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The Growth, Development, And Emerging Problems Of The California School Employees Association

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The Growth, Development, And Emerging Problems Of The California School Employees Association

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Content This dissertation has been 65— 1279 m icrofilm ed exactly as received CARMICHAEL, Howard A llen, 1917- THE GROWTH, DEVELOPMENT, AND EMERGING PROBLEMS OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION. U niversity of Southern California, Ed.D„ 1964 Education, administration University Microfilms, Inc., Ann Arbor, Michigan THE GROWTH, DEVELOPMENT, AND EMERGING PROBLEMS OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION A Dissertation Presented to the Faculty of the School of Education The University of Southern California In Partial Fulfillment of the Requirements for the Degree Doctor of Education by Howard Allen Carmichael August 1964 This dissertation, written under the direction of the Chairman of the candidate’s Guidance Committee and approved by alt members of the Committee, has been presented to and accepted by the Faculty of the School of Education in partial fulfillment of the requirements for the degree of D octor of Education. Date msbjml Dean Guidance Committee ACKNOWLEDGMENTS The writer wishes to extend his sincere apprecia tion to the many persons who have given their time in order to contribute to this study. Particular thanks are due to Executive Director Richard W. Bartlett of the California School Employees Association, the association's office manager, Mr. Max Gott, and the entire state office staff for their patient, under standing help in making records available and providing valuable assistance with the questionnaire. Members of the committee. Dr. Raymond Perry and Dr. Wallace Muelder, made many helpful suggestions and pro vided valuable aid in the final phases of the study When Dr. Nelson was hospitalized following an automobile accident. The writer would like to particularly acknowl edge the help and guidance of his chairman, Dr. D. Lloyd Nelson. Valuable advice was given by Mr. Robert Fisher, personnel director of the Los Angeles City schools, and by ii Dr. D. Welty Lefever of the University of Southern California. Special thanks are extended to my wife for her patience, self-sacrifice, and understanding during the long two and a half years of graduate study preliminary to the writing of this dissertation and for the weeks spent in typing of the rough draft. iii TABLE 07 CONTENTS Page ACKNOWLEDGMENTS.................................... ii LIST OF TABLES....................................... viii LIST OF ILLUSTRATIONS.............................. xi Chapter I. THE PROBLEM AND THE PROCEDURE............... 1 Purpose of the Study Statement of the problem Delimitation and scope of the study Value of the study Sources of data The Procedure Definitions of Terms Used Organization of the Study II. THE GROWTH AND DEVELOPMENT OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION.............. 16 The birth of CSEA The first conference The early years The years of trial, 1930 to 1945 The formative years, 1945 to 1958 The years of fruition, 1958 to 1963 Chapter summary III. THE PUBLICATIONS PROGRAM OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION.............. 78 iv Chapter Page The School Employees Journal The yearly salary survey The report of the annual conference The annual conference educational program The constitution and by-laws Miscellaneous publications Chapter summary j t XV. THE ANNUAL CONFERENCES OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION................ 103 The founding years The pioneer period, 1928 to 1931 The years of struggle, 1931 to 1940 The war years The California School Employees Association comes of age The new era in CSEA Chapter summary V. THE EDUCATIONAL PROGRAM OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION................ 175 Introduction Early educational programs Certification of the nonteaching school employees Educational programs in the 1940's The movement toward institutes for classified employees Chapter summary VI. THE LEGISLATIVE PROGRAM OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION................ 215 Introduction The birth of the legislative program The legislative program prior to 1959 Legislation secured in 1959 v Chapter Page VII. VIII. The legislative year of 1961 The legislative session of 1963 Chapter summary THE CALIFORNIA SCHOOL EMPLOYERS ASSOCIATION AND EMPLOYER -EMPLOYEE RELATI0N8.......... Introduction Bnqplqyer-Employee Relationships in the Private Enterprise System of the United States The modern American unions Employer-Employee Relations in the Public Service The right to strike in public employment Employer-Employee Relations and the California School Employees Association Principles relating to labor relations The merit system Collective bargaining and CSEA An alternative to collective bargaining The work contract and handbooks for employees Role of CSEA in personnel policies Chapter Summary THE QUESTIONNAIRE.......................... Need for a questionnaire Preparation of the questionnaire Accuracy of the returns Care in interpretation Report of the Findings from Ranked Opinions vi 264 340 Chapter Page Employer-employee relationships Status of classified employees Salaries In-service training Status of CSEA Conmunications within CSEA Method of self-improvement Need for increased membership The legislative program The public relations program Unionization Method of employee selection Classification of positions Internal organization of CSEA Method of self-discipline Financial program The most serious problems of CSEA Evaluation of the California School Employees Association Chapter Summary IX. SUMMARY, CONCLUSIONS, AND RECOMMENDATIONS . . 387 Summary Purpose of the study The procedure Summary of findings Conclusions Recommendations BIBLIOGRAPHY.......................................... 409 APPENDIXES............................................ 417 vii LIST OF TABLES Table Page 1. Salaries..................................... 28 2. Amount Desired for Retirement Salary........ 29 3. Monthly Contribution to Retirement Salary. . . 30 4. The Income Dollar of CSEA in 1961-62 ........ 68 5. Item Analysis of Journals Number 1 through 10, Volume I, 1929-30...................... 80 6. Item Analysis of Journals Number 1 through 12, Volume V, 1932-33...................... 82 7. Item Analysis of the School Employee, Volume IX, Numbers 1 through 10, 1939-40.......... 85 8. Item Analysis of the School Employee; Volume XV, Numbers 1 through 10, 1945-46.......... 86 9. Item Analysis of the School Employee, Volume XX, Numbers 1 through 10, 1950-51.......... 89 10. Item Analysis of the School Employee, Volume XXV, Numbers 1 through 10, 1955-56 ........ 92 11. Cost of Printing the California School Employee in 1959-60........................ 94 12. Comparative Figures on the California School Employee for 1956 to 1960.................. 94 13. Item Analysis of the School Employee, Volume XXX, Nunfeers 1 through 10, 1960-61........ 95 viii Table Page 14. Comparison of the Contents of the California School Employee from 1929 to 1960.......... 97 15. Chronological Summary of the Legislative Program of CSEA from 1928 to 1963.......... 259 16. Distribution of Questionnaire and Response . . 343 17. Employer-Employee Relationships of Classified Employees.................................... 346 18. The Status of Classified Employees in the Eyes of the Public.......................... 348 19. Salaries of Classified Employees...............350 20. In-Service Training Programs for Classified Employees.................................... 352 21. Status of CSEA in the Eyes of Other Associations .............................. 354 22. Communications between the State Office and the Local Chapters.......................... 355 23. Method of Self-Improvement for Employees of Small and Isolated Districts................ 357 24. Need for Increased Membership and More Local Chapters.................................... 359 25. The Legislative Program of CSEA.................360 26. The Public Relations Program of CSEA...........362 27. The Unionization of Classified Employees . . . 363 28. The Method of Selection of Classified Employees by Local Districts................ 365 ix Table Page 29. The Classification of Positions by Local Districts.................................... 366 30. The Internal Organization of CSEA..............367 31. Need for a method of Self-Discipline on the Part of Classified Employees to Accompany Permanency.................................. 368 32. A Financial Program Inadequate to Meet the Needs of Further Development................ 370 33. The Most Serious Problems of CSEA as Ranked by indicated Sample.......................... 372 x LIST OF ILLUSTRATIONS Number Page 1. The Areas of the California School Employees Association................................ 62 2. Membership Growth .............. 70 3. Table of Organization, California School Employees Association...................... 74 4. Conference Delegates.............................174 xi CHAPTER I THE PROBLEM AMD THE PROCEDURE The tremendous influx of population into the state of California since 1900 is well known. This migration, intensified since the end of World War II, has led to many problems in the public schools of the state. Among these problems has been the necessity of building more and more schools to keep pace with the growth in numbers of pupils attending them. This, in turn, has led to the employment of an ever increasing number of employees needed to operate and maintain the school plants, transport children to them, and perform all of the necessary service functions required in the daily educational programs of each local school dis trict. The sheer weight of this increased number of em ployees has led directly to many problems in the field of personnel relations at the local district level. Until the very recent past, no powerful group had emerged to plead the case of the classified public school 1 employee before the state legislature. At the 1959 session, however, an association of the classified employees of the public schools of California made a concentrated effort to obtain some legislation which these employees believed was needed. The unprecedented success of the group at this session gave notice that a new and dynamic force had come forward in the field of employer-employee relations in the public schools. The path that this organization has followed from a small, struggling group to a position as a recognized and respected association was a long and difficult one. The history of this struggle and the ultimate success of the California School Employees Association is a study that commands respect. Purpose of the Study Statement of the problem The purpose of this study was to trace the history, growth, organizational changes, goals, and accomplishments of the California School Employees Association from its inception to the present time. No systematic record of this nature had ever been made of this association, although a history was maintained at various times. This study proposed to furnish such a record and, in addition, attempt to discover any emerging problems that the association may be facing in the near future. More specifically, answers were sought to the fol lowing questions! 1. What were the basic purposes of CSEA in the beginning? 2. HOw have these purposes changed over the years? 3. To what extent have these goals been met? 4. What are the significant features of its organi zation as revealed by its past records? 5. What is the extent and character of its member ship? 6. What has the association done to upgrade the status of the classified employees of the California public schools? 7. What has been the trend of the legislative program advanced by CSEA? 8. What achievements have been made in the field of employee group-employer relationships? 9. What is the pattern of the internal organization Of CSEA? 10. What are the basic features of its present program? 11. What are its underlying policies? 12. What are the strong points of CSEA and its possible weaknesses? 13. What are the major problems facing the associa tion? 14. What can be done about solving these problems? Delimitation and scope of the study This study was limited to the growth and develop ment of the California School Employees Association. An attempt was made by means of a questionnaire to determine any emerging problems. No attempt was made to cover the accomplishments of similar associations in other states or of the national organization, the American Association of Classified School Employees. Value of the study A study of this type should be of value to present as well as to future' CSEA members and officers. This systematic approach to the history of the growth and development of CSEA should clearly indicate'trends which have taken place within the association and particularly the effect of these trends on the employer-employee rela tionships in the local school districts of California. This study should also prove of value in indicating future areas where action needs to be taken and thus be of assist ance to the leadership of the association in planning future programs. This study should be of interest to all public school administrators and school board members in the state of California. It seems all too evident that the forceful role of CSEA will continue and that future relationships with classified employees will find the association playing a more important role as an employee group representative than in the past. Members of CSEA should be interested in this study. It should serve as a source of inspiration to present and future members to be able to review the growth and develop ment of their association. Many of the benefits which they now enjoy can be traced to the effective work of this interesting and important group. Source* of data vvimm'ry sources.