs for professional women on a part-time basis, this is an
area where real improvement can be made. Some kinds of jobs seem to lend
themselves to part-time occupancy more easily than others. The Veterans Ad-
ministration, for example, has many women working as part-time nurses and in
other health-related professions. While other kinds of work may not be such
obviously good bets for part-timers, our aim is to expand the concepts of what
manages who want meeting to the needs of do the best job talented
they can.
kinds of want work
wok. and busy handled
ho nAfore Flexible Ceilings
In Government, as well as in private industry, wider use of part-time workers
must be shown to be to managers' advantage. In the past, reluctance on the part
of Federal employers has often stemmed from the impression that they would
have to count at part-timer against their ceiling on permanent full-time employees.
Adjustments can be made between, the ceiling for temporary and part-time
employees and the ceiling for permanent employees which will allow agencies
greater use of part-time workers without losing employee-hours of work.*
*The policy is explained in detail in the Federal Personnel Manual, Section 312.
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HOW WORKING PART-TIME AFFECTS FRINGE BENEFITS AND PROMOTIONS
Beneftts
Whether you work part-time or full-time, annual and sick leave, insurance and
civil service retirement depend on the type of appointment you have. The types
are these:
Intermittent: If you work on this basis, you only come to work when you are
needed, on an intermittent or irregular basis. You are paid for the number of
hours actually worked. You do not earn leave and are not entitled to insurance
or retirement benefits.
Temporary or Term: A temporary appointment, which can be either part-
time or full-time, is usually for less than a year. A term appointment is a type of
temporary appointment for a specific project, which can last from a year to
four years.
As a temporary employee, working a regularly scheduled tour of duty (regular
days and hours each week) you can earn annual and sick leave, based on the
number of hours you work. As a temporary employee, you are not entitled to
insurance or retirement benefits. As a term employee, you are entitled to insur-
ance benefits.
Career-Conditional: Career-conditional appointments lead, after three years, to
career status. The first of the three years is a probationary period, during which
you can be dismissed for unsatisfactory work. Career-conditional employees,
either part-time or full-time, earn annual and sick leave and are entitlel to insur-
ance and retirement benefits as well.
Transfer and Promotions
An employee serving in a temporary position can't be promoted or transferred
to another job.
Employees with term appointments can be promoted or transferred to another
job in the same project for which they were hired.
Career-conditional employees have transfer and promotion privileges. Generally
speaking, part-time or intermittent career-conditional employees may be con-
sidered for promotion to positions which, as a practical matter, can be filled
on a part-time or intermittent basis.
Federal Government promotions are not based on longevity, but on ability.
The policy of Merit Promotion is designed to assure that those employees who
are best qualified for jobs are promoted to them, not those who have merely
occupied space for long periods of time. There are, however, legal and minimum
qualification requirements, which must be met before any employee-part-time
or full-time, may even be considered for promotion.
The legal requirement, under the Whitten Amendment, is generally this : em-
ployees must spend at least one year working at one grade level before being
considered for promotion.* The year-in-grade is a calendar year, and not based
on the number of hours worked, so that the minimum is the same for full-time
and part-time workers.
The qualifications requirement is the required minimum amount of experience
needed to show that an employee is capable of doing work at the higher grade,
but it is calculated on the basis of a 40-hour week. For purposes of promotion, an
employee who worked 20 hours a week would have to work twice as long as a per-
son working 40 hours a week. The theory is that you gain only half as much
experience working a 4-hour day as you do working an 8-hour day.
FYI/MATERNITY LEAVE
Federal employees earn 13 days of sick leave a year, which can accumulate
indefinitely. They also earn 13, 20, and 26 days of annual leave a year, depending
on how long they have been with the Government. Annual leave can accumulate
up to 30 days.
Maternity leave is chargeable to sick leave or to a combination of sick leave,
annual leave and, as needed, leave without pay. Although there is no Govern-
ment-wide fixed rule, the general policy is to authorize approximately 14 weeks
of time off-about 6 weeks before the baby is born, and 8 weeks afterward. Some
agencies may authorize less time, and some, more. The time may vary, depending
*The purpose of the Whitten Amendment is to prevent excessively rapid promotions.
There are some exceptions, which are spelled out in the Federal Personnel Manual, Chap-
ter 300, Subchapter 6-4.
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on the physical demands of the individual employee's job and what her doctor
advises.
The Civil Service Commission's guidelines on maternity leave are in the Fed-
eral Personnel Manual, Chapter 630-59. Federal Employee Facts #9, a booklet,
gives a broader explanation of how pregnancy and maternity leave affect your
status, pay, leave, and insurance benefits.
RIGHTS AND REMEDIES
Women suffragists chained themselves to public buildings in dramatic protest
over the powerlessness without the vote. And, although the Suffragettes (and
many of the buildings) are gone, inequities still occur. The difference now is,
you're not powerless ; as a Federal woman, you don't have to chain yourself to
a building when you feel you have a discrimination problem.
Each agency has Equal Employment Opportunity (EEO) Counselors for in-
formal settlement of problems, and procedures for processing formal complaints
of discrimination. Each agency also has a Director of EEO, who is responsible to
the head of the agency. If you believe you have, been discriminated against be-
cause of your sex :
1. First discuss the problem with your EEO Counselor, who will attempt to
help you work out it solution informally.
If it can't be settled informally, the Counselor will advise you of your right
to file a formal written complaint with the EEO Officer, who will inform the
agency Director of EEO.
:1, The Director of EEO will assign someone from another part of your agency
to investigate your allegations of discrimination.
4. Following the investigation, there is another opportunity for informal set-
tlement. You will be notified of the proposed adjustment.
>. If you are not satisfied with the proposed adjustment, you may at this
the Civil Service Commission will
point request a hearing. If you do, EEO Appeals Examiner, who must be from an agency independent from yours,
to hear the case.
6. After the hearing, the Appeals Examiner will recommend a decision to the
head of your agency.
7. The agency head or someone officially designated makes the final agency
decision. If the recommendation is not accepted, the agency head must explain
why.
8. If you are still not satisfied, you have the right to appeal to the Civil
Service Commission's Board of Appeals and Review.
You have the right to be represented at any stage in the complaint process, in-
cluding the initial informal counseling.
NoTR.- This is a very general description of the complaint system. You can get a detailed
explanation by reading the booklet "Fed Facts 10, How the Discrimination Complaints
System Works," or ty talking with your EEO Counselor.
Underlying its particular facets, the Federal Women's Program is a POINT
OF VIEW.
It puts the spotlight on Federal women as a. group in order to bring about a
climate where they can succeed as individuals. The purpose of gathering statis-
tics (which indicate, for example, that the average grade for women in a partic-
ular agency is substantially less than that for men) is not for the sheer joy of
paperwork. It's to find out where we stand, and to give an indication of the areas
where we ought to be directing our energies.
AWARENESS AND ACTION
There are two perspectives to the Federal Women's Program : on any agency's
organizational chart. it has to work from the top down and from the bottom up.
At the top, people at policy levels have to be made aware of possible patterns of
discrimination in their agencies, and presented with suggestions for improving;
the situation. It is, as has often been remarked, an educational process. As
>uwareness filters through the chain of command, it's particularly important a':
the supervisory level-for supervisors are more directly involved with day to day
opportunities to put equity into action. They evaluate job performance, recom-
mend people for training courses and assess readiness for promotion. So it's es-
pecially important that they do so objectively.
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As education affects how top managers and supervisors look at women em-
ployees, it should also affect how women look at themselves. Each woman in
Government should become aware of her rights and possibilities and define her
goals on the basis of her abilities and ambitions, rather than on a narrow in-
terpretation of what she thinks will be allowed her. Why not be a forklift oper-
ator? Or narcotics agent? Or supervisor of her section? Or supergrade?
Women are making progress in Government-not as fast as many would like,
and faster than many care about-but things are moving ahead.
Someday, a Federal woman will go to the moon. And when she gets there, the
Federal Women's Program will be one of the things she had going for her.
The CHAIRMAN. Our next witness is Ms. Felice Schwartz.
STATEMENT OF FELICE SCHWARTZ, PRESIDENT OF THE CATALYST
ORGANIZATION
Ms. SCHWARTZ. My name is Felice Schwartz. I am president of
Catalyst, which is a national tax exempt organization with head-
quarters at 6 East 82nd Street in New York. I am here to provide
information on the feasibility and advantages for flexible work sched-
ules as proposed in S. 2022, known as the Flexible Employment Act.
Catalyst was founded in 1963 by five college presidents to help
college educated women to combine family and career. It is presently
supported by the Kellogg, Ford, Mellon, and Rockefeller Foundations.
The primary barrier of women into the work force has been the
total, almost total lack of part-time activity in employment, in all but
menial and clerical areas. The primary focus of our efforts during the
past 111/2 years has therefore been on increasing flexibility in employ-
ment patterns, and particularly on educating employers to the feasi-
bility and advantages of employing personnel on part-time schedules
at every level.
The fact that the Catalyst agency consists of 11 who work part time
and only 20 full-time schedules testifies to our conviction, as an em-
ployer, that part-time employees are the best buy on the labor market.
The reasons for this, in our opinion, are as follows : First, a larger
recruitment pool is available to the employer seeking part time as well
as full-time staff. This enables him or her to be far more selective with
regard to the applicant's qualifications, than when restricted to hiring
only full-time personnel.
Second, because of the shortage of part-time jobs, the turnover rate
among those who work part time is lower. This tends to be reinforced
by the stable life situation of the vast majority of those seeking part-
time employment, namely, women with young children.
Third, we find that a shorter work day or work week increases pro-
ductivity. Fourth, personal chores can be done in free daytime hours
rather than hours taken off from work.
And finally, employment can be tailored to the time needed for the
job duties, rather than the traditional 5-day, 35- or 40-hour work week.
Likewise, jobs can be decided by levels of skill and pay, rather than
filling the traditional work schedule with a skilled person, with less
skilled work at the higher pay level.
The desire of women for part-time work has been continuously and
dramatically demonstrated by the numbers of women who responded
to every mention of the Catalyst program by the media.
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During the 4-month period from mid.-February to mid-June last
year, nearly 6,000 women contacted Catalyst for assistance. This year,
when our national program will be fully operational, we expect to
hear from 30,000 women. Of the first 500 women who completed the
Catalyst questionnaire last spring, 72 percent have also completed
the resume form, indicating that they were immediately available for
employment. Of these, approximately one-third, 34 percent of the
women even expressed an interest in part-time employment only, be-
cause they were only able to work part time and one-third of 35 per-
cent, in either part time or full time, with the remaining third inter-
ested only in full-time work.
More dramatically, indicative of this desire for part-time employ-
ment, on the part of women, was our experience in a pilot project con-
ducted in 1.968 to recruit 51 halftime caseworkers for the Massachu-
setts' Department of Public Welfare. Catalyst received 1,500 appli-
cants, in contrast to the 25 or 30 applications, that the Department
would have received normally for 25 full-time jobs.
The magic word was part time. A report of this project is included
in those materials that I have brought along for inclusion in the rec-
ord. Wilbur Cohen, who was then head of HEW wrote the preface to
the study, to the report, on this project, on public welfare, and Senator
Ribicoff said as a result, and I quote :
Catalyst has demonstrated in public welfare the greater productivity, lower
turnover rate, and enhances sensitivity to human needs that mature women work-
ing part-time, can bring to case work and counselling.
Now it is extending this available resource to the whole spectrum of the social
services.
The CIIAIRMAN. I just finished having lunch with Senator Ribicoff
and he sent along reinforcement of new articulate expressions and all
good wishes.
Ms. Scnwax'rz. I am glad to hear that. I know he does recognize this
labor pool..
In this same project in Massachusetts, after 2 years of employment.
the half-time case workers were found to be 89 percent as productive
during their 111/?-hour work week as were full-time case workers in 35
hours and their turnover rate was 14 percent in contrast to the prevail-
ing turnover rate of 40 percent. Now that women live for 75 years and
are urged by population planners to have no more than two children,
it is essential that they be able to pursue careers, if they are to avoid.
virtual unemployment and frustration during the major portion of
their lives.
For those who choose to be at. home during their children's pre-
school years and the after school hours of their elementary and high
school years, part-time employment is essential. The alternative of it
0-year interruption leads inevitably to atrophy and the inability to
pursue careers.
The resultant unemployment to women is demeaning for them and
wasteful of the enormous investments made by society in their
education.
I might. add that as men become less focused on increasing the gross
national product to exclusive concern with their work, they are be-
ginning to want more time for their family participating, for public
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service, and for leisure and to seek less than full-time employment
themselves.
I would appreciate it if the following documents can be included in
the record. I would like to just briefly state what they are.
The CHAIRMAN. From the size of the package we will make them a
part of the file at least, and we only have to watch the size of the record
with some things.
Ms. SCHWARTZ. I will itemize them.
The CHAIRMAN. If you would like to make the list part of the record
now.
Ms. SCHWARTZ. Yes, I would, thank you.
There is included there a brochure describing the Catalyst program.
There is a flyer that describes the Catalyst self-guidance career
publications for women who want to work less than full time when
their children are young. I have included this because these 40 publi-
cations are filled with examples of women who are working success-
fully on part-time schedules.
There is also included a listing of the 87 local resource centers that
participate in the Catalyst national network, providing counseling
services and job referral services to women all over the country who
are seeking to enter or reenter the employment field.
I have also included a mock-up of the Catalyst national roster, which
is a computerized listing of women who are seeking full-time and/or
part-time employment. This roster will bring women seeking part-time
work to the attention of employers and provide them with access to
women whose characteristics as printed out on the roster can obviously
meet their needs.
I have also included a copy of the study, the project which I referred
to, part-time social workers in public welfare, a report on the Catalyst
demonstration project in Boston, Mass., in which mature women, col-
lege graduates were employed halftime by the Massachusetts Depart-
ment of Public Welfare.
I have included another report, part-time teachers and how they
work, a study of five school systems. I include that because it surveys
the number of advantages for the first time of part-time employment.
