Eleventh Annual University of Southern California Institute of Government
Special Edition For U.S.C. Institute Of Government
SOUTHERN
DAIL
CALIFORNIA
ROJAN
Editorial Offices RI-4111 Sta. 227 Night-PR-4776
VOLUME VI
LOS ANGELAS, CALIFORNIA, FRIDAY, JUNE 16, 1939
NUMBER I.G. 3
Speakers Advised By Henley
Gestures, Attitudes, Parliamentary Rule Are Discussed
In the Wednesday afternoon session of the Public Speaking section, r. W. Ballentine Henley offered uggestions as to platform deport” lent and gestures.
When sitting on the platform, aiting for his turn t*> talk, a peaker should be careful to avoid iddling with any object, as that rill only make him nervous. If he nervous, taking deep breath will elp 6) eliminate that condition.
SE OF GESTURES Gestures serve as punctuation arks for an address. There are ire? general types, called the de-riptive, locative, and emphatic T>es. It is well to avoid such ges-res as the first, the pointed fing-and spread fingers, as well as 1st and straight-arm movements, omen are advised to be more servative than men in making
tures. but it is fitting for them become emotional and dramatic.
AIRMEN ADVISED
Sieving that many of the peo-present would be interested in
subject, Dr. Henley then set
h some fundamentals of parlia-ntary procedure. He declared it a sucessful meeting Is no ac-ent and that there is no sub-ution for careful planning. A irman of a group should go •ough the minutes of the previ-meeting and prepare an agen-It is wise for him to contact e members ahead of time and uest them to be ready to com :nt on the matters to be brought
Henley pointed out the de-ability of making efforts to save e at meetings and recommended ,t the presiding officer be “hard-'ed,” at the same time demotic.
reference, he recommended books. Robert's Rules of Order d Parliamentary Practice at a nee.
OUP DISCUSSIONS e matter of group discussions taken up at the Thursday aft-oon session of the Public Speak-class, under Dr. Henley's direc-He listed three steps that a irman of a group discussion uld see carried out. (1) The lem should be raised by dising facts. <2) Some idea is Continued on Page Three
Leade
School of Government Offers Training In In-Service Work V
Under the auspices of the University of Southern California, the School of Government, directed by Dean Emery Olson, is conducting one of the most significant in-service training programs in the United States. Conceived 13 years ago, the school has grown from an original enrollment of 160 to 650 in the current fiscal
year.
It is the purpose of the school to make available to public employees academic courses, generally of university grade, in their particular professional fields. For those students who have the courage and i ambition it is possible to complete either the bachelor’s degree or the master of science in public administration as the case may be.
For others interested primarily in improving their specific skills certificates are granted in various fields
after the completion of prescribed courses.
EVENING COURSES
Courses are offered generally in the late afternoon and early evening immediately after the completion of the employees regular work. Cooperative arrangements have been made with the city and county of Los Angeles whereby classrooms are furnished for the classes.
Whenever possible the university makes a practice of drawing instructors for the courses from the ranks of the regular employees of the various governmental unite in southern California. This instruc-j tional staff is supplemented from social and economic problem,” de- ■ j^e regular faculty of the univer-
Howard B. Meyers, director of research, works progress administration, who leads the statistical research section.
Employment Importance Is Stressed
Still Know Lillie Of Problem, Meyers Tells Research Section
“Unemployment is our greatest
Objectivity Called Goal Of Rating
Hislory of Systems Traced by Ordway In Personnel Section
clared Howard Meyers in discussing sity.
the subject of unemployment sur- Under the able direction of Ed-veys in the section devoted to the ward Olstyn, assistant in charge of research. Elaborating upon the i the civic center division, the school point, Mr. Meyers stated that un- | offers courses in a great variety of employment might well be the rock ; fields, germaine to the public serv-upon which capitalism and demo- i ice. The curriculum includes courses
in sanitation, statistics, accounting, public health, power transmission, mathematics, social welfare, planning public administartion. the various fields of public law, and general academic courses necessary for the completion of certificate and degree requirements. Certificates are granted in 13 fields. Some of the more important categories are: TWELVE-WEEK QUARTERS
public administration, public finance, right of way and land, probation and electrical, general or highway engineering.