— The primary sources of data used in this study were the following 1. Official minutes of the board of directors of the association. 2. Proceedings of the annual conferences of the California School Employees Association. 3. Correspondence files in the CSEA office in Burlingame. 4. Minutes of meetings of standing committees, annual business meetings, and special com mittees . 5. The constitution and by-laws of CSEA. 6. The School Employees Journal, volumes I to VIZ, the official periodical of the association. 7. The California School Employee, volumes VII to XXXXII, the more recent official publication of CSEA. 8. The Educational Program of the Annual Confer ence. an official record of the educational programs at the annual conferences. 9. Official reports of the executive secretary, treasurer, secretary and controller of CSEA. 10. The historians' reports, contained in a mimeo graphed publication of CSEA covering the years 1913 through 1951. 11. Interviews with officials of the association. 12. Review of legislation sponsored by the associa tion. 13. The annual survey of classified salaries pre pared jointly by CSEA and the California Asso ciation of Public School Business Officials. 14. The Education Code of the state of California. 15. Results of a questionnaire designed to explore the strengths and weaknesses of CSEA. Secondary sources.— The secondary sources of data used in this study were the followings 1. Professional literature dealing with personnel administration in the public schools. 2. Professional literature dealing with employer- employee relationships. 3. Professional literature dealing with classified employees in public service. The Procedure 8 This study vna based primarily on research conducted in the state office of the California School Employees Association. Methods and procedures used in gathering the necessary data were as followss 1. Permission of the board of directors of the California School Employees Association to con duct such a study was granted at a meeting held in San Francisco, September 29, 1962. 2. An extended period of time was spent in Burlin game obtaining factual data from the early records of the association. Through the assist ance of Mr. Max Gott, business manager of CSEA, and the wholehearted cooperation of Mr. Richard Bartlett, executive director, the writer was given access to minutes, correspondence, docu ments, and records otherwise unobtainable. 3. Proceedings of all annual conferences, from the first one held in 1927 and including the thirty- seventh held in 1963, were located and studied. 4. All copies of the association's official publi cation, The California School Employee, from Volume X( No. 1, In 1929 through Volume XXXXXI, No. 5, December, 1963, were located and studied. Several days were spent In the libraries at Stanford University, the University of Califor nia at Berkeley, and the University of Califor nia at Los Angeles in order to study doctoral dissertations written at these institutions tdiich dealt with some phase of this projected study. Microfilmed copies of dissertations written at other universities were secured from University Microfilms in Ann Arbor, Michigan. The library at the University of Southern California was used extensively throughout the study. A questionnaire was sent to every third chapter president of CSEA, another to the superintend ent of the district in %diich the chapter was located, and one went to every hundredth member of the CSEA mailing list. A survey and analysis of the literature in personnel administration, employer-employee 10 I relationships, and problems confronting other professional associations was made in order to develop the questionnaire. 10. A group of public school district superintend ents from Riverside and San Bernardino counties was contacted and the opinions of the superin tendents on the proposed questionnaire were solicited. These opinions, plus those secured from Dr. D. Welty Lefever of the University of Southern California, were valuable in drafting the final questionnaire. The final question naire was reviewed and approved by Mr. Richard Bartlett, executive director of CSEA. 11. Interviews with several members of CSEA were conducted. 12. The returns from the questionnaire were tabu lated and analyzed for use in this study. 13. A careful analysis of the legislative program of CSEA was made from all available records in cluding the Education Code of the state of California from 1929 to and including 1963. 14. Interviews were conducted with several author!- 11 ! ties in the field of public school classified i employee relationships. Definitions of Terms Used i Terns and abbreviations used throughout this study ! are defined as followsi i i Association.— The term "association*1 has been used to refer to independent, unaffiliated groups of employees which have not identified themselves with the major unions. Although not rejecting many of the techniques of unions, associations do not generally make use of collective bar gaining, picketing, or the strike. They are usually com posed of employees of a single government level— state, city, county, or school district. California Association of School Administrators.— This group is an association of California school adminis trators with the designation of superintendent somewhere in their position title. This association is referred to in this study as CASA, its commonly accepted abbreviation. California Association of Public School Business |Officials.— This group is an association of California public school employees vriiose primary concern lies in the field of public school business procedures and practices. The abbreviation of the name of this association, CAPSBO, i !is used occasionally in this study. I California Public school Custodians Association.— \ — I This organization was an association of California public school custodians that preceded the California School Em- ployees Association. The abbreviation CPSCA is used occasionally to refer to it. California Teachers Association.— This organization is an association of certificated employees of the Califor nia schools. The commonly accepted abbreviation, CTA, is used in this paper on occasion. California School Boards Association.— This group is an association of the local school district governing boards. The abbreviation CSBA is used many times in this paper. California School Employees Association.— This organization is an association of classified employees of | the California public schools. The abbreviation CSEA is used many times in this study. Collective bargaining.— The process of employer- I employee organization negotiation for the purpose of reach- ing agreement as to the tanas and conditions of employment ! jfor a spacifiad period is callad collective bargaining. j Injunction.— A judicial order commanding an indi vidual or a union to refrain from doing certain acts which the court considers injurious to the property rights of others is called an injunction. Union.— The term "union" as used refers to any group of employees affiliated with a larger federated organization such as the American Federation of Labor or the Congress of Industrial Organizations. Organization of the Study In Chapter I the introduction to the study and the problem were stated. An effort was made to delimit the study, state its value, and indicate the sources of data. The methods followed in the procedure were also explained. The history of the growth and development of the association is covered in Chapter II. A complete account of the organizational changes, the increased scope of the association's activities, and an analysis of the objectives of CSEA are given. The membership growth and financial records are also noted. I .................................... . . . . . . 14 1 Chapter III covers the publication program of the Iassociation, it includes an analysis of the contents of i the official publication. The California School Employee, the salary surveys, and other publications of CSBA. In Chapter IV the annual conferences are examined in detail. The greatest amount of policy development is centered around this annual conference, and its record of achievement and attendance is virtually a record of the development of the association. In Chapter V the efforts of CSEA in attempting to upgrade the status of the classified employees of the California public schools are dealt with. The educational programs for in-service training have a long and interest ing history. They played a very important part in the development of the association as the recognized leader of the state's classified public school employees. Chapter VI traces the legislative program of the association through the years from 1927 to 1963, inclusive. Chapter VII covers the difficult field of employer- employee group relations. The increasing importance of ithis area of personnel administration has grown more and more apparent with each passing year. 15 In Chapter VIII the results of the questionnaire i used In an effort to determine the strengths and emerging j | problems of CSEA are reported. The findings from this attempt to survey the viewpoints, attitudes, and evaluative j judgments of a sample of superintendents, chapter presi dents, and members are used as a basis for many of the I recommendations made. Chapter IX contains the summary of the problem and the findings of the study and presents certain recommenda tions . A bibliography follows the final chapter of this study. An appendix which contains historical documents of the association, copies of the questionnaire used, and various other communications related to the study follows the bibliography. CHAPTER II THE GROWTH AND DEVELOPMENT OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION The birth of CSEA The earliest recorded organized group of what is now known as the California School Employees Association was started in Oakland, California, in 1915. This group was known as the Oakland School Janitors Association and it met on call of the school district's business manager. The idea of forming a statewide organization was born during one of thesa meetings (9). A few years later, in 1920, the Los Angeles City Schools Janitors Association was officially organized. This organization filed its articles of incorporation with the state attorney general. Very little has been recorded of the early history of this association beyond a few references to in-service training meetings which were held ( 1) . 16 17 In January of 1927 the guest speaker at one of the i meetings of the Oakland School Janitors Association was Mr. Bari Warren, district attorney of Alameda County. He i explained to the association members that retirement, the i chief interest of this group, could not be granted to them because they were employed by local school districts and not by the state, a county, or a city. He then suggested ithe idea of forming an organization of custodians throughout the state in order to bring about the legislation that would be necessary to set up a suitable retirement system for public school custodians (9). The idea advanced by Mr. Warren appealed to the group and at a regular meeting held in the Oakland I.O.O.F. Temple, the following resolution was adopteds Be it resolved, that the sum of ten (10) dollars be donated to the president of this association for the purpose of purchasing stationery, and the draw ing up of a circular, urtiich shall be mailed to all public school custodians in the State of California. The contents of the letter shall be to interest all public school custodians in the formation of a California Association of Public School Custodians, with the object in view of raising the working standards of efficiency, for work for Old Age Re tirement, and other benefits accruing thru a state organization. Moved! Walter Stehle, 2nd Chas. J. Gove.— Carried. (2) | The president* Lawrence Twoaxa* drafted and mailed i such a letter and after receiving many favorable replies ! | the date of August 9* 1927* was set for the first meeting I of the proposed state association. This was the beginning of the California School Employees Association. As seen through the eyes of a later association historian* Edward Haire* in 1945* it was a powerful, intellectual* educational group of public school employees* to be gathered together in one organization to promote the best interests of its members throughout the State of California. These were the thoughts of a few school custodians in the city of Oakland during the year of 1926. They felt that to employ the educational method of their objectives* they would ultimately be success ful. Could these visions be realized? The optimists said* YES. The egotists* NO. The pessimists* prob ably* no harm in trying. All felt that the time had come for an educational program to be promulgated through the ranks of the school employees in the State of California. They felt that* as the teacher was protected by Tenure* Retirement* and Certification* the non-certificated should receive some such protection* and decided to take action. (9) The first conference On August 9* 1927, the first conference was held in the form of a committee meeting, in attendance were the followings 19 i I L. Twoaxa, president, Oakland association j W. P. Schwartz, secretary o£ the cosmdttee i i J. C. Swift, president, Los Angeles association t H. K. Ball, president, San Jose association ; 1 • S. J. Hagerman, secretary, Oakland association Mrs. Mary Bradley, matron, Technical High School, Oakland C. Gove, past president, Oakland association W. Steahle, past president, Oakland association G. B. Aldrich, past president, Oakland association E. R. Torrence, president, Alameda association This committee met for three days and adopted a temporary constitution and by-laws. A mortuary fund was established in the by-laws as an inducement for new members The per capita tax was set at five cents per member per month. The following policy was adopted: 1st. To obtain retirement for the school custodian throughout the state. 