These were teachers who were in elementary school level. We found
the two teachers teaching halftime felt they were preparing for their
teaching responsibilities as much when they were part time as when
full-time teachers.
We felt the need for substitute teachers virtually disappeared, be-
cause one teacher covered for the other teacher.
The CHAIRMAN. What about the civil service rolls, the Federal
civil service rolls, does Catalyst have a study of this particular cate-
gory of employment?
Ms. SCHWARTZ. The only project Catalyst specifically had dealing
with the civil service was with the Department of Public Welfare.
We had an 8-month period prior to the pilot project in which we
explored with the Civil Service Department and others connected
with welfare, the various problems that were entailed, in defining
work week, fringe benefits, vacation schedules, promotion schedules
and such matters, before the project started. These are all documented,
I think, quite clearly in our report on that project.
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The CHAIRMAN. Do you have any projections for a broader sweep
at the Federal level at this time?
LVis. SCIIwARTZ. No, we have not done anything further specifically
in relation to the Federal Government. We will be this year making
our roster known to Federal employers, and working with them
through the roster, and. thereby getting to know some of the problems
and trying to help find. some solutions, and trying to find those areas
up to now where part-time schedules are particularly useful and
productive.
Just to mention a couple other advantages in pilot projects, with
part-time teachers, when a second teacher comes into a classroom in
the middle of the day, it is usually at a time when the children begin
to lose their attention in the work and the energy level dropped. But
the introduction of a second person is a revitalizing factor and much
more it seemed was accomplished in these classes as a result of that.
Finally, the parents of children were given binocular vision of their
children's performance and by being able to talk with two teachers
with whom the child had also had a chance to relate successfully.
Also included, and most relevant, is a position paper that Catalyst
has done, called Flexible Work Schedules. If I may, I would like to
read the conclusion from that, the summary. It says :
Companies and organizations that learn to utilize college educated women
with ongoing family responsibilities effectively in part-time programs today
will be equipped to utilize the entire work force most effectively in years ahead.
As man increasingly demands more time for active involvement with their
families, in society, with leisure pursuits, and as increasing numbers of women
set serious career goals for themselves, this means that innovative work pattern,
especially the variety of part-time employment: concepts open to professionals
at responsible levels, need not apply only to women, but all individuals who
wish to participate in and enjoy a full spectrum of endeavor without feeling
there is a basic conflict between their professional and personal needs.
in the past employers have been reluctant to hire part-time managerial,
professional and technical employees, due to a preconceived idea that everyone
in the work force must work the same hours or a communication gap would
arise. Yet in the flexible scheduling and 3- and 4-day week organizations, which
is in contrast to the part-time situation., variations in workers' schedules have
led to greater communication, versatility and broadened responsibilities. This
has resulted in an increased involvement with and commitment to the job.
Based on current widespread interest in various work scheduling patterns, the
future will undoubtedly bring greater innovation in scheduling work hours of
both full-time and part-time employees. These schedules will be based on the
needs of the individual employer and on the qualifications of an employee.
The routine work which is so large a part of life will become life enhancing,
at least to the extent that it represents an honest option and is in accord with
the individual's personal capabilities, commitments and needs.
In this paper we have described in detail six different part-time em-
ployment patterns.
C would like to point out that I do think that the flex time approach
to scheduling, which is now so prevalent in several European coun-
tries, that is moving to this country, is not part-time employment in
itself, it is flexible full-time employment, but it does have a great rele-
vance when you are evaluating the effectiveness of part-time employ-
ment because it has effectively demonstrated that the argument against
part-time employment that we have heard, most universally, namely,
lack of communication, can-I cannot pick up the phone and reach
Mary Jones at 3 o'clock, if she leaves at 2 o'clock or Frank Simmons,
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if he does not work on Thursday, in fact did not impose a large ob-
stacle as demonstrated by those companies that have undertaken flex
time. I think this is the major disadvantage that employers foresee
and does not materialize the communications gap.
I also include profiles of women who are successfully employed on
part-time schedules, and we will be producing and disseminating large
numbers of such profiles. We will be writing up successful employ-
ment programs wherever we see them, with the employer's evaluation,
as well as the part-time workers' attitudes toward it.
Finally I have included two papers that Catalyst has done which are
necessary to the private sector, we found. They concern themselves
with employee benefits and permanent part-time personnel, from both
the employers' and the employees' advantage.
I have heard the testimony this morning that would indicate
that in government circles it is automatically a decidable problem,
the problem with fringe benefits. Our experience with the welfare
department was although on the record there should have been no
problem, it did take a great deal of exploration, negotiation, to work
out equitable fringe benefits for part-time permanent employees.
I would only like to make one other comment about other points
that were made. That is when talking about part-time employment, I
think it is terribly important to identify the level of employment. In
many areas there are large percentages of part-time employees at very
menial and clerical levels and none at the higher levels, and that of
course is not always true.
I think it is very important to identify whether the part-time posi-
tions that are being bandied about are permanent or temporary in
nature, and their absolute numbers I think is also very important to
keep an inquiry on.
I do very much appreciate this opportunity to testify and I assure
you that there are a multitude of women who currently will be very
appreciative of such legislation and their husbands are about to find
out how much their lives are enhanced when their wives are given
this opportunity, and I think that women will follow the pattern of
women, that they are beginning to establish now.
The CHAIRMAN. Thank you very much for your testimony. I com-
mend you on the educational program that you really have taken on
in Catalyst, to raise the level of public understanding of the acuteness
of this particular question. We will weigh carefully your contribution
here this afternoon.
Ms. SCHWARTZ. Thank you very much.
The CHAIRMAN. Our next witness is Mrs. Daisy Fields, chairman
of the Legislative Committee for Federally Employed Women, Inc.
STATEMENT OF DAISY B. FIELDS, CHAIRMAN OF THE LEGISLATIVE
COMMITTEE, FOR FEDERALLY EMPLOYED WOMEN, INC. (FEW)
Mrs. FIEI,ns. As Senator Tunney indicated this morning, our recom-
mendations were submitted to him previously and I understand will be
made part of the record. However, we have some supplemental infor-
mation that I would like to add at this time.
The CHAIRMAN. Those that relate to the specific legislation will be
a part of the record.
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Mrs. FIELDS. I want to elaborate on the matter of part-time employ -
onent as testified to by the Civil Service Commission. While it is true
a policy does exist for the employment of persons on a part-time basis,
it is not used to the extent that it could. and should be used. You will
find that a large proportion of part-time jobs are in institutions such
as Veterans' Administration hospitals, which employ food service
workers, nurses aides, X-ray technicians, therapists, et cetera on a
part-time basis. The percentage of professional, technical, and admin-
istrative part-time jobs is not impressive.
The Crrel1RB1AN. As opposed toward the professional or more skilled
type?
Mrs. FIELDS. Correct. The jobs generally are at the lower levels of the
employment scale. For that reason we believe there is an urgent need
i'or legislation that will broaden the scope of opportunities for part-
time employment. We too have some concern over the title of the bill.
Flexible time and part-time are not exactly the same thing. Before the
bill goes to the floor, we hope the distinction will be clarified.
The CHAIRMAN. That has been made clear here this morning.
Mrs. FIELDS. We wish to add the following to what has been previ-
ously submitted on behalf of Federally Employed Women :
Over the years several small-scale efforts have been made on the
part of executive agencies. The HEW Professional and Executive
Corps ranks among early projects to demonstrate the value of era-
ploying career professional workers on a less-than-full-time basis, and
was shown to be successful for both the supervisors and the workers,
but failed to be integrated into the personnel system, because of con-
fusion regarding personnel ceiling allocations, which is where most of
us get hung up.
Involved were employees ranging from the entry-level professionals,
GS-7, to the executive level, GS--15, with the typical workers at a mid-
level grade G S-11.
In order to carry out demanding and responsible jobs, each employee
worked at least 20 hours a week. An absolute minimum of 16 hours
a week appears necessary to make efficient use of employees' talents
and to make economical use of office space and minimize personnel
recordkeeping expenses. Consequently, we believe that S. 2022 should
encourage the employment of part-time workers for at least 16 hours
per week.
Section 7 needs to be clarified to include the maximum number of
hours allowable in a workweek in executive agencies. We suggest that
the maximum be set at 30 hours per week. Such a maximum, however,
is not necessary if the present personnel ceiling is abolished.
This bill begins to face the problem with employment ceilings by
distinguishing between less than full time and other workers, for
reporting purposes.
Section 2 (a) (d), and more importantly, the vital section 6, which
counts the percentage of hours of a work week worked, rather than
"bodies." However, presently great confusion still exists regarding
the fact that some part-time workers occupy full-time slots, and con-
sequently part-time workers are currently counted under either the
full-time permanent ceiling or the derived or "other" ceiling, that
includes everyone not occupying a full-time permanent slot, including
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consultants. This bill could be one of the most significant Federal
employment bills ever passed if it addresses itself to the means of
accounting for the Government workforce-by person hours, or per-
centage of hours worked in the 40-hour work week, rather than by the
current method of counting "bodies." Currently both ceilings, the
permanent full-time ceiling and the derived-all other employees-
contain part-time workers, thereby reducing the potential employment
allowed by the executive agencies-by filling full-time slots with part-
time workers, and by grossly exaggerating the amount of time worked,
if judged by only a body count, since a consultant working 5 hours one
month is counted equally with a person working 165 hours.
The HEW Corps members were selected using the same qualifica-
tions requirements as full-time workers, in similar positions and grade
levels. It is important to maintain the same employment selection
standards for part- and full-time workers in order to maintain a quali-
fied career workforce. The experience of the HEW Corps members and
part-time employees in other agencies demonstrates the need for de-
veloping a uniform promotional policy throughout the Federal Gov-
ernment that takes into account the part-time career status of the
workers.
S. 2022 should include among its goals the development of such a
uniform promotional policy.
We also strongly recommend that the bill address the distinction
between permanent and temporary status, providing for the employ-
ment of permanent career-conditional and career workers. Without
this distinction, temporary workers could be hired and fired, and execu-
tive agencies could achieve target numbers without in fact carrying
out the purpose of the bill, which, hopefully is that of continuously
employing talented individuals on a less-than-full-time basis. How-
ever, if this cannot be done, the reporting system should ask for the
distinction between temporary and career workers.
I submit this material to supplement what has previously been fur-
nished by FEW and would like, with your kind indulgence, to include
in the record a portion of an article written by Mrs. Majorie Silver-
berg, which appeared in the Bureaucrat, volume I, No. 3, fall 1972.
In the interest of time I will not present all of it right now.
The CHAIRMAN. What is the thrust of the article?
Mrs. FIELDS. "Part-Time Careers in the Federal Government" is the
name of the article.
The CHAIRMAN. That will be made part of the record.
Mrs. FIELDS. I would like to read at this point the conclusions and
one reference from an earlier section called "Barriers to Part-Time
Employment."
The Civil Service Commission and the Office of Management and Budget, the
two agencies responsible for establishing the system which could accommodate
part-time employment, do not appear ready to challenge the assumption that part-
time means part-time commitment. The redefinition of part-time employment and
the system that governs it are not only confusing to the prospective manager, but
provide little incentive to managers to consider the mix of part-time and full-
time employees to get a job done more efficiently.
The Civil Service Commission defines "a part-time employee, regardless of the
nature of his or her employment, as one who works less than 40 hours a week.
The employment may be regular and recurring (loosely referred to as 'perma-
nent'; it may be for a temporary period ; or it may be intermittent in the sense
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that the person works only when called in * * *" [This definition appears in the
Federal Personnel Manual Letter 3:12-3, dated March 1971.] The actual d:if-
ference between full- and part-time employees is one hour, according to this ap-
proach-that is, anyone working 40 hours is a full-time employee, while one
working 39 hours is classed as part-time.
Now such a concept, of course, defeats the objectives of the part-
time program which we hope this bill will establish.
Now, to include some of the conclusions and recommendations con-
tained in this article :
1. The Civil Service Commission needs to develop alternative methods of ac-
counting for time worked and numbers of employees. The man-year equivalency
method is recommended. If this is not adopted, a second category should be estab-
lished to distinguish career from temporary or intermittent employees, with sepa-
rate ceiling adjustments.
2. The Commission needs to establish a clearinghouse, such as a talent bank
or a special register, for the recruitment of professional and specially trained in-
dividual's available on a permanent part-time basis.
3. The Commission should clarify administrative procedures for hiring career
part-time employees through issuance of a manual of instructions clearly out-
lining methods for budgeting, recruiting, and reporting of permanent part-time
employees.
Current procedures are so cumbersome we believe they may be one reason
managers avoid using the system.
4. Administrators and managers need to identify jobs amenable to career
part-time workers, and to include these positions in their projections of per-
sonnel needs in building the annual budget and future programs.
5. Equal employment opportunity programs need to include provisions for
making permanent part-time positions available to professional workers, pro-
viding opportunities for highly trained women with family responsibilities to
acquire experence for executive positions.
6. Manpower utilization committees need to be established with a priority of
developing productivity measures to evaluate performance of both full- and part-
time workers and to relate these to administrative costs of part, as opposed Ito
full-time, employment.
7. Federal service awards need to recognize excellence regardless of full- or
part-time status.
We will submit this entire document, for inclusion with FEW tes-
timony. Thank you.
The CHAIRS AN. Thank you very much for your contribution. We
may be back with questions for you.
[For the record : a letter, in part, was received on October 26 from
Daisy B. Fields, aforementioned material and additional statements:]
FEDERALLY EMPLOYED WOMEN, INC.
Washington, D.C., October 22, 1973.
We have reviewed the objections to S. 2022 raised by Chairman Hampton, U.S.
Civil Service Commission, in his letter to Senator McGee, September 25, 1973, and
submit the following comments for consideration by the Committee.
Hampton letter, para. 3.-"There is now available administrative flexibility
that enables Federal executive agencies to employ workers on a part-time basis.."