The school year is divided into Continued on Page Four
aluation f Discussion Planned
embling for the final session temoon, housing enthusiasts an opportunity to partici-a discussion based on per-roblems which have come fore during the week's ses-a question box forum is lead Iter W. Alley, technical di-of the housing authority, f Los Angeles. Dr. Wendy t, member of the California d program chairman of the will evaluate some of the hts of the previous programs, romises to be a session of eximportance.
ing the section on “Housing lation to Planning,” Chair-»rt Wayne Burns, chair-f the housing authority, Los county, introduced Carlos ras at the Wednesday morn-oint meeting of the housing lining sections. A novel so-to the problem of managers seen in a Mexican ex-t in housing as Senor Con-related how the finished were raffled off to the pub-an Woodbury, the follower, clearly outlined the r a closer and more inti-lationship between the two emphasizing that planning roceed housing.
iay afternoon in his clos-ress for the Institute, Mr. ry, the section leader, dis-e relation of housing to emmental agencies, stating housing authority, though te entity, needs the coop-aU branches of govem-order to complete, success-job.
itire lecture on the Cwslimied on Fare Four
cracy might flounder.
“Despite its importance we still know very little about unemployment,” he said. Dr. Meyers, in his presentation, gave many reasons why this is so. The difficulty, is in the main, one of obtaining reliable factual information on unemployment. The problem of unemployment is in reality a series of problems which, for proper understanding, involves the gathering of a great deal more information than is commonly supposed.
However, in collecting information leading to the proper understanding of the problem of administration, basic factors concerned with collecting the data must be faced. Moreover, basic definitions and concepts must be clearly defined.
Mr. L. D. Gifford, director of research of the California Taxpayers’ association, spoke on the subject of pied the attention of the in-service “The Function of Research Surveys” training section Thursday afternoon at the Wednesday afternoon ses- j to give practical suggestions to sion of the research division. The members of the group on techniques three phases of a complete re- of this type of presentation, search survey were outlined as the Mr. Robert P. Farrington, of the collection of data, analysis and in- California state department of edu-terpretation of the data collected, cation, and Mr. R. F. Stannard, of and the application of the findings the Southern California telephone and conclusions.	! company, led their respective con-
Followlng Mr. Gifford's presenta-	ferences on topics unannounced un-
tion, the chairman, G. Lyle Cun-	the time of discussion,
ningham. introduced panel mem-	Mr. Farrington’s group consider-
bers to lead the discussion. Included	ed the problem of handling employee
were Harry F. Scoville. director of	grievances. This was preceded by
the Los Angeles county bureau of	an address by Mr. Farrington con-
administrative research: O. W.	ceming principles to be observed
Campbell, western regional repre-	in presenting a conference program
Continued on rage Four	Continued on Page Three
Training Method In-Service Topic
Two demonstrations of the conference method of training occu-
Members of the public personnel section were again fortunate in having Mr. Ordway address Wednesday morning on the subject “Objectivity in Service Ratings.” '
Starting his speech by stating
that objectivity is the goal or essential of any good rating system, Mr. Ordway then went on to define objectivity as an absence of personal interpretation, bias, or judgment on the part of the rater. He then traced the development of rating systems from those that were subjective to these that are today relatively objective.
FACTS TO DETERMINE
Mr. Ordway considered what facts a rating system should attempt to determine. He stated that the rating should selecte characteristics that are relevant to the particular job which one is attempting to rate.
It is interesting to note that New York and California are the two states in which outstanding steps are being taken to develop a new
and more objective rating of employees. according to Mr. Ordway. ELEMENTS OUTLINED
The important elements of a service rating systems as outlined by Mr. Ordway are as follows: the system must have simplicity; it must be evidence of proof on the job rather than subjective judgment; there must be a central rating agency; the factors in a rating scale should be weighted according
to the importance of such factors on the particular job; there must be some method of appeal; there must be some provision in the law that compels compliance with the rating system as set up by the personnel agency; and each department should have a personnel or liaison officer to evaluate the work of the service rater.