2nd. Establish a system of education for the school custodian that would eventually place him on the same level as other crafts. 3rd. To work for a system of recognition for the school custodian from the State Department of Education. (3) The following officers were elected to serve until [the next annual conference: H " ' ................. 20 President. ..... Twoaxe, Oakland Vice president . . . . J. C. Swift, Los Angeles Secretary.......... Treasurer.......... Hodge, Los Angeles Financial secretary. . A. H. West, Oakland Chairman, advisory board. ...... The name of the organization was listed in the con stitution as the California Public School Custodians Asso ciation and any regularly employed custodian in any public school in the state of California was declared eligible for membership on payment of the established dues. The elected officers were stated to be the president, first vice presi dent, secretary, and treasurer. These officers, with the ex-president most recently in office, and with five other members appointed annually by the president, were listed as the executive committee (see Appendix L). The early years Great forward strides were made in the year that followed. New chapters were added in Long Beach, Sacra mento County, Stanislaus County, Alhambra, Fresno County, San Joaquin County, Santa Rosa County, and Glendale. The early historian noted that the state officers made many visits to the sur rounding districts, traveling as far north as tJkiah, and as far south as San Diego, all this being without thought of remuneration, their objective being to have the association established in as many districts as possible, these visits created untold interest in our cause, and in some places, much opposition, in some districts the organizers were told they were revolutionary, but all setbacks goaded the officers to greater efforts. (9) The second conference was held in Los Angeles on July 12, 13, and 14, 1928. President Lawrence Twoaxe re ported on the progress made in organizing new chapters. There were twenty-seven delegates in attendance at the opening banquet and they elected the following officers for the coming year (6*1928)t President John C. Swift, Los Angeles First Vice president . E. J. Schwingen, Oakland Secretary C. R. Tillison, Long Beach Secretary of the mortuary fund. A. Burrows, Long Beach Treasurer A. H. West, Oakland The program was listed ass L. Twoaxe, "Progress and Aims of the Association" Assemblyman Byrne, "Need of Organization” William P. Schwartz, "The Retirement System" 22 ) j Nr. Vierling Kersey, "Work and Recreation— or the i Master Custodian" i 1 B. J. Schwingen, "Retirement and the Mortuary Fund” G. Wright, "Custodians" i The treasurer's report showed that receipts for the year were $394.84 tdiile $260.98 was disbursed, leaving a balance of $133.86 (6s1920). A notable achievement accomplished during this first year was the passage of S.B. 551, an enabling act giving the authority for the establishment of a retirement plan to certain school districts. This legislation was the first in the school code to affect all school employees, and Mr. Schwarts, Mr. Schwingen, and Mr. George Luhrsen of the legislative committee lobbied very hard in helping to secure its passage (9). An emblem was adopted for the membership. The de sign was a shield of black and gold, showing the California Bear standing on a riband of gold with the initials of the association, CPSCA, being embossed on the riband. f The state mortuary fund was established at this t iconference. Each member paid an initial fee of $2.20; twenty cents went to administration and $2.00 to the fund. 23 The theory behind this fund was that if 1,000 members joined there would be $2,000 in the fund. If a member died, ! • his next of kin received $1,000 and all members contributed i i another $1.10. There were 150 members to start with and the I • I fund was in chronic difficulty from the beginning due to the fact that members were slow in paying the second contribu tion. The initial success of the new association led to some opposition almost immediately. Officers of the group were threatened with loss of their jobs in some instances. A delegation from the business officials association arrived at the conference to ascertain the main objectives of the group. Some districts refused to allow the officers to work in promoting goodwill and to speak on the aims of CPSCA in their schools (6t1929). The Long Beach associa tion notified the group that it had members from other than custodial jobs and it intended to rename its chapter the i >Long Beach School Employees Association. The third year of the new association saw a sub stantial gain in membership. The minutes of the third con- i ference, held in Sacramento, showed that there were 1,932 ! members and that the financial picture had also grown t L_...... - (brighter. Receipts for the year were $759.81; disburse- i i merits were $430.30, leaving a balance of $329.51 (6*1929). i The highlight of the conference was a speech by | state Senator Inman, who had introduced S.B. 551, in which he encouraged the group to proceed with some plans for i 'legislation that would make retirement possible for all school employees. Senator Inman declared that he would sponsor any legislation desired by the new association (6tl929). The by-laws were changed at this conference to allow any noncertificated school employee to join and the per capita tax was set at ten cents a month. The slogan "We Serve" was adopted, and the first magazine was author ized published with John Swift as the editor. The cost of the magazine was to be three cents a copy. The first attempts to sell the association on a system of group life insurance were made by Mr. A. Burrows. No interest was displayed in the idea so it was dropped i (6 >1929). The following officers were elected* President................J. C. Swift, Los Angeles Vice president..........E. J. Schwingen, Oakland Secretary Treasurer Financial secretary. • • A. H. West, Oakland Assistant secretary. • . A. Burrows, Long Beach Secretary of the mortuary fund...... A. Burrows, Long Beach In August of 1929 the first issue of the magazine, The School Employees Journal, was published. The four-page journal was printed on eight by eleven inch paper. The first issue stated the objects of the association to be as followss Its objects shall be to promote the efficiency and raise the standards of service of all school employees ; offer opportunity for the investigation and interchange of ideas, upon subjects pertaining to the progressive development of the public school system; to institute and promote such legislation, State and local, as may be for the best interests of the schools or the members of the organization; to establish a spirit of friendly cooperation with the State and local Boards of Education; and, gen erally, to promote the good and welfare of the mem bers of the organization. (4t1929) The years of trial. 1930 to 1945 The fifteen-year period between 1930 and 1945 was a long and difficult one for the new association. The state of California was hard pressed financially during the depression years as were the local school districts. Work 25 W. B. Magee, Tujunga A. J. Allcock, Venice was scarce and applicants plentiful so the work day for classified employees increased to twelve hours per day for i I six days a week. Salaries were as low as the local tax payers could get them. CSEA faced a formidable, challenge i in remaining alive constituted as it was by the lowest in come groups in the public schools. That it was able to do so and slowly move forward is a tribute to the devoted leadership of the men who came forward during this period of adversity and decreasing membership (9). Each year found the delegates assembling in mid- July for their annual conference. In July of 1930, John C. Swift of Los Angeles was elected president. During the year six new chapters were organized and the membership rose to 965. The actual membership at a given time was difficult to determine since the monthly dues were due and payable on the first of the month. This resulted in a large N floating" membership who were paid some months and delinquent at other times. Receipts of $1,080.50 were taken in and $1,067.20 was disbursed, leaving a balance of $13.30 for the year (6t1930). During 1930-31 the name of the association was changed to the California School Employees Association in order to allow all noncartifloated school employees to ba cons members. The emblem was changed to a blue and gold shield with the California Bear standing on a gold riband i land the letters "CSEA* engraved on the riband. The per i capita tax was raised to fifteen cents a month. The objectives of CSEA were listed ass 1. Edification. Times have changed and now school employees need courses of instruction to raise the stand ards of service required in maintaining the beautiful palaces of education in the state. The CSEA must strive to promote and uphold a program of efficiency and instruction for all school employees throughout the state. 2. Legislation. The members of the Association view with sorrow the unpreparedness of school employees for old age. Retirement pay was created by industry so the aged and infirm could retire and spend his last few years without financial worry or being a burden on public funds. This opens the way for a more physically fit man to assist in the great competition of industry. 3. Investigation. It is the duty of the informed to promulgate their ideas and knowledge. 4. Cooperation. Cooperation must exist at all times between the members of the C.S.E.A. and their local Boards of Education. 5. Citizenship. We are our brother's keeper so each member should strive to promote the Mortuary Fund in order to aid the beneficiaries. (4>1930) It should be noted that the mortuary fund was in chronic difficulty due to members not paying their assess- ments. The amount going to beneficiaries ranged front $110 to $163, and there were ae many ae twenty-five delinquent members at a time. The idea of group life insurance began to be more popular and in the Los Angeles chapter a group ! |system providing $1,000 death benefits for $1.00 a month jwas instituted (6>1930). j The legislative committee during 1930 compiled its i ! first actual records on the status of noncertificated employees and their desire as far as retirement was con cerned. The returns on a questionnaire showed the follow ing: TABLE 1 SALARIES Dollars per Dollars per Dollars per month Number month Number month Number $ 45.00 1 $105.00 1 $141.75 18 54.00 1 110.00 1 142.00 1 65.00 1 115.00 1 145.00 4 70.00 1 120.00 23 150.00 18 75.00 1 125.00 20 155.00 2 85.00 2 130.00 6 157.50 4 87.00 1 135.00 33 160.00 3 100.00 8 140.00 21 165.00 3 i Total 174 29 According to this survey the salaries of custodians j i ranged from $45.00 per month to $165.00 per month in 1930. | The median salary was $137.25 (2). The amount desired per month for retirement salaries I ■■ by the polled custodians ranged from $25.00 to $125.00 and l the median was $67.50, as shown in the following table (2)t TABLE 2 AMOUNT DESIRED FOR RETIREMENT SALARY Amount per month Number Amount per month Number $25.00 2 $ 70.00 6 30.00 1 75.00 12 40.00 2 80.00 2 45.00 2 85.00 4 50.00 20 90.00 2 60.00 20 100.00 20 65.00 5 125.00 2 Total 100 The amount that each person wished to contribute itoward this retirement salary ranged from nothing to $12.00 iper month with a median of $2.03, as shown in Table 3. iTwenty years of service was the median time the custodians i thought should be required prior to retirement (2). 30 TABLE 3 MONTHLY CONTRIBUTION TO RETIREMENT SALARY Contribution Number Contribution Number $ .00 8 $ 4.00 3 • 50 6 5.00 8 1.00 33 6.00 1 1.50 1 7.00 1 2.00 27 10.00 2 2.75 2 12.00 2 3.00 5 Total 99 In 1931-32 George J. Luhrsen of Tracy was elected president, and he held this office for the following four years. He was the only association president to hold office for a period of this length. Only one new chapter was formed and no record of the financial accounts or mem- I bership could be located. Mr. Ben Mallory and Professor R. Hammersley of the University of California at Berkeley began the first professional training courses for noncer- tificated employees during this year and radio station KRE 1 |of Berkeley carried the first radio broadcast of the aims I i of the association (6tl931). | By April of 1933 the state of California was in desperate financial straits with a $9,500,000 deficit. 