Comment.--FEW does not dispute the existence of administrative flexibility
to provide part-time jobs. However, experience has shown that most agencies do
not exercise this flexibility except to fill low-paying jobs or to meet unusual cir-
cumstances. The low-level positions frequently are those which could not other-
wise be filled, such as kitchen help, hospital attendants, nurses aides, etc. in
Veterans Administration hospitals. It is not uncommon for agencies to hire peo-
ple for a 39-hour "part-time" job to circumvent the regulations pertaining to full-
time employment.
Our concern Is not how many jobs are filled but rather what kinds of jobs and
whether they of?er career advancement opportunities plus the benefits inherent in
a career civil service system. We are concerned with a broader application of the
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part-time employment program throughout the federal service, not in a handful
of agencies.
Hampton letter, para. ?.-"* * * we object to the proposal because it would
require that a fixed percentage of positions at each and all levels in all executive
agencies be set aside for part-time work."
Comment.-We do not interpret S. 2022 as denying management the right to
decide which jobs can be performed on .a less than full-time basis. It is our con-
tention that many positions, at all levels, can be filled on a part-time basis. With
the national trend toward a shorter work week, we believe a 10% goal over a
period of 5 years is not unreasonable. It is a goal-not a quota. However, since
this concept represents 4 radical departure from past practices, we would find
it acceptable to reduce the percentages to one percent of all positions for the first
two years, then two percent per year thereafter until the goal of 10% is reached
over a period of six years.
Hampton letter, para. 5.-"The bill would require that some jobs now filled
on a full-time basis be converted eventually to part-time. This would be more
costly because of additional overhead expenses and would result in inefficient
operations in some work situations. We seriously question whether these unde-
sirable and unnecessary results are in the public interest."
Commeroial.-There is no empirical evidence to support the contention that
part-time employment impairs the efficiency of agency operations. The additional
"overhead expenses" would be clearly offset by the productivity of part-time
workers which has been found in many instances to exceed that of full-time
workers. Surely, the public interest would govern the allocation of jobs to full-
time or part-time basis. We believe the legislative intent would be to grant such
discretion to management.
Hampton letter, para. 6.-"The proposed employment system also ignores the
fact that large blocks of Federal jobs do not lend themselves to being filled on
a part-time basis."
Comment.-This is an assumption with no basis in fact. The Assistant Vice
President of the Federal Reserve Bank of Boston successfully fulfills the re-
sponsibilities of her position working 41/2 hours per day, 5 days per week.
The success of the HEW Executive Corps. and the AEC and HUD part-time
programs attest to the fact that professional positions, at all levels, can be filled
on a part-time basis without detriment to the public interest.
As for continuity, it has been our experience that the turnover for women
who have responsible part-time jobs, with Civil Service status, has been no
greater than for full-time workers in similar positions. The aforementioned
HEW Executive Corps and the AEC and HUD part-time programs support this
observation. Additionally, some jobs requiring continuity can be filled by pairs
of part-time workers sharing an 8-hour shift. Monitoring laboratory experi-
ments is a case in point.
Furthermore, the bill states "* * * that, unless judged impossible * * * at
least two percent of the positions at each and all levels * * * shall be on a flexi-
ble hours * * * basis." The phrase "unless judged impossible * * *" provides
management the discretion needed to determine which jobs cannot be performed
part-time.
We would urge the Civil Service Commission to conduct a study to determine
which jobs cannot be performed on a part-time basis. The bill provides for such
"* * * research and experimentation projects * * *"
Hampton letter, para. 7.-"Labor market conditions, and fluctuations in labor
market conditions completely beyond the control of the Federal government,
would in our judgment make it impossible to hire enough well qualified em-
ployees in some types of jobs to meet the employment requirements of the bill."
Comment.-The types of jobs listed in Mr. Hampton's letter include "jobs
such as Air Traffic Controller, Border Patrol Officer, Park Ranger, and Forester
which require specialized experience not readily found among candidates will-
ing to work part-time." (Underscoring supplied)
The clear implication of the foregoing, undocumented assumption, and par-
ticularly the underscored portion, is that women do not have the "specialized
experience" required for these positions. Quite so. Therefore it is imperative
that women be encouraged to train for such positions with reasonable assurance
of employment opportunities. Jobs requiring carrying firearms were denied to
women until just about two years ago.
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Park Ranger and Forester jobs are ideally suited to husband-wife teams and
could be filled on a part-time basis. This could be economically advantageous to
the government in many areas, especially where government housing is fur-
nished.
The trucking industry has already demonstrated the success of employing
husband-wife teams on cross-country jobs. The company provides the training
course. One such company official claims "* "' * 36 of our approximately 1,000
drivers are women and we are happy with all of them. They're good. Statistics
show our husband-wife teams are more stable, and the women are usually better
drivers than men. They are less apt to take chances." Surely, if women can
safely maneuver 350-horsepower, 16-ton trucks, loaded with 14,00() pounds oi'
heavy equipment, they can be park rangers and foresters and border patrol
officers.
Hampton letter, para. 8.-"We object also to that feature of the bill which
designates the Secretary of Labor as the official responsible for its administra-
tion."
Comment.-We agree with the Commission's, position. We believe that employ-
ment policies and practices related to Federal. employment is the responsibility
of the Civil Service Commission which should be charged with responsibility
for implementation of the bill when passed.
Hampton letter, para. 9.-"* * * the Commission encourages agencies to use
a variety of techniques, including part-time work assignments, to provide em??
ployment for women and men whose family or other personal responsibilities
do not permit full-time employment."
Comment.-We find no evidence of the Commission's "encouraging" agencies
to use part-time work assignments at all levels. It has been our experience that
the Commission has taken a passive role in encouraging innovation or creativity
in personnel policies and practices. On the basis of its past record, it is unlikely
the Commission will take positive, affirmative action to encourage or develop
more opportunities for part-time employment unless there is a law charging it.
with the responsibility to do so.
Conclu8ion.--qWe recommend clarification of the distinction between "flexible'
hours and "part-tine" employment-a point made by Rep. Bella Abzug in her
testimony. Most companies in the private sector that have flexible hours still
require employee's to work a full 40-hour week. We recognize the need for flexible
hours as well as part-time employment, but the two should not be confused.
Greater use of flexible hours in the Federal government would permit those
agencies that serve the public directly--Social Security Administration, Employ-
oient Service, Food and Drug Administration, etc.-to be of greater service to the
public if they were open at times other than the standard work week. The ex-
tended hours would not cost an agency overtime since employees still would work
only a 40-hour week.
We further recommend that a provision be inserted in the bill to require the
establishment of a "Coordinator for Part-Time Employment" in every agency
and department. The duties of such coordinators would include, but not be lim-
ited to, (1) evaluation of all positions within an agency to determine which can
appropriately he restructured and redesigned for part-time employment without
undue interruption to the public service, with ;justification in writing to support
the claim that certain jobs cannot be so restructured; and (2) responsibility for
matching applicants for part-time positions with available jobs.
In our letter to Senator Tunney, which has been inserted in the record, we
recommended that as a minimum, one percent of an agency's jobs, or 100 jobs,
whichever is larger, be set aside immediately for part-time employment and that
these jobs be computed by "manhours" rather than "bodies." This procedure
would not affect an agency's full-time or derived ceilings, but would provide
the maximum number of part-time employees within the percentages established.
We agree with Senator Tunney that flexible hours and part-time employment
is "an idea whose time has come," and the principle should be institutionalized.
We sincerely hope the Committee will make the objectives of S. 2022 an imme-
diate reality.
Sincerely,
DAISY B. FIELDS,
Chairma'am,
Legislation Committee.
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[The Bureaucrat, vol. 1, No. 3, Fall 1972]
PART-TIME CAREERS IN THE FEDERAL GOVERNMENT
(By Marjorie M. Silverberg)
The use of people's skills and talents on a long-term, part-time basis has great
potential in the Federal service as managers seek ways to use economic and human
resources more effectively in achieving program goals. Part-time employment
offers both men and women a life style that combines the use of professional
skills and family responsibilities or other interests. Yet despite the potential
advantages to both employer and employee, the federal government has been un-
willing to accept the concept of part-time professional careers. This is reflected in
the confusing way part-time employment is defined and administered in the fed-
eral service and in the small numbers who hold part-time professional appoint-
ments.
The administration of the federal employment system is based on the pre-
conception that part-time careers imply lack of commitment and on the belief
that the employment of career part-time workers, except in shortage areas, may
diminish the apparent importance of the work in progress.
BARRIERS TO PART-TIME EMPLOYMENT
The Civil Service Commission and the Office of Management and Budget, the
two agencies responsible for establishing the system which could accommodate
part-time employment, do not appear ready to challenge the assumption that part-
time means part-commitment. The redefinition of part-time employment and the
system that governs it are not only confusing to the prospective manager, but
provide little incentive to managers to consider the mix of part-time and full-
time employees to get a job done more efficiently.
The CSC defines "a part-time employee, regardless of the nature of his or her
employment, * * * [as] one who works less than 40 hours a week. The employ-
ment may be regular and recurring (loosely referred to as `permanent') ; it may
be for a temporary period ; or it may be intermittent in the sense that the person
works only when called in. * * * " (This definition appears in the Federal Per-
sonnel Manual letter 312-3, dated March 1971.) The actual difference between
full- and part-time employees is one hour, according to this approach-that is,
anyone working 40 hours is a full-time employee, while one working 39 hours is
classed as part-time.
While flexibility exists regarding the accounting of employees, the system dis-
courages an agency from using part-time employees in a continuous and syste-
matic manner by the way in which the employment ceiling is established for an
agency. This ceiling is broken into two categories-full-time permanent and total.
The difference between the two is called the "derived" ceiling, and into this cate-
gory goes everyone who isn't full-time permanent. The same distinctions apply to
the numbers of positions an agency is authorized, i.e., agencies are allotted specific
numbers of full-time permanent slots and "other" slots. Thus the derived ceiling
and authorization is a combination of permanent part-time, temporary part-time,
temporary full-time, and intermittent employees, with each counting as one full
body regardless of the amount of time worked during a month. For instance,
agency reports to the CSC must count a consultant working eight hours during
a given month and a temporary employee working 160 hours during the same
month as two bodies.
The fact that part-time employees can and do occupy full-time permanent slots
adds to the confusion and to the irony of the distinction. FPM 312-3 encourages
this use of full-time permanent slots for part-time employees, despite the obvious
disadvantage to an agency that wishes to utilize the full potential number of
man-hours its employment ceiling could provide. While the FPM ostensibly offers
agencies the flexibility of converting full-time permanent positions into multiple
slots under the derived ceiling, this is not an option readily available to an
agency unless it is willing to convert a sizeable number of slots in proportion to
its total authorization.
Furthermore, during the planning process the budget is formulated principally
on the basis of full-time permanent positions and the funds required to support
them, with little attention focused on the remaining derived ceiling. Such formu-
lations ignore the potential talent and economies available with the carefully
planned use of part-time professionals.
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Substitution of budgetary constraints or of a man (or woman) year account-
ing systems would go far in straightening out the confusion that exists about
the current employment system and would provide much greater incentive and
flexibility to the manager trying to turn out it good job with the least amount
of resources.
Another barrier to part-time careers is the general unwillingness to deal with.
the administrative arrangements that need to be made with this type of em
ployment. The key to tailoring a job for part-time assignment is the flexibility
of both the supervisor and the employee is scheduling meetings, travel, and other
functions relevant to a professional position.
Some think that only certain kinds of jobs are amenable to part-time sched?,
uses, such as writing, editing, research systems design and analysis, and other
work involving considerable independence, and that part-time jobs are not ame?
sable to administrative or supervisory functions. However, four of the supervis-
ory members of the part-time Professional and Executive Corps in HEW main-
tained that all jobs were amenable to part-time employment, and the Labor
Department classifies five of its part-time jobs as managerial, which raises ques-
tions as to the validity of these preconceptions.
STATIIS OF PART-TIME EMPLOYMENT IN THE FEDERAL GOVERNMENT
Large numbers of talented individuals, mostly women, are searching for career
part-time employment-women who are not counted among the employed in
Labor Department statistics. The problem is lack of demand, not supply, and
as programs for continuing education for women proliferate, and organizations
ssuch as Catalyse, and Washington Opportunities for Women break new ground
+n utilizing the talents of qualified women for part-time employment in the labor
force, the supply of well-qualified women will increase.
Though generally the concept of part-time careers is thought to mainly bene-
1t women with family responsibilities, many men stand to gain from this ar-
rangement. The HEW Report of the Women's Action Program, January 1972,
deliberately omits mention of sex in its recommendations regarding part-time
employment. Ore of these recommendations encourages counselors to suggest
part-time schedules for those near retirement age who need a gradual transition
in life-style.
Government agencies generaly have not responded to such recommendations,
and the utilization of part-time employees in most agencies has appeared to
decline rather than increase in recent years. Following the recommendation of
the Federal Women's Award Study Group in 1967, several federal agencies re-
cruited and hired part-time employees. Also encouraged by Mary Bunting, presi-
dent of Radcliffe College and an AEC Commissioner, the AEC began to hire
women on a part-time basis. Other agencies, including the National Science
Foundation, the Veterans Administration, the Labor Department, and the Peace
Corps, recruited both clerical and professional part-time personnel. In December
1967 John Gardner established the HEW Professional and Executive Corps, and
in 1968 HUD began its Part-Time Program for Professionally Trained Women.
In both HUI) and HEW, agencies were asked to identify jobs amenable to a
part-time schedule, and qualified women were matched with the jobs. Slots were
filled as they became available under the employment ceilings allocated. No
slots existed solely for these programs and the individuals hired met the regular
Civil Service Commission requirements for comparable full-time appointments.
HTTD, alone, has managed to increase its number of professional part-time posi-
tions-from 48 in 1971 to 61 in 1972, of which 57 are career conditional or career
appointments. Since HUD's Washington headquarters
centrally small
control its part-time
total number oil employees (4,400/15,500), It can
positions in headquarters and fill vacancies with part-time position employees
when they occur. HUD's career part-time professionals occupy GS grades 7-1.4.