As has been the case in the past the section room was filled by those persons who have been greatly impressed by Mr. Ordway’s extensive knowledge and pleasing presentation of personnel subjects.
SYSTEM DESCRIBED Due to the absence of William W. Shaw, in the afternoon session, Kenneth Byers described in detail the new rating systems developed by himself as a member of the California state personnel board. The new system as described by Byers has 25 special forms, a different one for each general class of work.
Each form has approximately 80 rating items. Supervisors who do the rating are now called reporting officers, because under the new sys-Continued on Page Three
Survey
Methods
Described
Cross-Seclion Gives Piclure of Group, Psychologist Asserts
Dr. Floyd L. Ruch of the psychology department of the University of Southern California stated at the Wednesday morning session of the public relations devision of the institute that it would be possible to determine the attitude of the electorate by considering the votes of only a small number of people, who formed' a true cross-section of the population.
In a true cross-section, each group is represented according to its total numbers; about half of the persons in the “sample” are men and about half are women; about half are between the ages of 20 and 40 and about half are over 40.
SURVEY TECHNIQUES Continuing his discussion of survey techniques that may be employed in public relations work, Dr. Ruch compared the relative costs of the mail questionnaire and personal interview methods. He pointed out that because of the usual low percentage of returns on the former, the latter may be less expensive in the long run.
A system was described by which it is possible to tell when a “fair sample” of the population has been reached. The present tendency is for smaller samples to be used than formerly, as the size of the sample is not as important as its representativeness, according to Dr. Ruch. FORM USED Suggestions were given as to the
form of questionnaires. Short questions, stated in simple language, are desirable. Care should be taken to avoid questions that are emotionally toned, or that call for the free type of answer.
The speaker recommended writing down in advance what the survey is intended to find out. He also indicated the advisability of planning beforehand the method that will be used in tabulating the results. If machine tabulation is to be employed. it is well to pre-code the answers to the questions.
PRACTICE GIVEN In response to an inquiry, Dr. Ruch stated that interviewers receive their training by practicing on each other, on their relatives, and on other individuals who are not included in the sample group.
During the second hour of the Continued on Page Three
Closing Assemblies Scheduled for Today
Graves Tells Government Obstacles
Speaker Indicates Democracy's Need For Politicians
"Obstacles to Effective Municipal Government and Administration,” was the subject discussed by Richard Graves, executive secretary, league of California municipalities, before the morning session of yesterday’s general assembly.
Introduced as being a typical example of a true career service man by Dr. Pfiffner, Graves began by justifying the politicians’ place in our government. He explained that the politician is a much-maligned individual in the American governmental scene of today and stressed the need for them if democracy as
it is known to the American public is to continue.
POLITICIANS DETERMINE
“I would hate to live under a government of administrators and bureaucracy,” he emphasized, and expressed the opinion that the ideal situation in government administration is to let the politicians determine policies, leaving it up to competent administrators as the one’s responsible for the carrying
out of these policies.
According to Mr. Graves, the function of the politicians is not that
of administration, but of mediating the great number of public de-
E. L. Kohler
State Faces Huge Deficit
Rejection of New Revenue Sources Blamed for Condition
Treatment of 1939 Reorganization Act Considered by Adminstrative Section
With a discussion of congressioal action on the reorganization act of 1939, Lyman Cozad. personnel technician, civil service commission, Los Angeles county, concluded the second session of the administrative reorganization of the federal government section.
He spoke at the Thursday morning session on the subject, “The Federal Reorganization Act of 1939.” Dr. Carlton C. Rodee, associate professor of political science and public administration, University of Southern California, will present the concluding lecture this morning in room 6. Mudd Memorial building at 9 o'clock on the subject, “Accomplishment; to Date Under the Federal Reorganization Act of 1939.”
La* Thursday, Dr. Rodee commented, “This concludes an experiment of the Institute in offering courses of an administrative nature. We have discussed administration in foreign countries ana in the United States, during the five sessions of our section, and feel that the ground work has been laid for
further development next year.”
Dr. Rodee has also been chairman of the section on administra-
Dr. Carlton C. Rod*«
tive cooperation between federal, state, and local governments. This section devoted Thursday, to the general subject, “Federal, State, and Loo»l Participation in Unemployment Relief.”