31 ! Hundreds of bills were introduced in the state legislature, i I most of «diich ware aimed at economy. Some of the measures ; i contemplated removing the constitutional guarantee on teachers1 salaries, raising the kindergarten entering age, abolishing compulsory physical education, forcing consol idation of school .districts, abolishing the division of ! school house planning, and curtailing adult education (2). i The local districts began to trim back their budgets i simultaneously. Dr. Frank Hart in a memorable address to the annual conference stressed that better trained custo dians would save.districts far more than their cost. He emphasized that the custodians themselves would have to raise their standards if they ever hoped to raise their pay. i {This address provided the stimulus for redoubled efforts to j provide a more widespread program of education for the non certificated employees (6x1933). In 1933-34 the executive committee of CSEA was I reorganized to allow for some elected members on the com- I mittee and fewer appointed members by the president. The j new committee was to consist of the elected officers and i i i |the chairmen of the legislative, educational, and organiza tion committees. There were twelve new chapters organized 32 during the year and a reported membership of 1,053. In Hoveaiber of 1933 the Berkeley custodians went on an eight- j hour day. In contrast, the work schedule for custodians in Los Angeles was reported to be from 7t00 A.M. to 9t00 P.M. ( 2) . The year 1934-35 marked the end of the mortuary ! fund. The coming of low cost life insurance had ended any felt need for the fund so the delegates to the annual con- I ference voted to discontinue it and return all contribu tions on a prorated basis to the remaining si&scribers (611934). In September of 1934 a new constitution went into effect. The basic changes allowed the president to appoint an unlimited number of second vice presidents to recruit and organize new chapters, provided for all business to be handled at the annual conference, and divided the state into three sections. The northern section was the area I north of the northern boundary of Stanislaus County, the I central section was to be the area between the Tehachapi I • Mountains and the northern border of Stanislaus County, I | and the southern section was set up as the area south of the Tehachapi s. The purpose of the sections was to promote closer cooperation between the state association and its affiliates, A $1.00 membership fee was established, one- jhalf of which was to go to the local chapter and one-half i I to the state association (3*1934). I There were twelve new chapters organized during this year and a membership reported at 2,206. In May of i 1935 a letter was received from Mr. Vierling Kersey, State Superintendent of Public Instruction, notifying the asso- i ,ciation that the State Board of Education had approved a plan to issue certificates to all custodians and custodian- engineers meeting certain requirements. These requirements will be explained in a later chapter, but they included a minimum amount of service plus an examination covering the field for which the certificate was issued (1). The year 1935-36 saw a new president, Edward A. Haire of Hollywood, take over the reins following the four iyears of service of George Luhrsen. During this year the I membership dropped slightly to 2,100, although any actual i ! figure was difficult to determine due to the "floating" i membership rolls. Six new chapters were organized during I !the year (6sl935). In May of 1935, A.B. 999, the Civil Service Enabling f . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . " ' ' ' ' ‘ | 34 | Act was passed. The attitude of the association was ex- I pressed as followss This bill, while being only an enabling act, and granting school administrators the power to adopt civil service if they so desired, was a step in the right direction, and which would later be amended to compulsory civil service for the school employees throughout the state, and that we were getting the legislative recognition we felt we de served. (9) In September of 1935 the California Supreme Court released its decision in the case of Los Angeles City School District v. Griffen. 89 C.D., 850, Pac (2nd). The decision declared that Education Code section 5.1100 was unconstitutional. This section of the code had authorized the governing boards of any two or more school districts, employing 500 or more teachers, to establish a retirement salary plan for all employees of the districts. The year 1936-37 was highlighted by the adoption of civil service by the Los Angeles City School District on June 15, 1936. This event was hailed as a major advance by the membership of CSEA, and great es^ectations were held for the adoption of the plan by many more districts • The State Board of Education approved the certification program > for noncertificated employees on October 27, 1936, which also appeared to be a milestone in the development of the association (1). S.B. 799 was passed by the state legisla ture and this measure allowed a school district with an A.D.A. of 850 or more to establish a retirement program for all of its employees upon obtaining a majority vote of its electors. Seventeen new chapters were organized during 1936 (6*1937). By 1937-38 the need for a full-time executive sec retary became apparent and a project (selling pencils) to raise the necessary funds began. Requirements set up for the position were as follows* The executive secretary shall be between the ages of 30 and 55 ; have had experience in organiza tional and legislative work? have a wife who will help him in his work; be daring and original; have had business experience; like and be able to meet people; and preferably be one who is experienced in church, lodge, and service club work. He should have no superiority or inferiority complex; should have college training or its equivalent; should have a desire to really make a career out of helping the C8BA to realize its proper destiny; and be a "natural" at working with school trustees, school superintendents, and teachers as well as CSEA mem bers. (1) A man fitting the above description was to be paid j I$2,400 per annum and his term of office was to extend from I the date of his appointment to the date of the appointment i of his successor unless he had to be recalled for lack of i funds. The response to the job opening was not overwhelm- 36 ing in the number of applicants. The president for 1937-38 was A1 K. Evans of Berkeley. There were reported to be 2,434 members. Re- i ceipts for the year were $8,967.70; disbursements were $6,116.25, and a balance of $2,851.45 was on hand to begin the new fiscal year. Seven new chapters were organized; Hawthorne and the Compton secondary schools adopted civil service, while Long Beach rejected it. On May 4, 1937, Los Angeles voters passed a retirement system for their school employees (6:1937). New goals established by CSEA were; mandatory civil service, a mandatory retirement system for all employees, the forty-hour work week, and a minimum wage scale for ! classifications. In 1938 Mr. Ken Stromquist was hired as executive i secretary. He held the post from July to December at which time he was dismissed "due to a lack of experience or inter i jest on the part of Mr. Stromquist." (2) It had been the i i ! feeling of many of the officers that a man of vision could j j raise enough new members to pay for a higher salary. The i first executive secretary of CSEA apparently did not get i i results although it is noted that ten new chapters were L . .. - . ... .. formed during this period (6 z1938). 37 An idea of the manner in which CSEA was spending its income could lead to a better understanding of the operation of the association. I t DISBURSEMENTS t JULY 1 TO JUNE 30, 1938 Journal $1,772.00 1937 conference 629.08 President's expense 498.45 Executive committee's expense 323.21 Printing 210.91 Secretary's expense 120.00 Treasurer's expense 104.89 Treasurer's salary 300.00 Printing 133.06 Vice president's expense 208.56 Education committee 131.50 Organization committee 494.19 Civil service committee 91.91 Insurance committee 27.03 Retirement committee 37.65 Oift, retiring president 75.00 Pins and buttons 76.67 Executive secretary's expense 613.92 Total disbursements $6,116.25 (6zl938) j A major legislative gain was made in 1938 when the I state legislature passed A.B. 2575, a measure which gave [ school districts the authority to pay nonteaching employees i I !for necessary leaves of absence due to illness. The defeat i |of A.B. 2248, a mandatory civil service bill, was a bitter 38 blow to the CSBA legislation committee and to ita chairman, W. L. Phillips, who made the following report to the mem berships The failure of the passage of assembly bill 2248 primarily was due to the lack of strength in member ship in our association up and down the state. It | is the opinion of your chairman that until the mem- i bership of the CSBA includes a much larger percentage of the eighteen thousand employees in the state, it is a waste of time, effort, and money to promote fur ther legislation. (6x1939) The 1939-40 year started with a new president, Mr. William P. Francis, of Los Angeles. Undaunted by the i failure of its primary legislative proposal, the organiza tion moved ahead in the field of a training program for the noncertificated school employee. Several employees through out the state had taken advantage of the educational train ing for state certificates. Hayward and San Mateo adopted the permissive retirement system and several other dis tricts were asking for speakers to come and explain the i | program to them. I The year 1940 marked one of the mo3t successful j ; legislative years in the short history of CSBA. New bene- j fits were extended by the legislature to the noncertifi- jcated employees of the public schools such as sick leave, j ! [institutes, reemployment of personnel called up for national 39 | defense, end a provision thereby the local electorate could; ! vote on civil service on the petition of 10 per cent of thej registered voters. Mandatory civil service was defeated ;again after a bitter struggle (2). j A new executive secretary, Mr. Claude Marona, was i employed during the course of 1941. Bach chapter was re- i quired to contribute $2.00 per member to pay his salary. This was a far sounder method of financing the position than selling pencils as had been attempted previously. Mr. Frank Thomas of Berkeley was elected president for the first of two terms (6x1941). In March of 1942 the attorney general of the state of California delivered an opinion that declared the school custodian credential illegal since it had not been passed by the state legislature. It was his opinion that the mode i of obtaining the credential did not make for any better standards of service (2). This decision wiped out years of j I | work and planning on the part of the CSBA education com- mitee. The committee had believed that the nonteaching j employee could attain higher status and salary by some sys tem of educational preparation, and a system of certifica- I tion had apparently offered the best solution. The coming of the second World War further accentu ated the problems of CSBA. Employee turnover, employment of students as part-time custodians, travel restrictions, and the shortage of capable help were the main tppics at I ! the annual conference. The California School employee re- j fleeted the war shortages as it began to be printed on i cheaper paper and its articles hinted at the problems faced by CSEA. Many of its members left the public schools for employment in defense industries (5*1942). On October 1, 1942, Claude Marona resigned as executive secretary in order to serve with the Red Cross. During his short term he had helped to organize twelve new chapters and given valuable assistance in the adoption of 'a retirement plan by school districts in Berkeley, Fresno, Hayward, Oakland, San Mateo, Long Beach, San Jose, Vallejo, Santa Barbara, and Alameda. The annual conference in 1942-43 was limited to the f state officers due to travel restrictions and the activi ties of the association were severely curtailed. All officers and chairmen were automatically reelected for the r following year. In 1943-44 the loss of membership had become a 41 source of deep concern. The problem had been aggravated by | the resignation of the executive secretary.. The remaining | i workloads had to be shouldered by the elected officers. i Progress still went on as a new salary survey program was i i ; |begun, later to become a yearly research project. The ! steady increase in the population of California had begun to be felt and the association looked for further growth in the future as more schools would mean more nonteaching positions. It was noted that thirty-five school districts had adopted retirement systems for the nonteaching group, and proposed legislation was being drawn up by CSEA to make it mandatory. A new approach to the problem of educational im provement for custodians was attempted as the Frank Wiggins Trade School submitted a plan to CSEA that would be suitable for extension and correspondence courses. The course of study was divided into six sections, namelyt 1. Floor maintenance i 2. Fixture and equipment maintenance 3. Building operation 4. Low pressure heating 5. Ground maintenance 6. Supervising custodianship (2) i The financial picture reflected the sharp decrease j in mesbership. The income for the year was $5,850.37, i While $4,509.07 was disbursed. An attempt was made to hold i I ian all-out membership drive and the entire $1.00 membership fee was to be retained by the local chapter (6sl944). I The year 1944-45 found the association with a total membership of 1,400 plus 600 "floating" members--people vhoi paid dues some months and not in others. Travel restric tions were still in effect so only forty-three were in attendance at the annual conference. L. C. Sutliff was elected president and he emphasized the fact that things were beginning to look brighter for CSEA since thirty-nine districts had adopted retirement and thirty-one districts i were in the process of the initial survey prior to the ! adoption of the plan. The per capita tax was increased i from thirty-five cents to fifty cents per month after a j |long and stormy debate (6:1944). ! i J The formative years. 