The women are employed in fields including law, budget analysis, urban prob-
lems, communications, and program assistance and implementation. Many work
a 30-hour week, often on a four-day schedule. Personnel practices vary within and
among agencies regarding promotions of part-time employees. At HUD, for ex-
ample, promotions are based on the number of calendar years rather than man
years served.
At AEC, the number of part-time professional women has dropped from 62 in
1968 to 29 in 1972, of whom most are in GS grades 13-15. The Labor Department
employs 20 professional part-timers, at GS levels 7-15, 15 of whom are in OS
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grades 12-15. Fifty-seven nonprofessional part-time employees hold career posi-
tions. In a department employing 12,600 people, these numbers are extremely low,
as are those in other agencies.
CONCLUSIONS AND RECOMMENDATIONS
Permanent part-time employment has been under-utilized as a tool in effective
management planning because of the absence of a feasible system to integrate it
Into the basic system. Present ceiling classifications and policies reduce the effec-
tive use of both permanent full- and part-time personnel. To change this situation :
1. The Civil Service Commission needs to develop alternative methods of ac-
counting for time worked and numbers of employees. The man year equivalency
method is recommended. If this isn't adopted, a separate category should be es-
tablished to distinguish career from temporary or intermittent employees, with
separate ceiling allotments.
2. The CSO needs to establish a clearinghouse, such as a talent bank or a special
register, for the recruitment of professional and specially trained individuals
available on a permanent part-time basis.
3. The CSC should clarify administrative procedures for hiring career part-
time employees through issuance of a manual of instructions clearly outlining
methods for budgeting, recruiting, and reporting of permanent part-time
employees.
4. Administrators and managers need to identify jobs amenable to career part-
time workers and to include these positions in their projections of personnel needs
In building the annual budget and future programs.
5. Equal employment opportunity programs need to include provisions for
making permanent part-time positions available to professional workers, provid-
ing opportunities for highly trained women with family responsibilities to acquire
experience. for executive positions.
6. Manpower utilization committees need to be established with a priority of
developing productivity measures to evaluate performance of both full- and part-
time workers and to relate these to administrative costs of part-, as opposed to
full-time employment.
7. Federal service awards need to recognize excellence regardless of full- or
part-time status.
(The following article reports on a pioneering personnel program set up at the
Department of Health, Education, and Welfare to use the talents of part-time
employees who are women. It is a continuing, successful demonstration pro-
gram : as of March 1971, 30 women were still part of the Corps.)
CAREER PART-TIME EMPLOYMENT : PERSONNEL IMPLICATIONS OF THE HEW
PROFESSIONAL AND EXECUTIVE CORPS
(By Marjorie M. Silverberg and Lorraine D. Eyde)
In December of 1967, John Gardner, then Secretary of Health, Education and
Welfare, announced the establishment of the Professional and Executive Corps.
Initially 22 women from various ethnic and racial backgrounds worked from 20
to 35 hours per week throughout HEW in this demonstration project. Secretary
Gardner gave this group visibility and strong administrative support to open up
employment for talented, trained individuals who could not or did not wish to
work the regular 40-hour week. He emphasized the need of both society and the
individual to utilize these skills without forcing the neglect of families. An-
nouncing the program to the press, Secretary Gardner stated, "I hope their
example will encourage other women to pick up careers that may have been
laid aside. And I expect that their performance will convince other employers of
the benefits to be gained from similar arrangements for other part-time people."
Before establishing an official policy on part-time employment, Secretary
Gardner requested agencies to analyze job openings throughout the department
that could not be filled, because of a shortage of skills, with full-time personnel
or that could be handled less-than-full-time. Mrs. Elsa Porter, designated by
Secretary Gardner to implement his policy, reviewed the applications of highly
qualified persons and matched the applicants with the 60 professional and tech-
nical assignments identified. Mrs. Porter worked with Washington Opportunities
for Women, a referral and information organization affiliated with the D.C.
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Employment Service Professional Career Information Center, which held several
hundred applications of women seeking part-time work. Also involved with the
search for exceptionally talented women to match HEW's needs were the Civil
Service Commission, the Urban League, the National Council of Negro Women
and other organizations. All those hired met the civil service requirements for
the different types of appointments in the same way as full-time employees. No
special privileges were granted.
The Professional and Executive Corps was the mechanism by which the policy
was accorded high visibility. No program, as such, existed, though press an-
nouncement of its establishment brought hundreds of inquiries and applications
from highly trained people. Instead, the number of positions available was al-
ways determined by the staffing needs of the agencies throughout the department
and the highly erratic personnel ceilings allotted to each of them. The Corps
served as it focal point for demonstrating the efficient, flexible use of highly skilled
talent, never as an independent employer. In addition to its primary function as
a demonstration project, the Corps provided opportunity for information ex-
change and dissemination as well as a model for part-time employment in other
THE QUESTIONNAIRE STUDY
Seventeen months after its establishment, the Corps' numbers had reached 40
by adding five career professionals already working part-time for at least two
and one-half years before the Corps' establishment and subtracting the nine
women forced to leave mainly because their husbands' jobs took them out of the
area, often overseas. At that time, in May 1969, the authors, also members of the
Corps, administered a two-part questionnaire study to document the pilot project
and suggest areas of further study.
Questionnaire I, which asked for information pertaining mainly to biographi-
cal data and experience related to the present jobs, was designed to be com-
pleted at the time of first employment. Many members filled these out retro-
spectively, since they had been working varying periods already. A total of 32
of 40 (80%) active members returned Questionnaire I, plus four of the nine
who left the Corps. Questionnaire Ii was designed to be completed six months
after first part-time employment at HEW and contained job-related questions,
including motivation for working and attitudes towards part-time employment,
its amenability to the workers and the organization and its strength and weak-
nesses for both. Thirty of the 40 (75%) active members responded to Question-
naire II.
Evaluation of the workers through interviews with their supervisors or other
methods did not prove to be feasible. However, some objective evidence exists
regarding the quality of the Corps members' work. At least three members have
received public commendations from their supervisors and agencies. Numerous
other Corps members have published articles on subjects such as data processing,
health insurance, low-income families, malnutrition, and the counseling of women.
Others have lectured and participated in symposia at professional meetings
throughout the country. Two members described their part-time work at the
Joint Meeting of the Subcommittee on Employment and Retirement Incomes and
the Subcommittee on Federal State and Community Services of the Senate Spe-
cial Committee on Aging on July 29, 1968. At this meeting, Mrs. Porter testified
that the Corps members, then numbering 37, "are making exceptional contribu-
tions to the work of our agency * * * (according to) their supervisors' reports."
TYPES OF JOBS HELD AND LOCATION WITHIN HEW
Sixty per cent of the 30 women responding to the second questionnaire reported
they were working at the agency or bureau level, where specific programs are
administered. These included the Social Security Administration, the Social and
Rehabiliation Service, the Office of Education, the Consumer Protection and Envi-
ronmental Health Service, and the Health Services and Mental Health Admini-
stration. The remaining 40% worked in the Office of the Secretary, which includes
the staffs of the Secretary and the Assistant Secretaries. Employment of the
women in the Office of the Secretary reflected the Secretary's strong support and
the willingness of his supervisors to encourage flexibility at the highest levels.
Twenty-five per cent of the Corps members worked as program or staff assist-
ants, requiring specific knowledge and skills to carry out their wide range of
assignments in their program areas. Twenty-two per cent worked in the quantita-
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tive fields of economics, statistics, and mathematics ; and 22% held jobs in the
various areas of communications, including research and writing, initiation of
film programs, and public speaking as national representatives of an agency. At
the time of the project's initiation, shortage positions were filled by three systems
and computer specialists, one research chemist and two research psychologists, as
well as a highly experienced coordinator of volunteers and a retired dean of a
school of social work. Expected high productivity coupled with lower costs, i.e.,
less-than-full-time pay to get the job done, were among the benefits expected by
HEW supervisors.
Appointment information available for 34 of the 40 persons in the Corps indi-
cates that two-thirds of the Corps members received permanent civil service
appointments. Specifically, 14 persons received probationary appointments ; an-
other 10 had career appointments, that is, they had already successfully com-
pleted their three probationary years on earlier-held jobs as federal employees ;
two were employed as consultants ; and the remaining nine persons had time-lim-
ited appointments as temporary workers. The women were employed at HEW at
the entry level of GS-7 through GS-15, the highest grade of regular civil service
appointments.
The employment history of the Corps sample, all of whom were married. shows
evidence of strong career motivation prior to the part-time HEW appointments.
One-fourth of the Corps sample had been employed continuously throughout
the years of their marriages. More than half of them had worked at least half
of their married lives. Furthermore, nearly two-thirds of them had managed to
secure pre-Corps employment as part-time professional workers. Such employ-
ment arrangements are generally hard to find.
A frequently found predictor of career commitment of women is educational
level, with more highly educated women more likely to be employed. Educa-
tional level is no doubt a contributor to the high level of career motivation of
the Corps, since more than half of the respondents held a master's degree and
two persons held doctorates. All but one of the Corps respondents held a bachelor's
degree and this person had completed specialized training in data processing and
systems design, As might be expected from the orientation of the Depart-
ment of Health, Education, and Welfare, 59% of the women had concentrated
their studies on the behavioral or social sciences.
All of the Corps sample had children. Fifty-three per cent of them had two
children. Earlier studies of highly educated women have shown that a relatively
large proportion of them remain unmarried, and if they marry, a substantial
proportion of them remain childless or have only one child.
The Corps respondents were holding demanding jobs despite the fact that
41% of them had at least one child under six years of age when they entered
the Corps. The part-time employment arrangement apparently provided a way
for mothers of small children to contribute their skills to the implementation of
federal government programs. More than three-fourths of the Corps sample
reported that their husband's attitude towards their employment was encour-
aging. Their spouses were also highly trained professionals with 61% holding
graduate degrees including the M.A., M.D., Ph.D., and L.L.B. degrees.
Marital status and home responsibilities of the Corps sample may be com-
pared with those of the 145 federal women executives employed full-time at the
high level grades of GS-14 and above in 1962.1 At the time of that study, women
held less than 2% of all the federal jobs at the executive level. Nearly two-
thirds of the women executives in the Warner study remained unmarried. How-
ever, 20% of the Corps sample were at the high level grades of GS-14 and above,
and they were all once married and had one or two children. When the respond-
ents joined the Corps, their median grade level was GS-11, a mid-level pro-
fessional grade, and each had from one to four children. with an average of two.
Women employed at mid- and high-level pay grades do not typically have such
family responsibilities. Another survey of all women working at grades GS-11
in 1961 a showed that only 42% of the women were married and that 46% of
1 Warner, W. L., Van Riper, P. P., Martin, N. IT., and Collins, R. F. Women Executives in
the Federal Government. Public Personnel Review, 1962, 23(4), 227-234.
2 President's Commission on the Status of Women, Report of the Committee on Federal
Employment, Washington, D.C.: U.S. Government Printing Office, October 1963.
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those married had no children. Part-time careers apparently allow dual roles.
No doubt further part-time employment experience will enable many more of
the Corps women eventually to qualify for executive and policy-making positions
in the federal government.
The Corps respondents had a median age of 41 when entering the Corps, similar
to that of the average employed woman worker. The age range was broad, with
three persons under 30 years to one person over 65 years of age. One might pre-
dict that these highly trained professional women in their middle years, like their
male counterparts, will show relatively low absenteeism and labor turnover. In-
deed, part-time employment may well enable women to reduce absenteeism that
might be associated with their family responsibilities since they are able to take
care of many of these matters during their non-working hours. The Corps women
have virtually completed their families, and have a long work-life expectancy. For
example, the Department of Labor has reported that 24 years is the work-life
expectancy of a 35-year-old working woman who has completed childbearing and
has all her child:ren in school.
With the degree of commitment shown here for permanent professional careers,
and the large numbers of women who applied to HEW and to another program in
Westchester County described later, we believe that permanent part-time em-
ployment for qualified professionals should be one of the goals of all equal em-
ployment opportunities programs.
During the first 17 months of the Corps operation, seven Corps members re-
ceived promotions. Three members of the Corps sample who held temporary
appointments for six or 12 months received promotions at the time they were
reclassified as permanent workers. This type of personnel transaction may have
reduced the waiting period for their promotions. The belief has been that part-
time workers are not eligible for promotion until they have worked the equivalent
number of hours required of full-time workers before becoming eligible for pro-
motions. Considerable confusion about this regulation was expressed at Corps
meetings. Some supervisors were equally unable to clarify the provisions of this
regulation. Furthermore, two other persons were promoted after being on the job
a year, and two more were promoted after two and a half and six years respec-
tively. In other words, permanent (but not temporary) part-time workers do
receive promotions, but it may take them much longer than comparable full-time
workers to obtain these promotions.
During the initial 17 months of the Corps program, horizontal-as well as
vertical-mobility of the Corps workers occurred. Perhaps this type of move-
ment was facilitated by information obtained by Corps members at periodic
meetings at which high-level government officials described their responsibilities,
and information about job vacancies was exchanged among members. At the
time of this study, six Corps members had chosen to take other part-time posi-
tions in HEW. Four persons took lateral transfers and moved to a second job
at the same pay. Two persons who changed jobs received promotions to higher
paying positions.
Two-thirds of the positions of the sample were in units well established before
the appointment of the part-time respondent. Three out of four of the positions
held by the Corps sample had not been previously filled by a part-time worker.
Fortunately, the majority (63%) of the Corps sample perceived their job duties
as accurately defined at the start of their employment.