Speaking Thursday afternoon, Thomas H. Holmes, acting director, division of employment, southern division, works progress administration. addresses the section on the subject “Relief Aspects of the Works Progress Administration.” He was followed by Julia Piokett, training unit, department of employment, California, who discussed the subject “The Work of the State Employment Service.”
“Federal, State, and Local Cooperation in Law Enforcement" will be the general subject unrier discussion today. At the 10 o'clock meeting, R. B. Hood, ip charge of the federal bureau of investigation, Los Angeles office, will speak on the s== | subject ‘How the Federal Bureau of Continued on Page Four
Psychology's Use Is Topic Of Lecture
As a climax to section meetings in supervision, methods and techniques, the section today will hear H. E. Chamberlain speak on the subject, “Psychiatric Aspects of Supervision.” W. S. Smith, district supervisor, bureau of vocational rehabilitation, department of education, of California, will preside.
Dr. Chamberlain will continue consideration of psychological techniques and approaches to the problem of employee relations, which he developed in the section meeting on Wednesday.
Speaking to an audience which crowded Bowne hall, Morris S. Vitales addressed the section meeting at1 10 ajn. yesterday on “Successful Supervision Techniques." Dr. Vitales stated the supervisor has a dual responsibility in maintaining high efficiency and in safeguarding the personnel and professional interests of employees working under his supervision.
Quality of supervision, stated Dr. Vitales, largely determines the quality and quantity of employees’ production, adding that the attitude of the supervisor controls to a large extent the employees’ social life. Continuing, Dr. Viteles emphasized the importance of recognizing the peculiarities of various employees,
| which requires that supervision be applied in the light of employee differences, as employees require individual consideration and cannot be treated as a mass.
Dr. Vitales cited five rules which should be applied in determining a course of action to affect an employee. The nature of the problem and objectives to be accomplished must be specified. All factors in-Continued on Page Three
BULLETIN
Because of illness, Edward Warner, member of the civil aeronautics authority, Washington, D.C., will not be able to appear before this morning’s session of the general assembly. He was to speak on “National Aviation Policies.”
Either Milton Chemin or H. Dewey Anderson, both of the state relief administration, will appear as speaker in his place.
mands. If the politician goes beyond the bounds of this field, the effect is to tie the hands of the administration and the manner of carrying out policies is soon dictated. SYSTEM ATTACKED Believing the merit system is under atack in the state level. Graves told of seeing members of the state legislature who had at ane time advocated the value of a merit system now openly assail its use. This he surmised would seem to indicate that there is a question as to the public support of such system.
Admitting hat the civil service merit system has flaws, he said, “The state merit system appears to be too much concerned with tenure rather than efficiency, and this attitude is supported by organized groups of employees.”
NO LIFE TENURE He assailed the theory that a public job carries with it a life tenure which can be shaken only by murder or arson, and compared it to patronage as an evil.
“We have yet to learn whether a national political party can exist without patronage, and there is a Continued on Page Four
A possible deficit of $65,000,000 faces the state of California if the legislature continues its rejection of new sources of revenue, and at the
same time refuses to make the necessary slashes in expenditures, according to Arthur Kent, tax consultant of the department of finance, in an address before the Institute of Government on Wednesday afternoon. Measures to raise $64,000,000 additional revenue have been rejected almost in total, but only nominal slashes of less than four per cent have been made in expenditures.
The revenue proposals would have financed the administration’s expenditure budget with 32 millions over to apply on the $48,000,000 inherited deficit, according to Mr. Kent. Rejection of these revenues may bring the state to a $65,000,000 deficit at June 30. 1941, and seriously endanger its credit. The only alternative is to scale down expenditures at an unprecedented rate, but no disposition to accept this solution is noted. In fact, measures introduced by the present legislature. if adopted, would increase state expenditures by SPOO.OOO.OOO in the biennium.