1945 to 1958 The board of directors of C8EA, faced with the con- i j tinuing crisis of membership, undertook a bold new look at the organization of the association in November of 1945andi ! 43 decided to reorganize, under the new plan the etate was i divided into eix districts with a district representative for each one of them. The geographical areas covered by each district varied considerably, but they were based on 1 • : the possibility of further division as the number of chap- : I ters increased. District 1 was to include Los Angeles and | ' ithe districts immediately adjacent to it, while District 2 i included Long Beach, Corona, San Bernardino, Pomona, and j the areas between. District 3 was concentrated in Kern, Fresno, and Tulare counties, while District 4 included areas such as San Jose, Sacramento, Stanislaus County, and i Turlock. The Oakland, Vallejo, Napa, Eureka, and Petaluma 0 I areas were in District 5, and District 6 included San Luis j i Obispo, Ventura, and Santa Barbara. The financial situation began to brighten a little as a beginning balance of $2,001.66 added to receipts of $8,455.96 during the year made a total of $10,457.62 from which $6,774.42 was disbursed, leaving the association with an ending balance of $3,683.20. There were 606 new members j ! added but a loss of several hundred made a net growth of I i ! about a hundred (6t1946). i In Nay the Berkeley school district developed a i ■ 44 | •alary schedule based on position classification and the salaries were based on prevailing rates in private industry, This modern salary schedule created a great stir of inter- | i est in the larger districts of California (5tl946). The retirement conuittee worked very hard and by !conference time sixty-four districts had adopted retirement! i ! plans for their noncertificated employees. Thirty other jdistricts had begun the initial survey necessary to estab- ; i s i jlish rates and were about to adopt the plan. | The 1946-47 year was one of the association's most successful. President Robert Trimlett proved to be a very energetic leader and he displayed exceptional ability in ithe organisation of needed work as well as the appointment t ! of efficient committees to carry it out (2). | , i President Trimlett aided in the organization of the i i i |California Public Bqployees Coordinating Council, an organ-; ] . : jization designed to aid all groups of public employees in the state in areas of research on salaries, civil service, retirement, and working conditions (6t1946). The salary committee submitted a detailed question naire to 220 districts in an effort to determine current ! practices regarding noncertificated personnel in each dis trict. The results indicated that working conditions were j improving. The range of hours worked per week ran from thirty-five hours to fifty-five hours. Fifty-seven dis- i tricts reported a five-day week, thirty-nine reported a i five-and-a -half-day week, while only one district remained j ! on the six-day week. Overtime varied from nothing to time i • | land a half of the regular salary rate with the majority j : | paying either the regular monthly rate or allowing compen- ; I j satory time off. The success of the yearly survey caused ) the committee to be renamed the research committee and the i salary survey became an annual project (2). In October of 1947, chapter 45 was added to Part 3 of Division 5 of Title 3, Government Code. Under this new I r law all noncertificated employees of school districts in ! the state of California not in districts currently covered j i • ! i by a retirement plan were required to become members of thej I j | State Employees Retirement System on or before January 1, j : 11949. This measure marked the climax of twenty years of work on the part of the association (2). I The problems of the cafeteria personnel became a i : I matter of great concern during 1947 as reports indicated that for the most part cafeteria workers had no vacation, L . . . . . . . . . _ . . _ . . . . _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ j retirement, or sick leave, and salary levels were lower than those paid for other noncertificated positions. The situation was a very delicate one inasmuch as many school i j boards and superintendents had very strong feelings on the i i subject due to the cost of the lunch program (2). The financial picture remained bright as the asso ciation started the year with a balance of $3,683.20. In come during the year amounted to $12,580.55. The total disbursements were $10,543.64, leaving a balance of $4,311.56 (6sl947). In November of 1947 CSEA began its most intensive in-service training program. Extension classes with itin erant instructors were set up on a large scale in the i |southern part of the state. The programs were administered t i by the various county superintendents of schools and were ipaid for through the state's adult education program and i * Smith-Hughes funds. This effort fell short due to the lack | of instructors and apathy on the part of school custodians. I |The program collapsed after reaching the point where ten institutes were in session during early 1948. William ! I Brown, the education committee chairman, resigned the fol- i |lowing year and offered CSEA 3,000 copies of his course for 47 ! custodians at a very low price (2). j Zn April of 1948 an opinion of the state attorney | ! j | general indicated that cafeteria workers were employees of ! | the school district where employed and as such they would I ; j ; become members of the State Employees Retirement System. ' i | The local districts were directed to pay the necessary con-; tributions to the fund. In this opinion however it was indicated that employees working less than 50 per cent of the time were not eligible (1). The following year was one of rapid advancement. No membership figures were available but the financial picture for the 1949-50 year indicated that receipts totaled $19,953.97. A cash balance of $24,290.03 from Which was jdisbursed $13,533.07 left an ending balance of $10,756.96 |(6x1949). The activities of the association had increased to I the point where nine standing committees were involved and I I these were listed as advisory, advertising, education, | |historian, legislative, merit system, organization, retire- ment, and research. There were now eight districts in the i state as District 1 had been divided as well as District 5. Group polio insurance was offered to members and a full scale study of hospital and health insurance was underway. Three groups of supervisors and directors of operations decided to become chapters of CSEA after many years of operating as independent groups. The president during 1949 was Richard "Rick" Watts (6x1949). In 1950-51 the association held its conference in Eureka and elected Lloyd Hoyt as its president. The Lawrence Twoaxe Memorial Scholarship committee made its report and selected Thelma Simpson of Long Beach as the first scholarship winner. This scholarship was a $200 cash award to be made to a deserving candidate whose parent was a CSEA member. Mike Brazil of Ventura was the association's presi dent in the year 1951-52. A highlight of his term of office was the beginning of a health and hospital plan for CSEA members. This plan was taken out with Occidental Insurance Company, and it required a 75 per cent participation of all eligible members in a chapter. The cost was very reason able, as shown by the following monthly rates (6x1951)x Male Female Subscriber only................... $2.98 $ 4.44 Subscriber and one dependent. . . . 5.76 7.22 Subscriber and two or more dependents......................8.74 10.20 A new coordinating council was set up during 1951 j ) which included the California School Employees Association, i the California State Employees Association, and the League i I of City and County Employees. j I ; In the association year of 1952-53, Robert L. Wales ' i i i was elected president. CSEA met the requirements of the I i State Board of Education in the spring of 1952 and applied i ! | for placement on the list of those organizations approved | for institutional membership in which a board of education may take out membership. Copies of the constitution and by-laws, the Proceedings of the Annual Conference, the ; Education Book, and the Salary Survey were submitted to the i State Board of Education. The association was then recog- nized as an organization whose primary function was the j promotion and advancement of commonly accepted educational |practices. It was also recognized that CSEA was composed i ! of school personnel only, working with the board of educa tion for the betterment of children's education (6s1952). j ! Under the guidance of Dr. William 6. Paden the plan |was put into operation. School boards throughout the state i ware offered the opportunity to become institutional mem bers at a cost based on the average daily attendance of 50 their districts. The fees sere based on the following schedule (6sl952)t Institutional District A.P.A. membership fee j 0 to 2,500 $10.00 | 2,501 to 5,000 20.00 5,001 to 10,000 30.00 10,001 to 20,000 40.00 Over 20,000 50.00 Progress during the year was made when the Califor nia Association of Public School Business Officials invited CSEA to make the annual salary survey a joint venture (1). The year 1953-54 found CSEA moving steadily for ward. Fred H. O'Brien of Long Beach served as president during this year and gave strong leadership to the organi zation. A code of ethics was adopted and publicized in The California Employee. One of the criteria of a t professional group has been the development of a code, and in this forward step CSEA recognized that it was coming of i age as a professional association (5*1953). The code as i |adopted is given below: CODE OF ETHICS School enployees who are in daily contact with many phases of educational work should be persons whose conduct is beyond reproach, and who sincerely 51 believe in the advancement of education and the betterment of working conditional therefore, the California School Employees1 Asaociation propoaea thia Code of Sthica aa a atandard for ita members. AS A SCHOOL EMPLOYEE Z WILL: 1. Be proud of my vocation in order that I nay uee ey beat endeavora to elevate the atandarda of ay poaition so that I may merit a reputation for high quality of aervice— to the end that othera may emulate my example. 2. Be a peraon of integrity, clean qpeech, deair- able peraonal habits, and physical fitness. 3. Be just in my criticism and be generous in my praiae; improve and not destroy. 4. At all times be courteous in my relations with pupils, parents, teachers and others. 5. Be a resourceful peraon who readily adapts him self to different kinds of work and changed condi tions and finds better ways to do things. 6. Conduct myself in a spirit of friendly helpful ness to my fellow employees to the end that I will consider no peraonal success legitimate or ethical which is secured by taking unfair advantage of another. 7. Associate myself with employees of other dis tricts for the purpose of discussing school problems and cooperating in the improvement of public school conditions. 8. Always uphold my obligations as a citizen to my nation, my state, my school district and my commu nity, and give them unswerving loyalty. 9. Always bear in mind that the purpose of CSEA is to promote the efficiency and raise the standards of all school eqployees and that X shall be equally obligated to assist all my fellow workers. (2) A full-time treasurer began to be a primary need the association's rapid growth hadincreased the cash balance to $25,439 and the amount of work required to main- i tain the books had become prohibitive for an elected i official. Plana were made to find a qualified applicant during the annual conference (6x1954). The first "School Bus Roadeo" was held during 1954 | |and it was to become an increasingly competitive annual event. Following the death of Dr. Paden, a memorial j i scholarship was established in his honor. The scholarship I . | was identical in details to the Lawrence Two Axe Scholar- I / ship already being awarded to the son or daughter of a mem ber of CSBA who could qualify for the needed funds (6x1954). i (The change in spelling of the name "Twoaxe" to "Two Axe" was an actual change in the CSEA records when the scholar- J i ship was referred to.) Further reorganization became necessary in the year i c 1954-55 due to the rapid growth in membership and field chapters. The state was divided into fourteen districts in order that better service and communication could be estab lished on a more uniform basis. Mrs. Lois Cox of Antioch was employed as the first paid treasurer of the association following an intensive search for the best qualified appli cant. Lloyd W. Hitchman of Campbell served as president 53 during this year of continued progress. Legislative gains i made ware substantial and included a permissive measure allowing local school boards to grant annual vacations and bereavement leaves to noncertificated employees (6t1955). President Charles J. Kramer died in office on i j March 10, 1956, and he was succeeded by vice President i | Samuel W. Anthes, Jr. This marked the first time in the i association's long history that a chief executive had passed away while in office. The loss to CSEA was a heavy one since Mr. Kramer had served as a strong leader in the struggle to have the State Employees Retirement System integrated with the federal government's Old Age Survivor iand Disability Insurance (social security). The state ilegislature had already begun the necessary work to make this a reality. President Kramer's death once again pointed up the fact that an executive secretary working out of a icentral office was needed. With a cash balance of i j$31,718.55 on hand, the executive committee was directed to j ; j employ an executive secretary within the next six months 1( 2) . i i The salary survey became a joint effort with CAPSBO I | at this time. The idea of institutional memberships began 54 to boar fruit aa 175 enrolled and the increased funds ware allocated to the educational program. Ninety school bus drivers participated in the annual roadeo which was very encouraging to the sponsors. On April 6, 1957, Richard If. Bartlett of Downey was hired as the executive secretary of CSBA. He had an outstanding record in public administration which included experience as the executive secretary of the Los Angeles City Board of Health Commissioners (2). On his assumption of office he found a vigorously growing organization in a strong financial position but badly in need of a source of service to its increasing membership. The financial pic ture was as followss JULY 1. 