To assess the possible merits of partnership jobs, the Corps sample was asked
to respond to this question : should jobs be assigned so that two persons carry
on the duties of a regular full-time job, i.e., act as partners? The Corps re-
spondents clearly rejected the partnership arrangement for their jobs. Only
two persons (7%) stated that sharing a job with another person 'might perhaps
be a better arrangement than the present one in which no formal arrangements
had been made for sharing. One might speculate about the reasons for the
negative response to the partnership concept. Perhaps the women feel that
they have certain skills that cannot easily be matched by another part-time
person. For example, one respondent said ". . . no one else (is) likely to have
the experience I have in this area either in or out of (the) government." Perhaps
the rejection of the partnership concept is related to the type of job held by
Corps members ; most held jobs of a staff or advisory nature. However, the
partnership arrangement might be effective in operational and direct service
jobs such as caseworkers and employment interviewers.
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SELF-EVALUATIONS OF PART-TIME EMPLOYMENT
Corps members have often remarked that the only disadvantage of part-
time employment is the part-time salary. Apparently many Corps members were
well satisfied with the opportunity to be professionally employed while still
having enough time to take care of the family responsibilities.
Though the Corps members viewed their jobs positively, it was apparent that
they experienced some problems. Therefore, efforts were made to assess these
perceived advantages and disadvantages. Corps members were asked to rank
themselves on two lists relating to the difficulties and advantages they saw in
their part-time jobs. Each respondent was asked to rank himself on the eight
chief difficulties and the eight chief advantages.
JOB-RELATED
Many Corps members have expressed a long-term interest in part-time employ-
ment. Therefore, it is not surprising that the Corps respondents expressed some
concern over their own tendency to make their part-time job into a full-time
poition by working longer hours than originally planned. It seems reasonable
that this might happen among workers showing strong career commitment. It
is here that the role of the supervisor of the part-time workers becomes critical.
By the nature and timing of job assignments, supervisors can relieve some of
the pressure on part-time workers who feel pushed into full-time schedules.
However, when the supervisor and employee agree that extra hours need to
be worked, arrangements should be made for payment for the additional hours
or compensatory leave to be taken at another time.
The chief job-related difficulty concerned the possibility of slower promotions.
As Corps members remain longer on the job this issue may become more impor-
tant. Criteria for promotions need to be examined ; is it appropriate for a half-
time worker to wait twice as long to receive a promotion as a full-time worker on
a comparable job? Perhaps the critical criterion is the part-time worker's contri-
bution to the quality and quantity of the unit's work load, rather than the equiva-
lent man-years worked.
Record-keeping of leave time is a job-related activity that may concern super-
visors and record-keepers. Therefore, the procedures should be kept as simple
and current as possible. For example, record-keeping of additional hours worked
or compensatory leave may be simplified if the employee prepares her own
memo informing her supervisor and payroll clerk of changes in her schedule. Since
most governmental agencies now have computerized payrolls, salary computations
should be easily and accurately performed.
At Corps meetings members expressed confusion over applicable fringe benefits.
For this reason a survey was conducted seven months after the Corps was estab-
lished which disclosed that two out of 32 part-time employees entitled to annual
and sick leave were not receiving these fringe benefits. Approximately a year
later, at the time of the more comprehensive study of Corps members, questions
were still being raised about compensation and leave procedures. Civil service
policies and procedures were interpreted differently by the various agency per-
sonnel offices.
Efforts need to be made to clarify the fringe benefits accruing to temporary,
probationary and permanent career workers. Benefits could be spelled out in one
or two simple brochures for all governmental workers, full- and part-time. For
example, in the federal government temporary part-time workers with a regularly
scheduled tour of duty, i.e., regular workdays and hours each week, are entitled
to annual and sick leave prorated according to the number of hours regularly
worked. However, temporary workers, part- or full-time, are not entitled to insur-
ance and civil service retirement benefits to which probationary and permanent
career workers are entitled. Part-time probationary and permanent career work-
ers are entitled to one year of tenure for each year worked. These years of tenure
count towards their seniority in the organization and count towards their retire-
ment benefits. The civil service provisions accord the same fringe benefits to part-
time permanent workers as to full-time permanent workers. This may not be the
case among private employers and may be one indicator of unequal employment
practices affecting women.
FAMILY-RELATED
The crucial family-related problem encountered involves finding and keeping
reliable household and childcare help. This is a common problem for the working
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wife and mother. It affects all socio-economic levels, and of course, it affects
the woman working full-time even more.
SELF DEVELOPMENT
The Corps sample showed considerable agreement regarding ways in which
their jobs contributed to personal development. The three most frequently listed
advantages were : continued use of education and training ; intellectual develop-
ment; and opportunity for more job experience. Self development was viewed as
being of greater importance than were financial factors for most of the women.
FINANCIAL
Since many of these professional women were adding a second income to their
husband's, and work as such is the key factor., money was not the prime motive-
?:or. Four women, however, indicated that they were working to pay for esser,-
ials. It is also interesting to note that only three women felt that their salaries
were too low compared to the expenses of childcare, transportation and additional
taxes. Part-time workers such as the Corps women working at professional or
middle management jobs probably earn enough to compensate for the expenses
that come with employment. However, even at these relatively high income levels,
little remains for part-time workers after expenses and taxes, since tax deduc-
tions are not available for childcare expenses for women at these income levels.
Unfortunately, entry-level professional or clerical workers with children who
might wish to work part-time probably cannot afford to unless they have low-
cost childcare facilities or unless there is a change in the tax structure for
working mothers.
AMENABILITY OF JOB DUTIES TO PART-TIME SCHEDULES
Corps respondents stated that they occasionally have difficulty attending ir-
regularly scheduled meetings. Flexibility on the part of both the employee and
supervisor in scheduling meetings appears to be a key element in the success of
the part-time program. The respondents stated they shifted their schedules to
attend important meetings and to travel. Several Corps members managed to
travel as part of their regular jobs. Some respondents also said that they felt
pressed for time to supervise others and to maintain staff contacts. However
many full-time workers and supervisors are not always readily available for
consultation either, and may also be too busy to provide close supervision. Since
part-time schedules usually induce pressure, It is possible that part-time workers
make particularly efficient use of their shorter work schedule. Studies on produc-
tivity need to be carried out.
Among the tasks considered most amenable to the particular part-time jobs
under study are long term projects that involve writing and research. Assign-
ments that do not extensively involve working with other staff or requiring close
supervision-namely independent work-are especially well suited to a part-time
schedule. It is interesting however, to note that some Corps members were able
to find time to supervise a number of workers.
Outside evaluation of the effectiveness of the part-time workers is needed. In
particular, study needs to be directed toward the cost of fringe benefits and the
cost of record-keeping in relation to the quality and quantity of the part-time
worker's job performance. It would also be useful to compare the productivity per
hour worked by part-time compared with full-time workers in similar positions.
Such evidence is needed to document thoroughly statements such as those de-
scribed in a report from approximately 15 governmental organizations in the
Washington area that supplied Information about their use of part-time per-
sonnel" These organizations "all reported such workers were as productive per
hour as full-time employees, or more so. All believed part-time employment was
more efficient in some situations than full-time employment. The largest number
of part-time employees hired had qualifications of a kind or a level in scarce
supply." Another study strongly suggests increased productivity in part-time
work compared with full-time. The Massachusetts Department of Social Services
hired 50 part-time caseworkers to fill 25 full-time jobs. After one year the new
employees were said to average 89% of the productivity of their full-time
col- Ibid.
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leagues.* Furthermore, their turnover was only one-third of that of the full-time
workers.
SOCIAL TRENDS AND INSTITUTIONAL ALTERNATIVES TO PRESENT APPROACHES
During the 1970's the effectiveness of many existing institutions has been
seriously questioned. Dramatic changes may be expected in the future that will
affect family life and employment of both men and women.
GROWING DEMAND FOR PROFESSIONAL PART-TIME CAREERS
It is almost unnecessary to state that many women are questioning their role as
individuals, and seeking greater responsibility within the world of work commen-
surate with their training and ability. With a greater interest in working and
greater ability to control family size, the ideal of which appears to be shrinking,
many women now wish to combine professional careers with marriage and chil-
dren. Some evidence of the demand for this type of arrangement is the extremely
large response already mentioned to the Corps' establishment and to a pilot
project by an organization formed by college presidents to help reduce the attri-
tion rate of educated women from the labor market. The organization, Catalyst,
has initiated a program in Westchester County to help those of the 93,000 college
educated women in that area who want to enter or re-enter the job market at a
higher than clerical level on a part-time basis. After operating only one month
with little publicity, Catalyst received over 300 requests for interviews.
DECREASED GRADUATE SCHOOL DROPOUT RATE SOUGHT
While the number of women attaining B.A.'s and M.A.'s continues to increase,
the proportion of women receiving doctorates is lower now-12% in 1967-
than it was in the 1920's and 1930's when the proportion reached a high of
15%. In an effort to provide solid evidence about obstacles to graduate study
and the critical factors that might induce a higher proportion of talented
women to complete their advanced work for graduate and professional degrees,
in 1968 HEW reported a longitudinal study of women college graduates using a
probability sample of 41,000 women from 135 colleges. Eighty per cent of the
women in the sample felt that becoming a physician was too demanding to com-
bine with family responsibilities, i.e., two full-time jobs. The sample was given
selected measures and asked to choose the ones they thought would attract
women to the fields of science and medicine (percentages reflect multiple re-
sponses). They replied that more women would complete their education if there
were greater availability of part-time jobs (84%) ; part-time training (83%) ;
development of childcare centers or paid allowances to cover home and child-
care expenses (82%) ; increases in the number of stipends awarded women
(76%) ; and greater recognition of women who are successful in these fields
(73%). Commenting on the study, Dr. Milo D. Leavitt, Jr. stated "the marked
fall-off of women completing graduate education in view of their initial hopes
and expectations is very disappointing. Women are a source of professional and
scientific brainpower--IF-steps could be taken to remove the impediments to
advanced training and productive employment of women."
EFFORTS TO PROMOTE EQUAL EMPLOYMENT OPPORTUNITY FOR WOMEN
Steps towards achieving equal employment opportunity appear imminent with
resolutions such as those adopted by the Governing Council of the American
Public Health Association at its 85th annual meeting in 1970: "The APHA
allies itself with the growing world-wide awareness of discrimination against
women. Such discrimination exists in the health professions and must be rem-
edied. Incentives and opportunities in the full range of health employment must
be extended to women in order to benefit from the talents of women that have
been under-utilized for too long * * * The APHA will assert leadership to ex-
tend its policy of equal rights in health to educational and employment oppor-
tunities for women * * *,"
*More specifically, half-time workers averaged 4.49 face-to-face contacts with their clients,
compared to the full-time workers 5.04. See Podell, L. Catalyst Demonstration Project to
Employ Mature, College-Graduated Women as Caseworkers in Public Welfare in Boston.
Unpublished manuscript. June 1970.
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Pressure for equal treatment in employment has produced Executive Orders
11246 and 11375 which forbid discrimination by federal contractors on the basis
of sex (as well as race, color, religion, and national origin) in employment, in,
eluding promotion, pay rates, and admission to apprentice-training. The HEW
Office of Civil Rights has ordered universities receiving federal funds to comply
or lose their financial support, and in February 1971, HEW Secretary Elliott;
Richardson announced the Women's Action Program. He explained the depart-
ment's goals as those of defining and developing strategies for achieving women's
career objectives. Additionally, both men and women in HEW will identify
and work to resolve attitudinal problems that limit recognition and advance-
ment of women. Secretary Richardson affirmed that the women's issue is a grow-
ing concern in the federal government, stating, "I think HEW should participate
as a leader in this area for we have an obvious and special responsibility to
women here and in the society."
Recently the Women's Equality Act of 1971 was introduced in the House of
Representatives to carry out the legislative recommendations of the Presidential
'Cask Force on Women's Rights and Responsibilities. Legislative proposals mount
with the pressure for equal pay and responsibility. Part-time employment of
women at high levels lends itself to the equal employment opportunity program.
INCREASED FAMILY RESPONSIBILITIES FOR MEN
Other practices presage sharing of family responsibilities by men, thus enabling
married women to have greater career involvement. In Sweden, men have already
been preparing themselves for a larger role in raising young children through the
Swedish school curriculum, which requires both boys and girls to obtain training
in domestic science and childcare, as well as wood, textile and metal handicraft.
Swedish trade unions and management organizations have worked out plans to
enable men to share child-care with women. Prime Minister Olof Palme advo-
cates greater variety in the lives of men-part-time careers, for both parents,
allowing both to care for their children. "The new role of the man implies that
he must reduce his contributions in the working life * * * during the period when
he has small children. The men should from the beginning have just as much
contact with their children as the women. We should have both men and women
as child nurses; kindergarten teachers, and infant school teachers."
The 1970 White House Conference on Children and Youth yielded similar re.c-
caled for t business and industry to a tab) h a o partnership Bwith the young. The
recommendation described the optimal situation for children as one in which
both the mother and father work part-time.
INTRODUCTION OF THE THREE- AND FOUR-DAY WORK WEEK
Inadvertent):7, the idea of more contact with their children by their working
parents has already taken form in experiments with the three- and four-day work
week. Economic incentives in the 1960's spurred several companies to experiment
with the three-day, 36 or 37i hour week and the four-day, 40 or 35 hour week.
Benefits include attraction of new employees, especially women who might not
otherwise work, flexibility in production schedules and a cut in absenteeism.
According to Edward M. Honan, Assistant Vice-President at the Metropolitan
Life Insurance Company, which began in 1969 to run its computer operations on
on job training. caliber
a employee, a more stable force" as well as a e money savings yielded
ESTABLISHMENT OF YEAR-ROUND SCHOOLS
Another alternative to accepted but limiting practices is the year-round school
program, which either extends the traditional 180-schoolday year or alternates
the vacations of the school population, keeping the schools open year round on
a quarter or trimester system. The benefits in this context include greater num-
bers of babysAters, since teenagers would be in the labor market year-round,
the end of the three month summer break requiring special arrangements for
children and flexibility in vacation scheduling. Virtually all state legislatures are
studying the possibilities of year-round schools, according to Dr. John D. Mc-
Lain, Chairman of the Pennsylvania Task Force on Education, and 100 school
systems in various states are actually implementing longer school years. Pilot
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projects like the Valley View 45-15 in Lockport, Illinois (45 school days and
15 vacation days year round) are attracting wide attention and appear
successful.