Three-fourths of state revenues are passed on to local governments and consequently are not subject to economy slashes without over- ! coming heavy local opposition. The field of state economy is thus restricted primarily to only one-quarter of its expenditures. The small budget slashes effected to date by the economy bloc, according to Kent, have fallen most heavily upon the regular state departments and functions, starving legitimate government activities. Increased revenue anticipated by increasing the tax audit coverage will not be realized Continued on Page Four
Civil Service, Management Edy s Topics
Evils, Needed Reforms Are Brought Out In Tuesday Assembly
“It is management’s duty to make civil service work" was the opinion of Mr. John Edy, city manager of Toledo, Ohio, prominent leader in municipal management, and pioneer in establishing the Institute of Government. Mr. Edy was introduced by Mr. Clyde Errett, comptroller of the Los Angeles department of water and power.
Mr. Edy delivered an address upon the subject of “Management Looks at Civil Service.*’ pointing out existing evils and needed reforms in the conduct of municipal personnel administration.
MANAGEMENT DEFINED
Mr. Edy defined public management as “the integration of the tools of administration and their
effective use.”
It is the opinion of Mr. Edy that in municipal administration the executive should have control of the
reins of civil service in order to make effective executive policy and responsibility.
POSITIVE ASPECTS One of the positive aspects of effective management is to maintain an excellent morale and cooperation of employees. A successful city manager must not lose sight of the opportunity to practice the “philosophy” and “ideals” of good government. In pointing out the necessity of employee morale, Mr. Edy maintained that “the public servant renders the highest form of service, and that is service to his fellow men.”
On the operating side of civil service. Mr. Edy pointed to the dangers of over-classification, which brings about the handling of too many examinations. The consolidation of classifications in examining has resulted in large savings by the civil service staff, and has increased the efficiency and expediency of conducting examinations.
HOYE INTRODUCES The speaker for the Wednesday afternoon session of the general assembly was introduced by Mr. Dan O Hoye, controller for the city of Los Angeles. Auditor Joseph M. Lowrey, of I os Angeles county gave a very concise and systematic presentation of the subject of ‘Public Budgeting.” “In public enterprise, the budget is the most important of all items,” he said.
Mr. Lowery defined a budget as a financial program prepared in advance upon careful investigation, and preparation, for a definite period in the future.” Budgeting involves intelligent planning and accurate control.
Mr. Lowery pointed out that public budgeting is relatively new in the United States. The state of California is one of the leading pioneers in establishing the budget Continued on Page TTire*
Land Description Is Right of Way Discussion Topic
“Legal Descriptions,” which are the pride of the engineer, but which are often misunderstood by the property owner, and thus serve as a basis for litigation by attorneys, was the general topic under consideration by the right of way and land administration section on Wednesday. Under the able leadership of William C. Wattles, field and title engineer, title insurance and trust company, the question of what constitutes a good real property description in a deed was thoroughly discussed.
“Southern California to a greater extent than any other part of the United States.” said Mr. Wattles, “has developed the survey and map system, or tract subdivision record, as a basis for describing parcels of land. Its advantages are obvious if it be remembered that any proper Continued on Page Three
Value of Government Reports, Letters Told To Management Group
‘ Government reports are indispensable for sound manage ment, since they keep officials informed of progress,” maintained James F. Grady, noted authority on office procedure and composition of government letters and reports, yesterday, in the office management division, meeting in room 206, Administration building. He illus- i---
trated the difference between the two forms of writing by stating that terse style in a letter may seem abrupt, but is frequently appropriate in a report.
Under the able chairmanship of E. G. Dauphine, office manager of the department of forester and fire warden, Los Angeles county, quali-
ings. Men present were equally impressed when he discussed the manners of the executive when callers visit his office. The response from those present demonstrated that Professor Blackstone is always s welcome speaker before this group He pointed out the need for cour-
fied persons have spoken to large tesy and an impersonal attitude ir
groups in this division, including E. G. Blackstone, associate professor of commerce and education here, who supplied merriment to the topic “Office Etiquette" Wednesday afternoon, by pointing out ways that secretaries and stenographers should not behave in the presence of their employers, to avoid misunderstand-
business, and that the lack of emotional likes and dislikes toward fellow workers should be urged.
H. D. Osborne of the Genera Petroleum corporation preceded th*: professor, and effectively lectured on “How to Study Office Function, and Determine Costs.” He showed Continued on Page Thre»