1956 THROUGH JUNE 30. 1957 Beginning balance $ 4,930.00 Receipts 61.569.71 Total 66,499.71 Disbursed 59.379.21 Ending balance $ 7,102.50 A special fund of 20 per cent of the annual dues | | had been set aside to pay the salary and expenses of an I executive secretary in 1955. Nr. Bartlett's first report to the annual confer- L . . .. . . . . . . . ________________________ .. ____________________ __________________________ 55 • i •net in 1957 emphasized that continued growth would have toj be net with increased service. Bis activities included attendance at twenty-two meetings with district representa tives , chapters, and committee chairmen and he had appeared I . : i 'before an interim committee of the state Senate in the | | first two months of his employment. Samuel W. An the ■ served as president during this i period and accomplishments included the incorporation of the i i California School Employees Association, continued growth to 6,888 members, and 231 contestants entering the annual roadeo. In 1957-58 the association stood poised on the threshold of its big breakthrough in membership growth, legislative achievements, and effectiveness as an instru- i j ment in employee group-employer relatione. With William B. Zinn as president, the association showed a membership | of 7,695 organized in 166 chapters plus 248 institutional | memberships. The financial statement showed a total of j $7,102.50 in the beginning balance plus $83,527.70 in receipts for the year. Disbursements amounted to $75,869.29 f | and a net ending balance of $14,760.91 was on hand for the i i next fiscal year (6*1957). 56 Due* ware raised to seventy-five cents a month at the annual conference * CSBA began to think about renting office space in the new California Teachers Association | building in Burlingame as a move toward closer contacts i with the other educational associations located there. The i t | passing of the term "noncertificated" was noted and the ex- j elusive use of the term "classified employee" began since it was thought that no one liked to be a "non." CSEA de cided to affiliate with the newly formed American Associa tion of Classified School Employees as the idea of an association of classified employees began to spread across the United States (6*1957). i The years of fruition. 1958 to 1963 The year 1957-58 found CSEA nearing the 10,000 membership mark as growth continued at a rapid pace. Plans were being made for a strenuous legislative program that would include many items the organization had tried to have passed for years but had not succeeded in attaining. The constitution and by-laws were being rewritten in prepara- i I tion for a complete reorganization of the state association i | | Plans to rent office space in Burlingame were temporarily [delayed as CSBA prepared for its all-out legislative 57 i i campaign. Clarenca Lawrence of San Pedro waa elected j president, and he prepared to lead the aaaociation into its big efforts, working side by aide with Mr. Bartlett (2). I | In 1958-59 the big push cane. There were 10,268 members enrolled in the association. The legislative pro- i gram had been carefully developed by the association's committees and then it was submitted to the state executive icommittee who carefully reviewed it. The program was then |sent to every chapter and to every educational association l which would be concerned with it. Cooperative support for .the proposed measures was obtained in this manner. When the "smoke had cleared" from Sacramento the following box score became apparentt Bill Disposition AB 579 Passed I I ! i AB 2423 Passed I I j AB 2429 Passed Description Defined "Classified" employees. No minimum or maximum age for employment can be set by a gov- erning board. Maternity leaves may be granted. Provided that all classified employees would receive the same basic benefits j regardless of the school district in which he was employed. Mandatory finger-printing of school district employees. Permissive transfer of unused sick leave if employee leaves one school district to work in another. 58 i I AB 2469 Paind as Coordinated SBRS and OASDI. SB 1328 I AB 2485 Passed Provided for an annual contract | | for classified employees with provisions fbr permanency in districts above 850 ADA. Pro- | vided for the forty-hour week. AB 2486 Passed Minimum sick leave to be granted j by school boards of one day per i month of employment. Provisions! made for pro-rating leave for j part-time employees. AB 2487 Passed Compulsory T.B. examination with; costs paid by the local district; (6s1959) These seven measures, with the three senate bills, 1174, 1328, and 1329, necessary to put A.B. 2469 into operation, made a total score of ten bills introduced and ten bills passed. This unprecedented success caused many observers to pause and take a new look at CSEA. The reasons for the i successes were explained in the October, 1959, edition of j i The California School Employee. Basically, the success was j | explained as being due in large measure to a happy combina- tion of the drive and enthusiasm of Richard Bartlett, the CSEA executive director, and the personal interest of i Assemblywoman Dorothy B. Donahoe, chairman of the powerful I Assembly Education Committee. Miss Donahoe was a long-time r . . . . . . . . . . . . . " ' ' . . . . I 59 i 1 | classified school employee. She understood the problems of I the classified employees better and was more sympathetic to them than any member of either house in the state legis lature (5sl959). Other persons who aided were CTA's legislative advocates, William Barton and Robert McKay; Or. James Corson of CASA; Dr. Robert Cralle, the legislative advocate of CASA; Dr. Lawrence White of CSBA; and state Senator Richard Richards, who sponsored most of the measures in the Senate. The success story in the legislative halls was be ing repeated in CSBA as Mr. Bartlett's proposals for a complete reorganization of the association began to be advanced. It was very apparent that the reorganizational plan would cost money to effect and some bitter debates between the "old guard" of the association and the young executive director began to appear as the time of the annual conference drew near in which the new proposals would be advanced. The executive board voted seven to five for the proposals and it was apparent that the plan would call for some hard work to put it through the voting dele gates at the annual meeting (2). 60 The plan was democratically baaed, aa all reorgani- zatlonal plana for the aaaodation had been In the pant. Bach affiliated chapter in good a tending was to have one | delegate to the annual conference on the baeie of ita I I i | charter and one additional delegate for each fifty members ; or fraction thereof. All chapter delegatee together with menbera of the board of directors, life members, and j i , ! regional representatives were to constitute the voting strength at the annual conference. This delegate assembly was to meet once a year in July and conduct all elections for the officers, approve or disapprove any changes in the constitution or by-laws by a two-thirds vote, approve the annual budget, select life members of the association by a j ; two-thirds vote, and review the yearly progress of the association. Area directors were to be elected by the chapters , within their respective areas. Voting was to be done by |a secret ballot in each chapter which then had one vote for j ! i the candidate having a plurality of votes cast within the chapter. There were six area directors set up to repre sent the chapters within their respective areas, tdiich were i i ! as follows« I ............ .... . ........................ 61 | i Arts A included all chapters in Humboldt, Del i Norte, Siskiyou, Modoc, Trinity, Mendocino, Lake, Glenn, Tehama, Lassen, Shasta, Butte, Plumas, Placer, Nevada, !Sierra, Yuba, Sutter, and Cobesa counties; Area B included all chapters in Yolo, Sacramento, Amador, El Dorado, Twolumme, Calaveras, Alpine, San Joa- i iquin, Contra Costa, Solano, Napa, Sonoma, Marin, Alameda, |and San Francisco counties; Area C included all chapters in Stanislaus, Mari posa, Merced, Madera, Fresno, Inyo, Mono, Tulare, Kern, and Kings counties; Area D included all chapters in San Benito, Monterey, San Luis Obispo, Santa Barbara, Ventura, Santa i ; Clara, San Mateo, and Santa Cruz counties; Area E included all chapters in Los Angeles County;! Area F included all chapters in Orange, Riverside, j | San Diego, San Bernardino, and Imperial counties (6sl959). i * • These geographic areas are shown in Illustration 1 i i j on the following page. ! ! under the reorganirational pattern, a president, i vice president, secretary, and editor of The California School mere to be elected at the annual conference. ILLUSTRATION #1 THE AREAS OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION 63 j Paid field representatives were to be hired and they were i charged with the responsibility of relating and interpret- i | ing the association program to the regional representatives\ I land the field chapters. They were to assist the local ! ! units in matters pertaining to the school board and admin istration (on invitation of the local unit). The field i representatives were charged with the responsibility of | helping to organize new chapters and stimulating membership interest in existing chapters. After the close of the conference of 1961 the board of directors was to include only the elected officers and the junior past president (6*1959). In 1959-60 the reorganization battle was won at the annual conference and Milton Anninos of Burlingame, Keif D. Melberg of Visalia, and William D. Vernon of Pasadena swere selected as the first field representatives. There were then nineteen regional representatives in the organi- ! i I rational pattern of CSEA. The financial picture reflected i ; the strain on the budget as the increase in membership did ! not quite meet the additional expenditures. There was a i I balance on hand at the beginning of the year of $25,402.23, ; and net receipts were $116,657.60 for a total cash balance of $142,059.83. The disbursement* amounted to $142,030.73,1 leaving a balance in the general fund of $29.10 (6*1959). | i i The pattern for the future was now clearly estab lished. The elected officers of CSEA were to become the policy-making body and the executive director would hence- I i I forth serve as the executive officer responsible for carry- | i ! ing out the policy. This pattern streamlined the organiza- i | tional structure and provided for many more direct services i I ; and much more continuity in these needed aids to local chapters. The slogan, "The CSEA Works For You," was at last being put into an operational plan that would bring t the state association into very close contact with the local chapters. Simultaneously with this reorganizational struggle, \ the move into a state office in Burlingame and the employ- ! ment of a central staff to service this office, came the | problem of the next session of the state legislature. The i I overwhelming success of 1959 would have to be followed up I | by another aggressive campaign in order to clear up some j I areas of misunderstanding that had developed and to promote i j further legislation of direct benefit to the classified | employees of the California public schools (2)» 65 ! I The insurance program was expanded in 1960 to in- | i elude an automobile insurance plan that would be controlled by CSEA. Under the plan, a new corporation was set up to be called the Cal Sea Corporation. CSEA purchased 10,000 t shares of stock in the corporation and it became a wholly I ; | owned subsidiary of the association. The program was i i ; j operated in conjunction with TIA,. a company organized by ! i the Southern Section of the California Teachers Association (6i1960). i Other insurance programs sponsored by CSEA at this time included hospital and medical care, life insurance, and income protection. The coming of Salk vaccine had virtually wiped out the polio insurance program (611960). In the 1961 session of the legislature, the Cali fornia School Employees Association sponsored several bills, jOpposed some, and was vitally concerned with others. The l | overwhelming success of 1959 was not duplicated but major | advances were made. A summary of the CSEA sponsored legis- i i I lation in 1961 is contained in Chapter VI of this study. There were nine bills sponsored by CSEA that passed, while two failed. Four other measures affecting the classified school employees that were not sponsored by CSEA but were favored by the association wre also enacted. I The annual conference in 1961 was a beehive of j activity with more business than could be accomplished, so ! < an extra business session had to be conducted in the eve ning. The conference delegates approved a dues increase to $1.00 a month for members, made the editor's position a i i staff position rather than an elected one, and set the | institutional membership fee of a county school superin tendent at a flat $25.00 per year (6s1961). The membership had grown to 18,105 and there were 290 field chapters at this time. Receipts for the fiscal year were $166,754.33, uriiile disbursements were $165,416.40. i The disbursements were broken down into a report explaining where the CSEA "dollarM was spent. The narrative descrip- i tion was included in the 1961 annual conference report, and a summary of the report is as follows: Out of every CSEA dollar, 24$ goes to support the monthly magasine, "The California School Employee." i Those activities necessary to finalize and I carry out adopted policy and program require an other 23$. The organization of new chapters and services necessary for the formation of these chapters con sumes 14$ of every dollar. The effort that is directly expended to aid and assist the chapter units requires 12$ of every CSEA L dollar. 