INCREASED PART-TIME OPPORTUNITIES FOR DIFFERENT GROUPS OF WORKERS
Part-time work for both men and women over 60 is one answer to the need
to use the experience, dependability, and expertise of those arbitrarily barred by
age from working in some companies. Within the U.S. are a growing number of
employment offices only for individuals over 60, whose clients possess experience
that cannot be duplicated.
Flexibility for both men and women to split their time between university
appointments and government or private jobs-possible now only to a limited
extent-brings greater experience and probably productivity to both areas.
Other candidates for part-time employment include persons who for health rea-
sons are more productive on a less than full-time basis.
As women's career expectations continue to rise, and as modifications occur
in family structure, and in educational and employment institutions, more
women will be able to make significant contributions to the world of work.
RECOMMENDATIONS*
1. Equal employment opportunity programs for women need to include pro-
visions for making permanent part-time positions available to professional
workers, thereby providing opportunities for highly trained women with family
responsibilities to hold professional positions and to progress to executive and
policymaking positions.
2. High level adminstrative support, on a continuous basis, is needed to assure
the success of the part-time employment program.
3. Efforts should be made to increase the visibility of successful part-time
workers, so that agencies and supervisors will be encouraged to hire permanent
part-time workers.
4. Personnel ceilings, that is ceilings on the number of employees an agency
may hire, should be based on man-hours worked rather than on the number of
full-time positions, thus allowing two half-time positions to amount to one
full-time position.
5. Statistical reporting systems need to designate a separate category for per-
manent, part-time workers as opposed to grouping them with temporary, part-
time or intermittent workers.
6. The Civil Service Commission should develop a brochure on employee regula-
tions and benefits for part-time workers. This brochure should :
Include definitions of temporary, probationary and carrer appointments.
Describe fringe benefits available to part-time workers in the above categories,
including annual and sick leave, health and life insurance, retirement benefits.
and eligibility for promotion.
Clarify current rules affecting personnel ceilings by indicating whether part-
time positions take up entire full-time slots or whether part-time positions take
up a fraction of the full-time slots.
The brochure might be reissued for full-time personnel covering similar defi-
nitions and rules for full-time workers.
7. The coordinator of the part-time program of the equal employment oppor-
tunity program for women should review appointments of part-time employees
after they have been on the job for three months in order to determine (a)
whether persons need to find probationary jobs if the present one is temporary
and (b) whether part-time employees are receiving appropriate fringe benefits,
correcting any inequities found.
8. Agency heads need to expand part-time job opportunities by identifying as-
signments and recruiting qualified personnel.
9. Agency heads should consider using the partnership sharing concept in open-
ing part-time employment opportunities in operations or direct service jobs such
as caseworker or employment interviewer jobs, whereby two half-time workers
would share one full-time job.
10. Supervisory training programs should include a section on employment op-
portunities for women (including the use of permanent, part-time workers). By
? Recommendations reflect the authors' opinions, not necessarily those of HEW.
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1'28
means of intra-agency and inter-departmental workshops, supervisors of part-
time and full-time employees should have the opportunity of exchanging infor-
mation regarding the employment of part-time workers as well as other matters
e lncerning women employees.
11. Efforts need to be made to stimulate and support personnel research on
part-time employees. Attention needs to be drawn to the study of the produc-
tivity of part- and full-time workers on the basis of per hour worked and the
need to assess the value of part-time workers under tight budgets.
12. Efforts need to be made to employ part-time workers in shortage fields,
especially during periods of high employment.
13. Permanent part-time job opportunities should be made available to men and
women, the young, and the semi-retired, as well as to handicapped persons, who
choose to work part-time and who have skills needed to achieve agency goals.
Furthermore, low-income working mothers need part-time employment in order
to pursue further education, participate at their children's day care centers, and
also to facilitate their triple roles as homemakers, parents and workers.
[Personnel News, International Personnel Management Association, vol. 39, No. 9,
September 1973]
(Submitted by Federally Employed Women, Inc. (FEW) )
No. CAROLINA STATE EMPLOYEES INTRODUCED To "FLEXITIME"
State employees in executive departments in Raleigh, NC., are being introduced
to the concept of "flexitime" during the summer months. Under this plan, em-
ployees observe varying flexible schedules within certain limits. They may come
to work between 7:30 a.m. to 9:00 a.m. and leave between 4:30 p.m. and 6:00 p.nn.
after working eight hours.
All employees will be at their jobs between the hours from 9:00 am. to
4:30 p.m. Services to the public will be provided during the regular 8:00 a.m. ro
5:00 p,m. period. A state department may elect to go on "flexitime" or retarn
the normal 8-5 working hours.
Much interest; is being generated by the concept of a flexible working schedule
as an alternative to the four-day week. It has similar advantages-the staggered
work schedule that alleviates heavy traffic congestion during rush hours, and per-
mitting employees time for personal errands or recreational activities.
The main difference is that in a staggered schedule, employees are assigned a
definite arrival and departure period, whereas under "flexitime" employees may
chose their arrival and departure times from day to day.
Studies conducted on the experience of European countries and organizations
in the United States on the use of "flexitime" are encouraging. Managements that
have converted to this schedule are pleased with the results, especially with the
improved employee morale.
After the summer, an evaluation of the North Carolina experiment will be
made. If the trial period is successful, "flexitime" may become a way of life
for employees of the state on a year-round basis.
[From the New York Times]
(Submitted by Federally Employed Women (FEW) )
PART-TIME WORKERS--MAKING INROADS INTO A FULI: TIME WORLD
(By Nadine Brozan)
The part-time job : Once it was the stepchild of industry, the housewife's
panacea for boredom, the breadwinner's source of supplemental income. Now
by the virtue of a slow but steady revolution, the permanent (but less than
35-hour-a-week) position is beginning to achieve the status of Career.
For mothers, it offers the means of keeping a hand in the professional pie
without sacrificing the family.
For recent college graduates, it is an escape hatch from the 9 to 5 trap.
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For corporations, under pressure to implement affirmative action programs, it
provides a magnet for talented females.
For some Government officials, it is a potent weapon against discrimination in
employment.
And for trend watchers, it signifies a change in society's values.
"The life patterns of men and women are converging," said Felice N. Schwartz,
president of Catalyst, a nonprofit, educational organization. "We're building
toward a different future, one of fuller lives for everybody, which, for women,
means less family and more work and for men, more family and less work."
SEES CONTINUED TREND
Mrs. Schwartz founded the organization 11 years ago to eradicate the either/
or choice educated women had to make between family and career. Although she
foresees a continuing stampede of women deserting kitchen for office, she doesn't
envision all of them relinquishing their maternal obligations. Rather, she pre-
dicted, they would be shared with husbands in greater "participatory child-
rearing."
While men have yet to curtail their work schedules to tend to their children
in more than token numbers, there is no question that more women are clamoring
for part-time opportunities.
"I must have 100 candidates for every opening. I interview 12 to 15 women a
day and have nowhere near that number of positions," said Ina Torton, who es-
tablished the Newtime Agency to foster the 25-hour week (motto: "If Madame
Curie were alive and only able to work from 9:30 to 3:15, would you hire her?").
In three and a half years, Newtime has placed 800 people (98 per cent of them
women) in 25-hour jobs.
In 1962, 5.1 million Americans worked at year-round, less than 35-hour-a-week
jobs. In 1972, the latest year for which the Bureau of Labor Statistics has com-
piled data, those ranks had burgeoned to 6.5 million. "And women accounted for
80 per cent of that increase," said Samuel Ehrenhalt, the Labor Department's
deputy assistant regional director for labor statistics.
NOT AN ENTRENCHED PRACTICE
Furthermore, Mr. Ehrenhalt pointed out, "The rise in women working part-time
year-round has been greater [37 per cent in 10 years] than the rise in total na-
tional employment [18 per cent.]
While the employment of part-time workers clearly is more than a noble ex-
periment, it is still far from being an entrenched practice.
Large segments of industry, including the top five companies in the Fortune 500
list, adamantly resist bending their policies. Along with countless other busi-
nesses, they maintain that the need for continuity and the pressure of production
deadlines mitigate against short shifts.
"There is an adequate supply of people in the labor market who want and who
need the opportunity to work fulltime," insisted Victor Pesqueira, corporate in-
formation officer for the International Business Machines Corporation, which
has a payroll of 146,000 workers. "As such, we have very few part-time employes,
no more than 300 or 400, and they are nurses, security guards and cafeteria
workers."
On the other hand, a growing number of companies are beginning to study
claims by advocates of the part-time schedule that it offers savings in salaries
and fringe benefits, fuller utilization of machinery and a larger pool of talent
from which to draw. An added lure is the contention that the part-time worker
provides greater production per hour than his full-time colleague.
J. Walter Thompson is one company willing to explore the advantages. "As an
organization, we are seriously thinking of two-for-one jobs and part-day jobs,"
said Matthew Park, a vice president and director of personnel for the giant ad-
vertising agency. "I hope that we will come out, at least philosophically, with this
kind of approach in the near future."
The Metropolitan Life Insurance Company Is one of the companies that has
already utilized such two-for-one and part-time patterns. It currently employs
150 women who share assignments on an alternating-week basis and another 850
permanent part-time workers. Willard W. Peck, a vice president, said such re-
structuring has "been good for us.
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"We get solid, capable people who stay with us on a career basis and whom we
would never have :found otherwise," he sflid.
On a smaller scale, several members of the staff of Bride's magazine, including
the art director and the articles editor, work three days a week. But secretaries
MAINLY IN LOW ECILELONs
"Creative people take their heads with them wherever they go, but someone
who answers the phones, has to be there all the time," explained Barbara Dono-
van Tober, the editor-in-chief.
The bimonthly publication is an exception. Experts agree that existing part-
time jobs tend to be concentrated at the lower levels of responsibility and re-
muneration.
The First National City Bank, for Instance, actively recruits part-time em-
ployes ; in fact, while its full-time force for its 220 branches shrank in the last
year, its part-time cadre grew. But such part-time workers are clerks, machine
operators, typists, secretaries, platform assistants, tellers, patrolemen and mess-
engers.
On the other hand, in the executive suite "we really don't have anyone who is
a part-timer," said Michael (repedino, the bank's manager of professional recruit-
ment. "The bank just isn't geared on a. managerial level for part-time jobs," he
said, echoing a sentiment common to many other businesses.
LEGISLATION PENDING
Senator John V. Tunney, (Democrat of California) had restrictions on part-
time work in mind, along with other factors, when he introduced his Flexible
Hours Bill in the Senate in June. Representative Bella Abzug (Democrat of New
York) proposed the identical bill in the House; both versions are now in com-
mittee.
The legislation would make 10 per cent of all Federal civil service posts part.-
time within five years and it would be applicable to everyone from messengers in
the lowest grade to department heads in the highest.
`The purpose," Senator Tunney said in a recent telephone interview, "is not
just to make sezretarial jobs available but ones In the supergrades, too." He
added that he hopes the bill has a substantial constituency, "especially among
the women who want to do more than change diapers."
Although the Government employs 193,000 part-time workers, the Nixon Admin-
istration has taken a dim view of mandating the practice into law.
Passage of the bill would accord to part-time labor a seal of approval that ad-
herents maintain is much needed.
"Part-time work still has the stigma of being somebody else's leftovers; it's
traditionally been considered demeaning," said Ina Torton, the Newtime Agency
founder. "I have met lots of women who are working part-time secretly because
they think their co-workers will protest or think they're doing something
CELEBRITY THROUGH SCHEDULE
Those women willing to talk about their successes often find themselves in the
spotlight.
"I'd be a lot less famous," said Carol Greenwald when asked about the effects
of her 9 A.M. to 1:30 P.M. five-day position as assistant vice president of the Fed-
eral Reserve Bank of Boston.
That part-time work can have ramifications beyond the office is exemplified by
the William D. 'Deans, who share a full-time teaching position at Gustavus Adol-
phus College in St. Peter, Minn.
Because their partnership splits the college's normal load of three courses (Mr.
Dean, associate professor of religion, teaches two, and his wife, an assistant pro-
fessor specializing in women's studies, one), they have no need for outside help to
care for their two children and also divide domestic chores equally. Mr. Deem
does the ironing "by default." Mrs. Dean said, adding : "I do the cooking."
"I value the daylight hours home with my children and the freedom to do inde-
pendent research." Mr. Dean said. "(The variation between professional and do-
mestic work leaves me fresher, so I find the time I am working I am more
productive."
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PART-TIME EMPLOYMENT, A MANAGER'S ALTERNATIVE IN STAFFING
Part-time workers are available.
Their use brings social and program gains.
Business and industry value part-time workers,
finding them an employment bargain.
The Government uses part-time workers,
and HEW's experience has been positive.
Although constraints are perceived,
there are ways to use more
both within the present system
and by changing the system.
HEW Federal Women's
Program, May 1973
Contributors: Carolyn Casper, NIH, Office of Management Policy;
Richard Gay, OS/C, Division of Operations Analysis; Elsa Porter,
SRS, Office of OrganiaationaZ Development; Jean Stern, SSA,
Division of Financial Management.
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Constraints on Inmployment ceilings in Federal service constitute
one of management's recurrent concerns. Seldom can a manager be
satisfied with his programmatic performance, faced as he is with
regular limitations on staff. By contrast, industry has been
capable of ingenious solutions to peak-load and skills requirements
by applying flexible working hours and, overwhelmingly, by the use
of part-time employees.
Reluctance on the part of the Government to model its staffing
after the industrial pattern may be costly in terms of both Federal
budget and program benefits.
Part-time workers - An Emerging Resource
Part-time workers comprise an increasingly important proportion
of the Nation's workforce, supplying trained manpower needs. In
1967, 6 million women worked part-time o'ut of choice. Three million
of them worked part-time year round. In a 16-year period (1950-66)
the full-time labor force increased by 20 percent, and the part-time
workforce by 69 percent. The proportion of women in the part-time
labor force increased by 79 percent.
In 1967, BLS estimated that by 1980 one worker out of every 7
would be part-time. But the rate of increase in part-time workers
has been so great that the ratio of 1.7 was reached by the end of
1972, eight years ahead of the estimate. More than 12.5 million
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American workers were part-timers at the end of last year, 5 million
more than BLS found in 1963 when it began keeping those statistics.
Skilled professional part-time workers are usually women. Those men
who have part-time jobs are generally students or older men. Many
more women want to work part-time but cannot find jobs. The unemploy-
ment rate in 1971 for women with young children was almost 12%, close
to three times the rate of other married women, a condition which is
costly to the women, their families, and the Nation.
Part-time Workers and the Econom
The President's Advisory Committee on the Economic Role of Women finds
that the addition of these millions of women to the labor market con-
tributes significantly to the national output.as measured by gross
national product. While most of the benefits of this additional
output accrue to the women who produce it and to their families, there
are direct benefits to society at large, including the taxes paid on women's
earnings.
Frustrated with the lack of part-time jobs, women who seek Federal ser-
vice are more and more demanding childcare centers. Yet, instttttional
childcare is not at all the preference of most women. A Government survey
in 1965 found 73% of the mothers preferring childcare in their own homes.
Most educated women in the child-rearing years opt to work part-time since
they highly value the personal attention they can give their children,
even at a sacrifice in earnings.
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Besides, while the 40-hour week has become a sacrosanct standard
in Federal government, some years ago 40 hours would have been only
part-time for civil servants. What is now part-time for the Govern-
ment (39 hours or less) is actually fulltime for an increasing num-
ber of industries. There is no management standard which deifies a
specific number of workhours, or which determines at what point
Parkinson's Law ("The amount of work expands to fit the available
time") begins to operate.
That part-time workers are "management bargains" has been the theme
of most evaluat::ons which the increase of part-time workers has gen-
erated. Some of the advantages found were: - -
greater selectivity possible by the employer
? low turnover rates
lower fringe benefit rates
? high productivity
? greater maturity - ability to organize, to make rela-
tionships, to synthesize work
? stronger motivation, growing out of appreciation for
maintaining skills
The American Society for Public Administration endorsed part-time
work in private business as a source of specialized, high calibre
professionals. The Wall Street Journal considered the advantages
of part-time workers as meriting a frontpage soory in March of this
year. The Russell Sage Foundation, the Radcliffe Institute, Harvard,
Stanford and Princeton are among institutions finding the use of
part-time women of value.
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A welfare department in Massachusetts found that half-time workers
carried a more-than-half caseload and completed a significantly
higher number of client contacts thanfulltime workers. Their
turnover rate was only about a third of that of fulltime workers.
School superintendents have been highly enthusiastic about the
professionalism of their part-time permanent teachers.
Within the Federal Government, experiments with part-time women
workers. have been tried in AEC, Department of Labor, HUD, Peace
Corps, National Science Foundation and the Veterans Administration,
which employs 5500 part-time women. Agriculture, Interior and
Justice have recently shown interest in attempting similar programs.
HEW, at the end of January this year, had 3303 part-time and inter-
mittent workers out of 117,425 employees. One position out of
every 36 was held by a part-time or intermittent worker - 2.8%
of all positions. Of these, 444 were permanent part-time workers -
one position out of every 264. Women, most of them in the child-
rearing years, comprised 79% of these permanent part-time workers.
They ranged from GS-1 to GS-15, with an average grade level of 5.64.
The largest numbers were employed by HSMHA. (See table on page 15)
In 1967, HEW actively sought accurate matches between part-time
jobs and young married women with children. Beginning with 22,
the so-named Professional and Executive Corps expanded to 40 within
17 months. The women were employed by OS, OE, HSMHA, SSA, SRS, and
FDA. In 1971, an evaluation of the Corps, made by OPT, was positive.
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Although the P&E Corps as an entity no longer receives official
HEW attention, some of its original members are still productively
employed in HEW.
SSA has 469 part-time workers, 78 of them permanent part-time
women, and finds them particularly useful in District Offices,
where they work from 10 AM until 3 PM during peak interview hours.
SSA calla this a profitable situation, resulting in high quality
employees who are very productive. Managers are felt to have more
leeway and more discretion.
HSMHA has 654 part-time workers, 251 of whom are part-time permanent.
Of these 189 are women. A Personnel Officer in HSMHA states that
these women usually produce more work in 6 or 7 hours than others
do in 8. In NIMH, part-time workers have been used for the past
fifteen years. In the Laboratory of Socio-Environmental Studies,
80 to 95% of the part-time work group are women, found to be highly
suitable to social. research.
NIH has 436 part-time workers, 11 of whom are permanent part-time
women. NIH has used part-time women since before 1960, largely in
technical and clerical positions. Many are nurses required in
the Clinical Center. Professional part-time women are also employed
by NIH. In NHLI, part-time women workers are said to accomplish as
much in 6 hours as other workers accomplish in 8, since there appears
to be a "certain lag time during each day which 8-hours workers put
in and 6-hour workers do not." A Health Manpower Education official
feels that general acceptance of permanent part-time work is desirable.
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Why not use more?
Since the supply of experienced, mature women who seek part-time
work is on the rise, and since business and the Federal Government
even HEW and its Agencies - have found their use valuable, and since
manageta generally suffer from staffing deficiencies ..... the obvious
question is: why have HEW managers not used more of them?
THe answer seems to lie in the budget process and employment ceiling
controls which have created an artificial dichotomy between full-time
and part-time employment - a dichotomy which need not persist if the
facts are understood.
These controls have emphasized full-time employment and given little
attention to part-time. The effect has been to focus management at-
tention on full-time with no incentive to establish and maintain an
optimum employment mix. Managers will find a distinct advantage in
understanding:
? how part-time employment is reflected in the budget
process
? how employment ceilings apply to part-time employment
? the weaknesses in both
? prevailing practices in circumventing ceiling restrictions
? and possible solutions for minimizing unnecessary dis-
tinctions between full-time and part-time employment.
In the budget process Congress provides for two categories of employ-
ment. For HEW appropriations containing funds for personnel compensa-
tion, one or both of these two categories will appears:
Total number of permanent positions
Fulltime equivalents of other positions.
A permanent position is one which has been, or is intended to be,
occupied by a fulltime employee for a year or more. When appropriated
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by the Congress, the total number of permanent positions authorized
is generally accepted as being the maximum number of permanent posi-
tions that may be occupied by fulltime employees at the end of the
fiscal year. As a practical matter, however, most organizations
treat the total number of permanent positions as an absolute limit
throughout the fiscal year as well.'
The budgeted figure for fulltime equivalents of other positions is
a manyear allowance. This allowance provides for the hiring of part-
time employees, intermittent employees, and those fulltime employees
occupying positions established to exist for less than one year.
Unlike the allowance for permanent positions, the allowance for full-
time equivalents carries with it no actual or implied limit on numbers
of people employed either at fiscal year-end or during the fiscal
year.
One could consider the authorized manyears as a limit on the amount
of manpower expended in other than permanent positions, but no such
control is currently being exercised within the Department.
While the Presic.ent's budget and the budget as submitted to the
HEW-Labor House Appropriations Sub-committee both carry several
summary tables displaying by agency, authorized permanent positions,
there is no similar presentation of "other employment."
Dollars are the primary concern of the HEW budget. Generally, employ-
ment decisions follow dollar decisions every step of the process from
the program to the Congress. With few exceptions (notably SSA) employ-
ment requests lack estimates of workload or other supporting data that
would permit a ;rational assessment of employment requests. But even
if programs provided such data, it is doubtful that employment allow-
ances by OMB, the Department, or the agencies, would change signifi-
cantly.
Employment allowances at every level tend to be rough approximations
of relative program merit made within overall 0MB position-dollars.
The foregoing process relates only to permanent positions. No sig-
nificant consideration is given to program requirements for other
than permanent employment by the Department, OMB, or in'subsequent
justification to Congress.
The indisputable fact seems to be that "other employment" has very
low priority in HEW's budget process.
1/ This would not be true for a program undergoing reduction. There,
the authorized permanent positions would represent only a fiscal
year-end limit on employment.
2/ The primary difference between part-time and intermittent em-
ployees is that the latter have no fixed work schedule.
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OMB Circular A-64 requires agencies "to ensure that... employment
is not permitted to reach a point at any time during the year which
would require reduction-in-force or any other disruptive or unecon-
omical actions to get within the approved ceiling by year-end."
1/ For repotting convenience, HEW reports for July through May
are as of the end of the last full pay period of the month.
Only in June does the Department follow the precise require-
ments.
0MB provides the Department with two employment ceilings. one is
for fulltime employment is permanent positions. The other ceiling
is on total employment and includes those fulltime employees just
mentioned, plus those fulltime employees serving in temporary posi-
tions, parttime employees and intermittent employees.
The difference between the ceiling for fulltime in permanent posi-
tions and total employment provides for "other employment:
This difference is not a ceiling, but rather a base allowance for
these types of employees. Unused ceiling for fulltime employment
in permanent positions may be used for "other employment" so long
as the total employment ceiling is not exceeded.
OMB's employment ceiling for permanent positions is on a one-to-one
basis. FOr example if a program's budget for 20 new positions is
appropriated as presented to Congress, that program's permanent
employment ceiling will be increased by 20. However, the ceiling
allowances for "other employment" do not follow the same pattern.
Budget increases for "other employment" are in terms of manyears
- fultime equivalents of other positions.
There is no direct way to relate the Department's total manyears
to employment. To do so would require an appropriation-by-
appropriation analysis to determine for each the appropriate
ratio of employment to manyears. These analyses are not made.
The budget justifications seldom, if ever, even mention "other
employment." The process leaves open to question the basis for
OMB's allowance, as well as the Department's request.
OMB's ceilings apply to one point in time - June 30, the fiscal
year-end. Compliance with ceilings is monitored through the
Government-wide Monthly Report of Federal Civilian Employment
it specifically counts "fulltime and regularly scheduled part-
time employees on the rolls in pay status on the last workday
of the calendar month and any interrmittent Qmployees who were
paid for work at any time during the month.''
There is no ceiling on employment during the fiscal year. True,
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While this would appear to be a fairly liberal policy, most program
managers hesitate to let their fullt:ime employment in permanent
positions exceed their authorized total number of permanent positions.
However, since t'nere is not the same constraint for "other employment",
A-64 does provide substantial hiring latitude.
There are weaknesses in "other employment" controls which cause
managers to have difficulty in administering them. For example:
? There is no convenient mechanism for relating
the manyears approved in the budget for "other
employment" to the "other employment" allowance
provided by 0MB and distributed by the Department.
In fact, there seems to he little relationship.
? Ceiling administration in some agencies tends to
be conservative. Allowances for "other employment"
become absolute ceilings throughout the year. This
practice unnecessarily restricts agency and program
flexibility.
? Managers can hire parttime or intermittent employees
against unused ceiling for fulltime employment in
permanent positions, but only on a one-for-one basis.
Thus, if a manager with an unfilled permanent position
wanted to hire two people half time, he might be pre-
vented as it would mean counting two people against
the organization's employment ceiling instead of one
were the position filled by a fulltime person.
The apparent inequity of the last example has been the subject of much
discussion. In November 1970, Senator Javits spoke to the Senate on
Part-time Jobs for Women in Federal Government. Senator Javits pointed
out the need for flexibility in employment ceilings in order to permit
the conversion of "one fulltime job into two halftime jobs without
paying any 'extra price' in terms of job ceiling." He introduced
into the Congressional Record correspondence on parttime employment
exchanged between his staff and OMB.
From the correspondence with OMB he concluded, "Thus it now appears
that applications for conversion of an employment ceiling to permit
the splitting otf; one fuiltime job into two half jobs would be most
routinely granted..."
The Javits/OMB exchange, subsequent news articles, and an issuance
on the same subject by CSC have served to keep alive misguided efforts
to promote job splitting for veterans and women. Many have felt that
managers could easily convert permanent positions on a 2-for-l basis;
that 0MB had now changed policy and was now willing to allow agencies
to count two part-time employees against one fulltime position.
Unfortunately, the assumptions are not accurate. OMB has said that
"if concrete plans are developed and as an agency can demonstrate
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the need, we will be glad to entertain specific proposals for
the reduction of fulltime permanent, and increase the parttime
positions in a ratio that seems reasonable under the circumstances."
Thus, the basic ground rules are still the same: you can give
up permanent positions (that is, eliminate them from your budget)
in exchange for "other employment", but you cannot count two
halftime employees against one fulltime position.
Even when a manager gives up permanent positions, the justifica-
tion requirement established by 0MB makes it unlikely that agencies
will seek approval for such a conversion. The CSC has also made
it clear that the conversion mechanism applies to "program-size
adjustments... and not simply to a small number of cases..."
Besides, neither OMB not CSC make any provisions for reversing
the process - giving back the permanent slots - should the situ-
ation which led to the conversion later change.
Clearly this is not the mechanism for the individual manager to
use to obtain an optimal staffing mix of fulltime and parttime
employees. Nor does the process live up to Senator Javits' hope
of a flexibility that will permit the executive to make the most
effective use of an important and effective segment of the em-
ployee population.
Existing Alternatives
riere ate a er solutions. The current system's distinction
lT
between two classes of employment and its emphasis on year-end
census invites certain circumventions. Enterprising managers
have solved two recurring staffing problems in these ways:
Problem 1. How to hire a fulltime employee when you
are already at your limit for fulltime
employment in permanent positions?
Solution: Hire a parttime employee for a 39-hour week.
Solution: Hire a consultant. A consultant is considered
as being on a intermittent duty schedule and is
not counted against permanent employment, even
if he works 40-hours a week.
Solution: Create a temporary position. It can be filled
for up to a year by a fuZZtime employee without
counting against the permanent employment ceil-
ing. (Even longer if the year-end constraint is
not enforced.)
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Problem 2. How to bring end-of-year employment within
the June 30 coiling with minimal program
disruption?