67 The educational program of CSEA is financed by 6-1/24 of every dollar. CSEA's expanded legislative program requires another 6-1/24 of every dollar. The cooperative research program is financed by the expenditure of 64 of every CSEA dollar. Of every dollar spent by CSEA, 44 is required to support the transportation program. The remaining 44 is spent on advertising, insurance, safety, scholarships, and retirement. (6>1961, pp. 122-35) Effective November 1, 1961, Mr. Keif D. Melberg, i | field representative of areas C and D, was promoted to I iassistant executive director, and William H. Stewart, i formerly a field representative of the California School i Boards Association, was appointed as the field director of areas C and D. This change was believed necessary in order to assure an orderly transition of programing should the 'office of executive director be vacated for any reason (2). The association year of 1962-63 began at the annual conference in the Memorial Auditorium, Sacramento, on iJuly 15, 16, 17, and 18, 1962. One of the association's |most dynamic leaders, President Lewis McCall, was reelected i jvery enthusiastically by the assembled delegation. An I j example of the strenuous nature of this position is found i I | in the fact that President McCall had attended 123 meetings |and traveled 36,981 miles in the 1961-62 association year. The financial atatenant re fleeted the increased growth ae ! total receipts amounted to $223,626.88. These revenues j were received from the following sourcess TABLE 4 THE INCOME DOLLAR OF CSEA IN 1961-62 (6>1962) Per cent Source Amount of total Per capita dues $182,264 81.5 Employee ads 7,842 3.5 Contributions 6,285 2.8 Institutional memberships 5,995 2.7 Booth sales 3,820 1.7 Conference 3,710 1.6 Management services 3,130 1.4 Initiation and reinstatement fees 2,980 1.3 Miscellaneous 2,254 1.0 Registration 1,944 .9 Pins 1,316 .6 Interest 1,145 .5 Bonds 594 .24 Stationery 385 .2 Decals 120 .05 Employees1 subscriptions 32 .01 Totals $223,816 100.00 By the 1962 conference the following number of | chapter units had been enrolled under the CSEA insurance | | programs (6tl962)t 69 ! Hospital June 1, 1962 madical Total cihaptars 38 Total members 770 The first year of operation found 527 policies in force under the Cal Sea automobile insurance program which exceeded the initial expectations. The loss ratio had been very favorable, approximately 48 per cent. The membership as of Hay 31, 1962, was 20,638 j enrolled in 329 field chapters. The growth was less than in previous years but it reflected far more stability in ! the membership pattern because very few members were dropped, and dropped chapters were generally absorbed in |newly unified school districts (6cl962). This membership growth pattern is presented in Illustration 2 on the fol- | lowing page. One of the association's methods of giving recog- | nition to members who had given outstanding service to the association was the awarding of life memberships by a two- I |thirds vote at the annual conference. This practice began j i in 1938. The roster of life members is published annually i in The California School Employee. By July of 1962 the Group Income life protection i 106 55 | 3782 1761 i ILLUSTRATION #2 MEMBERSHIP GROWTH -«9«M .urn J%MO J%WO u KW p'H1 ■ ■ .*»o IMP imn LUO mu L _ _ _ _ ion n I9»9 tto* 19*0 I9S7 i f m Iff? 19*0 1991 I9tt IMO IfWK roster of life members w i as follows* Bsrb Pries* Oseil Prior* ■dward A. Bairs* H. N. Chsllis* A. K. Evans* William T. Brown William P. Francis* Hobart Trimlatt Gsorgs Hackett Otto Palunibo Richard 0. Watts Lloyd 6. Hoyt Emma T. Hoffman* M. L. Brazil* Boynton T. Hays Hobart L. Wales F. H. O'Brien William H. Zinn Lloyd W. Hitchman Samuel Anthes, jr. Clarence Lawrence* Irene B. Higgle 0. Dale Xsim Floyd Stewart* Harold Prough Raymond Gilstrap (Not Active) Lawrence Two Axe** John C. Swift** George Luhrsen** Alfred D. Buck** Frank Thomas** C. L. Green** L. C. Sutliff** E. D. Black** Charles J. Kramer** M. Ruth Whitcomb*** Wallace Campbell** *Person retired and no longer working in the public schools. **Person is deceased. ***Person is now an employee of the association. (5*1962) ‘ An honor roll was adopted in 1945 to give recogni- i | tion to persons who had given valuable service to the ' association. The roster of the members elected to the honor roll by July of 1962 was as follows* ] | HONOR ROLL i (Active) i N. L. Brazil* | Charles Downey* Ray Leavitt Howard Leard John Velotta* Lois B. Cox Irene B. Riggle Laura Hilton* 72 Frank R. Sodarlun (Not Active) Betty McKinley Howard Rittenhouse M. Ruth Whitcomb*** Robert Barnes William 6. Faden** Bverett Brown Frank P. Burch** Harold Frough *Ferson retired and no longer working in the public schools. **Ferson is deceased. ***Person is now an enployee of the association. (5tl962) By the 1962-63 association year the organizational \ structure of the California School Employees Association had become operational. Under the organizational structure the policy-making body was the board of directors. This group consisted of the president, first vice president, second vice president, secretary, junior past president, and the six area directors. After policy has been adopted, it must be uniformly practiced in order to be successful. The president of CSEA is responsible for the administration of the program. He directs the activities of the executive director Who, in turn, is the association's full-time manager. Under the supervision of the executive director are the employees ! required to get the job done. ! ! The standing committees of the association consti tute the staff. They serve as advisors on policy require- 73 ! i manta and as aaaiatanta in seeing that the program is carried out. The standing conmittees in 1962 were educa- j | tion, legislation, merit system, insurance, organization, j retirement, research, editorial, transportation, safety, and conference. i j ! The group that services the local chapters is the h ■ iline organization. The field representatives and the j iregional representatives carry out the line functions under i the organizational pattern of CSEA at present. The organi zational structure is presented in chart form in Illustra tion 3 on the following page (5*1963). The 1963 legislative year found CSEA making a determined effort once again. There were eighteen spon- ' sored bills by the association at this session. Ten of the i | proposals were passed, one failed, and .seven were sent to interim study. This session of the legislature thus resulted in many successes for CSEA but also some reversals. Many of these measures are not yet lost, however, and they will i | probably be reintroduced at the 1965 session of the Cali- I | fornia state legislature. i As of May 31, 1963, there were 22,630 members of ! ’ ILLUSTRATION #3 TABLE OF ORGANIZATION CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION POLICY CONFERENCE DELEGATES BOARD OF DIRECTORS t ASSOCIATION PRESIDENT f EXECUTIVE DIRECTOR MAKERS STAFF (PROP. DEVELOP.) r ct*>- - SECRETARY LINE (SERVICE) BUS. MGR.-CONTROLLER ADMIN. ASST. {COMM. COORD.) ~ I--------- STANDING COMMITTEES 1. leoislative 2. RESEARCH 3. INSURANCE 4. 0R0AN1ZATI0N 5. ED. & AOV. 6. EDUCATION 7. SAFETY 8. TRANSPORTATION 9. CONFERENCE 10. SCHOLARSHIP II. RETIREMENT 12. MERIT SYSTEM GENERAL CONTROLLING l-INT.STENO CLK l-CLK.TYPIST 1—CLERK 2-ACCT.CLKS. |-£t ACCT.CLK >UBLIC RELATIONS mo INSURANCE 1-01RECTOR f— |-£ T SEC. l-CLK.TYPIST u DIRECTOR FLD. OPER. FLD. REP. (*) RRs (42) I CHAPTERS 75 ; i i CSEA enrolled in 351 chapter units. The group insurance I program continued to grow. In his annual report to the j membership, Executive Director Richard Bartlett concluded E the report with the following summary: Our growth in membership and chapters has been most gratifying and satisfactory. The Association member ship can pridefully look to both its past and future. Changes have been made in the Association staff structure and staff that should result in improvement in efficiency and services. We have a long "row to hoe" before we are able to provide the type of employer-employee relationships (in local districts) that will insure fair treatment to all. Nevertheless, marked improvements have been recorded. Most of the association's programs have shown marked progress and give every indication of continued improvement. It was a good year! (6s1963) j Chapter summary A small group of custodians from the Oakland I schools organized what is now the California School Em- f ; ployees Association on August 9, 1927. The group was i | primarily organized to sponsor legislation that would pro- t ! vide a retirement income for the nonteaching employees of the public schools. Many years of work, filled with dis- | couragement and very little success, followed. Early dreams of a large organization similar to CTA seemed doomed I to failure as each passing year found a very slight in- I creasein membership. As sarly as 1931 the group had begun to realise : that boom nethod of increasing the status of the nonteach- i ing public school employee had to be found if progress in salaries and benefits were to be made. These depression years were ones of aqple labor sttpply and small demand so ! salaries were low and the potential members could ill j afford to belong. By 1937 the membership had reached | i 2,434 and this represented the high point in the period's i enrollment. In the same year a permissive retirement measure was passed by the state legislature. Legislative triumphs were few and further misfor- |tunes struck the group during the war years when there were only 1,400 members left on the rolls. Various reorganiza- | tional plans were adopted but they all contained the basic I i weakness of trying to operate a growing organization with volunteer, untrained personnel. Shortly after the war, 1 however, the combination of a wave of newcomers to Califor nia which swelled the enrollment of the public schools plus the increased use of school buses made possible an increase j i in potential membership of CSEA. Larger membership brought ! i | increased prestige in the legislative halls and some major i advances began to occur. 77 In 1957 C8BK employed Richard Bartlett of Downey as its executive secretary. Beginning with this forward step, plus reorganisation, the group made giant forward strides each year. The membership in the 1957-58 year was 9,151; by 1962-63 it had reached 22,030. Financial statistics reveal that in 1957-58 the receipts were $61,569.71, and this figure reached $277,654.69 in the 1962-63 year. Great advances were made in the legislative program at the 1959, 1961, and 1963 sessions of the state legisla ture. The growth of the association and the rapid forward progress has laid a firm foundation for future growth as the group prepares to move forward in the thorny field of employee group-employer relations. CHAPTER III | THE PUBLICATIONS PROGRAM OF THE CALIFORNIA i I | SCHOOL EMPLOYEES ASSOCIATION | The School Baplovees Journal i The primary publication of the California School i Employees Association has been a monthly magazine, The j ; School ■wniovees Journal. This magazine has served as the main method of communication between the state office and the local chapters since the first issue was published in 1929. It has been commonly referred to by the association as The Journal, and this shortened form will be used many times in this study. The initial issue of The Journal was published in Los Angeles at the Frank Wiggins Trade School with John c. Swift as editor. The journal was printed on slick white i I 1 paper, eight by six by five inches in size, and did not have a cover page. The motto of the magazine was stated . i to be "We Serve." The opening story detailed the needs of 79 | i the new organization and the purpose of the magazine. Its aims were listed as follows s "The Journal aims to quench the thirst for education, satisfy the longing for edifica- tion, and encourage the need for emancipation." (4sl929) The issue contained some legislative news, an editorial on the objects of CSEA, news from the field {chapters, a few jokes, and some recipes. An analysis of the contents of the first year's iissues revealed that news from the local chapters, inspire- i 1tional messages, and articles on the reasons for joining the new association furnished most of the copy. The cash accounts for the first year revealed that the journals were purchased for two cents a copy and sold ! | for three cents. The sales records indicated that the i { financial status of the magazine was being measured in ! 