Solution: Defer until July the payment of those inter-
mittent employees (usually consultants) who
have worked only a few days in June and who
are not financially dependent upon their
Federal pay.
Solution: Separate employees with temporary appoint-
ments before the last workday in June, and
reappoint them on July Z. In fact, the
employee may be reappointed the following
day if the reappointment action is held
until after the deadline for submitting
data to the employment reporting system.
Then, there will. be no break in service.
There are at least two other, more basic, ways in which the full
advantage of the present system can be utilized.
(1) Simultaneous consideration of all manpower requirements
should help to eliminate the ad hoc approach to "other" employ-
ment ceiling allowances. Such art attempt was made this year.
For the 1974 budget submission from the agencies to the Depart-
ment, and from the Department to OMB, manpower justifications
were required. The format for these justifications called for
agencies to present their new staffing requirements in sufficient
detail for the merits of their proposed staffing to be assessed.
The results were poor. Except for a few activities, the justifi-
cations consisted of program description and how the new positions
would be used. Though specifically requested, little information
was forwarded on how the number of required positions was determined,
what workloads were involved, what alternatives might be tried.
There was little mention of "other" employment.
Despite the initial poor quality, the approach is sound and should
be continued. Thoughtful, factual and substantiated manpower
justifications: should result in better program decisions through-
out the budget process.
There is a definite need to insure that the Department considers
'other" employment requirements along with permanent positions at
each step in the budget process. The sequence of budget decisions
is dollars and then positions. This is an iterative process
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starting with a program's request to agency staff, then to the De-
partment and subsequently to OMB. The process (request, decision,
appeal, decision) goes on at each level - dollars first and then
positions.
But throughout the process, the primary focus is on dollars. In
the rapid cycling, position decisions are squeezed into very tight
time constraints. It is no wonder that "other" employment is
rarely if ever discussed. In fact, since employment for other than
permanent positions does not appears in the budget, allowances are
generally deferred'until after the President's budget is finalized.
(2) In another area, managers must be made aware of the hiring
flexibility they have within their allowances for "other" employ-
ment. Are fulltime 4mployees currently performing jobs which do not
actually require 40 hours of effort every week? Could some tasks be
performed on a parttime or intermittent basis, thereby freeing up a
permanent position for work of a higher priority? Do some tasks
lend themselves to being performed as short-term projects where a
temporary position could be established for just that purpose, and
then abolished?
Managers should be encouraged to explore more imaginative solutions
to their staffing problems.
Perhaps, though, the most productive change in staffing could
result from persuading 0MB and CSC to modify the present system
for counting "other" employment. The current system of reporting
requires a monthly count of all temporary, parttime and intermittent
employment. This report treats all "other" employment as a total,
regardless of the number of hours or days worked by each person.
The proposed modification would permit counting "other" employment
on an equivalency basis. Two halftime employees would then count
as one in the monthly employment report. Consultant hours would
be accumulated and reported on an equivalency basis.
On balance, the total manyears appropriated to an account seems to
offer a more rational employment control than the present total em-
ployment ceiling. This substitution would require no significant
change in budget formulation, nor in the format for reporting Federal
employment. It would provide a direct relationship between employment
controls and the manpower appropriated by Congress. Further, a control
on total manyears would substantially reduce the agencies' need for
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year-end employment machinations tosachieve ceilings. Employment
accounting for permanent positions would remain unchanged.
To substantiate this proposal with OMB, HEW might apply such a
system to one or more of its agencies and then use that experience
as a basis for a request to change the system. SRS, OE, or FDA
would be good candidates for the experiment since almost all of
their employment is in a single account. Their "other" employ-
ment isrrelnitively small. The risk of year-end employment signif-
icantly above ceilings assigned under the current system would be
minimal, and. could easily be absorbed within the overall Depart-
ment ceiling..
There are undoubtedly other reasons for opening employment doors
to part-time workers in HEW. There are undoubtedly other means
of doing so. The startling fact, though, which emerges from
the-eonsiderations made in this examination of the situation
is that managers have many options in their staffing which they
do not currently use.
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Distribution of HEW Employees by
Agency and Duty Status
January 30, 1973
FulltTme
Parttime
Intermittent
Total
Ratio
OS
5263
90
108
5461
1:26
OE
2861
21
24
2906
1:65
HSMHA
28411
654
882
29947
1:19
SSA
56604
469
15
57088
1:118
SRS
2548
27
32
2607
1:44
FDA
6584
77
77
5738
1:37
NIE 155 2 5 162 1:23
NIH. 11696 436 384 12516 1:15
DREW 114122 1776 1527 117425 1:36
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Part-tiffe went Ehplo
Mee in BEw
by Agency, Sex and GS level, 2/73
w to
m w
lL
m w
HS
m w
SSA,
in w
SRS
m w
Ffl
III w
NIE
m w
NIH
m w
Total
1
2 1
1 6
:L
11
.2
10 5
1
1
1
18
3 1
6 17
5 20
:L 1
51
4 1
4 37
1 12
2
7
3
67
5 1
2
8 40
1 8
2 24
2 3
91
6 4
1
2 15
1 10
1
]L 4
1
40
7 1
1
4 31
1 2
1 2
1
44
8 1
13
2
16
9
1
1 11
1 7
1
2
24
10
11 1
2
5 6
5
2
2
23
12 2
2
6 7
1 2
1
1
22
13 1
4
3 2
1
2
13
14
1
6 1
1 1
1
11
15 1
8 1
1
2
13
Total 3 11
1 9
62 189
7 78
6
9 45
1
2 11
444
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J. STANLY LEWIS
EXECUTIVE VICE-PRESIDENT
J. JOSEPH VACCA
VICE-PRESIDENT
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100 INDIANA AVENUE NM . ? WASHINGTON D C. 20001 ? PHONE. EXECUTIVE 3.4695
Hon. Gale W. McGee, Chairman
O nnittee on Post Office and Civil Service
United States Senate
Washington, D. C. 20510
Dear Mr. Chairman;
The National Association of Letter Carriers desires to take this
opportunity to respond to your invitation to express our views on S. 2022,
"Flexible Hours Employment Act," introduced by Senator John B. Tunney on
June 19, 1973.
After reviewing the provisions of this bill, we find ourselves to
be sympathetic to the broad overall purposes delineated, as well as being
most concerned with several of the aspects of the proposal.
Our first concern appears in Section 1 (1) of the bill, which
includes the United States Postal Service in the definition of an "executive
agency.
With the enactment of the Postal Reorganization Act (Public Law 91-375)
which created the United States Postal Service as an independent establish-
ment of the executive branch of the Government of the United States, the
Act also included provision for the establishment of bargaining units
among the postal employees and afforded to labor organization(s) selected
through appropriate procedures the right to bargain with the U. S. Postal
Service in the area of salaries, hours of employment and working conditions.
The National Association of Letter Carriers has been designated as
the labor union representative for all those employed in the city letter
carrier craft within the Postal Service and, as such, has negotiated an
agreement which is currently in effect which carries, among other issues,
provisions for hours of work, employee classification and assignment of
employees.
It is our belief that, if S. 2022 would become law, to require the
U. S. Postal Service to adhere to its provisions would not only negate the
current contract, but would also seriously limit the right of the U. S.
Postal Service to enter into meaningful collective bargaining on these
issues in the future.
JAMES H. RADEMACHER
PRESIDENT
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Under the terms of the current agreement, there is allowance for
both "casual" employees and "part-time" employees. The "casual"
anployees my be utilized only for limited periods as a supplemental
work force and cajunct exceed 7 percent of the total number of employees
covered by our agreement. The "part-time" employees can be assigned to
less than 40 hours of work per week for an unlimited period but are to
be available for such flexible work schedules as is required by the
Postal Service. 'hese employees cannot exceed 10 percent of the total
number of employees.
While you m?ght find that the provision mentioned above is not
in conflict with the provisions of Section 2 of S. 2022, it must be
recognized that these categories and n:nnbers of employees who are
enT toyed less than a full 8-hour day or 40-hour week were the results of
labor-management negotiations. It is our strong feeling that this
matter should be left at the collective bargaining table rather than
to have limitations imposed as a matter of law.
You will recall, Mr. Chairman, that when the Postal Reorganization
Act was being considered, great stress was placed upon the collective
bargaining aspects of the legislation. To maintain the principles set
dam in the law, we feel that provisions such as those contained in
S. 2022 would prove detrimental to the free a>llective bargaining processes.
We appreciate this opportunity to detail. sane of our views on this
subject to you for your information, as well as that of the other
members of your Co rni.ttee.
c u t i v e VZE~Aesiden
JSL:L
opeiu #2
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W. VWnie Reed, fit Vice-President
Herbert W. Flasher, 2nd V1ce-Pfosldent
Tom' 1A'~ /~ ~7 ~T ?.'~~.,.~ WMUr........ .. ..............
161.11 _ ' ij. .{. 8..,136{ N $ IO 'Lwm nm? Mlcheel Lorello, 6th Vice-P-11c [
itG,t. 17 .
,0.n?elo Pasco, 7th VICe-Presldent
s+~.,I {{ tt p'n O 1 UNION of North America 0.fthur . Caly 01h Vice-President
.,..m"`~-.em w$y,,,.,.??..-.. AFFILIATED WITH AFL.CIC AHC CLC
MOx.ECHI EYILDIND
905 16th STREET, N.W. ? WASHINGTON, D.C. 20000 ? TEL A/C 202.737.0320
CaL1ef 7 Cof~y
Senator Gale McGee, Chairman
Committee on Post Office and Civil Service
United States Senate
6206 DSOB
Washington, D.C. 20510
We would like to take this opportunity to set forth our Union's
position relative to Senate Bill 2022, introduced June 19, 1973.
The Mail Handlers Division of the Laborers' International Union
of North America, AFL-CIO, has national exclusive bargaining
rights for approximately 48,000 mail handlers throughout the
United States.
Our Union's primary objection to the bill is found in Section
1, (1) which includes the United States Postal Service's- coverage
under the "Flexible Hours Employment Act."
Our Union is in strong opposition to the proposed legislation
because if adopted, it would contravene the collective bargaining
agreement negotiated between the United States Postal Service and
the postal unions that went into force and effect on July 21, 1973,
and which is effective until July 21, 1975. The agreement provides
that during the above period of time there will be a reduction in
casual and/or part-time employment in the Postal Service from
eight percent of the work force covered to seven percent.
Going beyond the language contained in the legislation, I
would like to present the following additional information for
your perusal. As you know, the Postal Service, under the provisions
of the Postal Reorganization Act, is in a transition from a labor
intensive industry to a capital intensive industry. This means
a decrease in the number of employees in the work force. It must
follow that in order to provide employment for the remaining full-
time employees, that casual employees and part-time employees will
have to be phased out. So, even if the legislature passed, it
is unlikely it could be applicable, from a practical standpoint,
to the Postal Service.
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Also, historically the Postal Service has maintained a
substitute work force of 20 percent, and a casual work force
of eight percent, and in my opinion, because of this short
term employment, the turnover rate has, at times, been as
high as 60 percent. This has been a major factor in the low
productivity and inefficiency of postal operations.
We appreciate very much your consideration of this matter
and hope that you will support our position to eliminate the
United States Postal Service from coverage under this proposed
legislation, in order to protect the legality and sanctity of
the collective bargaining agreement.
DIRECTOR, FEDERAL-PUBLIC
SERVICE DIVISION
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U. S. DEPARTMENT OF LABOR
OFFICE OF THE SECRETARY
WASHINGTON
NOV 161973
Honorable Gale McGee
Chairman, Committee on Post Office
and Civil Service
United States Senate
Washington, D.C. 20510
Dear Mr. Chairman:
This is in response to your request for the Department of
Labor's views on S. 2022, the Flexible Hours Employment
Act, a bill "To provide increased employment opportunity
by executive agencies of the United States Government
for persons unable to work standard working hours, and
for other purposes."
S. 2022 would provide that a fixed quota of part-time
positions be set aside in an "executive agency" and would
provide that part-time employees, on a pro rata basis,
receive all benefits normally available to full-time
employees in a similar position or grade. Such employment
would riot be counted towards determining an executive
agency's personnel ceiling requirements, other than on a
pro rata basis. Section 3 of the bill would authorize the
Secretary of Labor to conduct research and experimentation
projects to promote part-time employment in the public and
private sector. The bill would impose fixed percentages,
starting at 2% and rising to 10% after five years, of
positions to be filled on a part-time basis at each and
all levels in the Departments and Agencies. The bill is
designed to increase employment opportunities for working
mothers, students, older persons, and the handica,ped.
Although we support these objectives, we do not believe
that legislation is necessary to accomplish them,\and
accordingly, we cannot support S. 2022.
With respect to administration of the Act, we question
first the requirement that the Department of Labor be
responsible for administering the program. The matter
of hours of work in the Federal Service is clearly with-
in the sphere of responsibility of the Civil Service
Commission.
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We believe it is unrealistic and unwise to require that
a fixed minimum number or percentage of positions be
reserved for employment on a flexible hours of employment
basis. Such a requirement impinges upon the Agency Head's
responsibil'.ty for management and fails to reflect the
fact that the proportion of jobs amenable to part-time
performance will vary among agencies.
The Department does not believe that new legislation is
needed for research projects contemplated by section 3.
There is adequate authority and flexibility under present
law for suct. projects, and it is already the official policy
of the Executive Branch to promote increased use of part-
time employment where appropriate.
Indeed, the Department of Labor plans to undertake a
study of jobs and functions within our agency such as
that envisioned by section 3 of the bill. Some part-
time work at both clerical and professional levels is
available under current law, and we expect that further
?nvestigation will show that it is possible to draw more
effectively on highly qualified personnel available, on
a part-time basis. Moreover, the Department will explore
;rays of increasing part-time job opportunities in the
private sector under the various programs we administer.
The office or Management and Budget advises that there
is no objection to submission of this report from the
standpoint of the Administration's program.
:"incerely,
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