1 j pennies. In August, 705 copies were sold and fifty-seven I cents in profit was realized; in September, 710 were sold i and forty-seven cents in profit was earned. October's sales amounted to 837 copies and a net profit of $4.92. The November sales of 810 magazines returned a gain of $3.27. I I . 80 TABLE 5 ITEM ANALYSIS OF JOURNALS NUMBER 1 THROUGH 10, VOLUME I, 1929-30 Subject Number of articles Chapter news 56 Inspirational 13 Menbership 10 Mortuary fund 8 Legislation 6 Custodians 5 Journal format 4 Gardeners 1 In September of 1930, the first picture published in the magazine appeared and the first advertisement was inserted in October of the same year. The picture was of the delegates at the Fourth Annual Conference and the advertisement came from the J.A. Meyers Company, Incor porated, manufacturers of the CSEA pin (4*1930). The year 1931 found the magazine increasing in size and in the amount of space being given to in-service train ing programs offered to custodians and engineers. Entire issues were devoted to the all-out effort being made by CSEA at this time to push educational programs for the nonteaching employees. The June issue was devoted entirely i : 81 to the annual conference scheduled for the following month. ! Advertising rates were established in July, in an effort toj i get some revenue to help pay for the cost of the magazine. This rate was set at $10.00 a page. i I Volume V( No. 9, published in September of 1932, j ' began a new size magazine, approximately eight and one-half ! by ten and one-half inches. It had a cover with a picture i of the administration building of the Berkeley school dis- ' trict featured. A table of contents appeared, and the issue contained three pages of advertisements. The content was devoted primarily to courses of instruction for cus todians. An item analysis of the content of the twelve issues published during the year revealed that chapter news, advertisements, and the proposed educational program for . custodians made up the bulk of the magazine. This analysis of the Volume V issues is presented in Table 6. In 1933 an article by "Tommy" Thompson entitled "Are Boys Efficient in Janitor Work" created a real storm. I j In the article. Nr. Thompson had pointed out the savings I 1 that could be made by local districts if high school boys j ! were employed part time. The letters of rebuttal filled several pages in several issues and were unanimously of TABLE 6 ITEM ANALYSIS OF JOURNALS NUMBER 1 THROUGH 12, VOLUME V, 1932-33 Subject i Number of articles Chapter news 70 Advertisements 59 Educational programs for custodians 24 Custodians 15 Membership recruitment 10 Inspirational 5 Gardeners 3 Mortuary fund 3 Annual conference 3 Question box 3 Legislation 1 the opinion that "Tommy" was wrong. A large number of the letters to the editor also were very critical of him for I printing an article of this type at a time when CSEA was ; making a concentrated attempt to raise the status of janitors in the public eye (4:1933). The editor revealed that 7,803 copies of the maga zine had been distributed during the year and he requested I that subscriptions to the magazine be made mandatory for ! I members. This request was complied with at the annual i ; conference in 1934 and the cost of the magazine became part j of the dues. L ........ . .. . . .. ! 83 Throughout 1934 and 1935 the journals featured a great number of articles on the proposed certification pro- gran for nonteaching employees of the public schools. | Pages sere devoted to the requirements established for the i i school custodian credential program. Credentials were to i be issued upon the meeting of requirements in the following j ! fields* (1) custodial-engineer, (2) assistant custodial- i engineer, (3) custodian, (4) assistant custodian, (5) power j plant operator, and (6) heating plant operator (4*1935). The format of the magazine changed again in Novem ber of 1935. It was slightly smaller and the cover was colored rather than being the former black and white. Over 20,000 copies of The Journal were distributed during this year. The contents of The Journal for the next three years were devoted primarily to articles stressing the reasons for the existence of CSEA, the accomplishments of i ! the association that had value for the California public | schools, the aims and purposes of CSEA, and the associa- i ! tion's future program. The three great objectives of the i association were listed as efficiency in service, final i i I reward for long and faithful service, and protection for L . . ..... . . . ... j 84 the next of Xin. In 1937 there were 35,970 copies of the magazine sold and 2,133 given away with a net cost of i I | $2,350 for the eleven issues (4x1937). i I In February of 1939 the magazine1 s name was changed to The California School Employee. William T. Brown be- i j | came the editor and he incorporated several new ideas in ! the magazine. It was increased in size, featured a new, | much more attractive cover, and subscriptions sold for ! $1.00 a year. An article on the school secretary's place in the educational program appeared, the first one after ten years of publication. An attempt was made to have articles by leading educators of the period printed in each ; issue and Or. John A. Sexson was the first to be featured. i ; Articles on the school cafeteria workers also began appear- i j ing. The commonly used shortened form of the new title is > The School Employee, which is used in the discussions that i follow. ! | An analysis of the contents of the ten issues of i i the magazine printed during the year showed that the number I of advertisements had begun to grow and that more and more articles were beginning to appear about the importance of i the annual conference. This analysis is shown in Table 7. 85 TABLE 7 ITEM ANALYSIS OF THE SCHOOL EMPLOYEE # VOLUME IX, NUMBERS 1 THROUGH 10, 1939-40 Subject Number of articles Advertisements 49 Chapter news 29 Annual conference 22 Educational program 17 Items of general interest 13 Index 10 Retirement 10 Civil service 9 Custodian training 8 Recruitment of members 7 Letters to the editor 4 Legislation 3 Organization 3 Cafeteria workers 2 Bus drivers 1 Secretaries 1 The war years reflected the decrease in membership , of the association. Many articles were written stressing i | the need for more members. The magazine was printed on a ! I poor quality of paper as were most magazines during this i j i period. The number of advertisements increased steadily at this time. There were 30,680 copies distributed and ! | $1,289 was received in payment for advertisements during : 1942, 1943, and 1944 (4). 86 The issues for 1942, 1943, and 1944 were very I i sparse not only in content but also in size. The growing j insecurity of the association came more and more into focus I ; as the long-time members left the employment of the public ; schools and went into defense industries. Very few of the | employees hired to replace them joined CSEA. The magazine i highlighted the various membership drives attempted at this time; for example, during 1944 the $1.00 membership fee paid by each new member was given entirely to the local chapter that recruited him. Indications of this trend are noted in Table 8. TABLE 8 ITEM ANALYSIS OF THE SCHOOL EMPLOYEE, VOLUME XV, NUMBERS 1 THROUGH 10, 1945-46 Subject Number of articles Chapter news 126 Advertisements 124 Membership recruitment 23 Inspirational 20 Educational program 12 Annual conference 9 Retirement 5 Custodian training 5 Salaries 5 Status of noncertificated 3 Merit system 2 Legislation 2 Board of directors 2 Annual budcret 2 | 87 i j ! ! A major change in the handling of advertisements ! < I took place at this time. Prior to 1945 a paid solicitor jtdto received 60 per cent of the revenues had been employed. i In 1945 Nr. John Velotta, the association's organization | ! chairman, took over the task of securing advertisements. i The following results were obtained from this methods 1. A much larger volume of advertisements was secured. 2. The advertising was consistent because it was sold on a five or ten month contract basis. 3. The savings in cost were passed on to the advertisers. 4. The net return was in excess of a like amount from the previous method (4sl945). The October issue in 1946 was devoted to an analysis of a threatened strike by unionized noncertificated school employees in Kansas City, Missouri. This was significant because almost all of the prior issues had carried a dis proportionate number of articles dealing with the subject of why the noncertificated employees should belong to the California School Bqployees Association. This edition of the magazine bluntly warned local school boards that it was ; time to examine their peraonnel policies. The concluding I ' I article was a plea to the hoards and administrators to j | i begin to realise that the choice of what hind of an organ- j ; i i ization they would prefer to deal with was at hand. The impact of this series of articles started a ■ new, aggressive approach to the problems of the association. i The articles began to reflect a rebirth of optimism. Mem bership began to increase once again and the climb to the position of a fully recognized association began. It was becoming apparent that the importance of bus drivers, secretaries, cafeteria workers, and gardeners in the association membership had at last been recognized as more articles were written about them. There were still many items written about the training programs for custo dians and maintenance workers, however, as Table 9 indi cates . The editor, Mr. William Zinn, reported that the net ; cost of printing and distributing The School Employee was ! $3,730.79. The cost per year for the editor's salary, i mailing, printing, and postage was $6,085.79 while adver- : tising receipts were $2,353.00. There were 33,500 copies i distributed during the year (4s1950). TABLE 9 ITEM ANALYSIS OF THE 8GBOOL EMPLOYEE, VOLUME XX, NUMBERS 1 THROUGH 10, 1950-51 Subject Number of articles Advertisements 211 Chapter "chatter" 135 Memberehip recruitment 16 Annual conference 16 Custodial and maintenance 13 Inspirational 13 Financial reports 9 Gardening 7 Legislation 6 Educational program 6 Secretaries 6 Transportation 5 Group hospital and medical plan 5 In-service training 4 Service to others 4 Retirement 4 Scholarships 2 Cafeteria 2 Mr. Zinn wrote a series of articles on the mechan ics of getting out a twenty-four page magazine that were of interest. According to the articles, bids for printing were received in the summer. Before the bid was awarded, certain other items of importance were studied such as the distance from the print shop to the engravers, the post office, and the mailers. When a suitable printer in the most advantageous location was found, the bid was awarded i i | to him. The advertising chairman was busy sending back j advertisements all during this time.. i The deadline for materials to be delivered to the i | printer was set as the tenth of the month. By the first of ! the month the ads were made up, the cover had to be ready, an inspirational poem or quotation found for use inside the I front cover and a full-page ad for the back cover. The front and back covers were run in advance. By the sixth of the month the material for the magazine had to be ready to linotype. At this time the amount of "filler" needed was quickly decided upon and a reserve of jokes, conference items, and "lifted" material had to be kept ready for this purpose. All of the material was proofread by the editor, and a dummy copy was constructed. The magazine became a tangible object in the dummy form, which was taken back to the printer; the necessary press setups of type galleys, i I advertisements, and photographic engravings were made, and !the magazine was printed. When the copies were printed, folded, assembled, and stitched they were ready to go to the mailer, who 91 addressed them, put them Into bundles to be delivered to i various post offices throughout the state, and mailed them.! » I j The California School Employee became a modern i : | magazine during this period. The number of copies mailed I | each month jumped to 6,840 in 1954-55, and the following i year the monthly mailout had increased to 8,800. The 1 variety of topics covered increased and a heavy emphasis ; was placed on news from the local chapters. An analysis i i of the contents of Volume XXV revealed this shift in em phasis very clearly, as shown in Table 10. By July of 1958 there were 9,200 copies a month being mailed. The editor, Lloyd W. Hitchman, had taken over the chore of mailing out the publication from his home and some savings on the cost of the magazine were realized. i The mailing lists were constantly in need of correction and a big effort was made by the editor to get all current : addresses and eliminate duplication (5*1958). The April edition of The School Employee for 1958 i clearly indicated that the day of the bus driver had i i arrived as the entire issue was devoted to the annual school bus safety roadeo. The roadeo had become one of the association's most important educational activities. 92 TABLE 10 ITEM ANALYSIS OF THE SCHOOL EMPLOYEE, VOLUME XXV, NUMBERS 1 THROUGH 10, 1955-56 Subject Number of articles Chapter "chatter” 364 Advertisements 115 Roster of officers 34 Annual conference 16 Transportation 15 Reports of state officers 13 Picnics and socials 12 Financial reports 9 Inspirational 9 Insurance 6 Membership recruitment 4 Retirement 4 Legislation 3 Cafeteria 3 Custodial and maintenance 3 Rights of classified employees 3 Salaries 2 Scholarships 2 i i i . School districts noted that participation in these annual { shill tests had added new stature to a valuable group of i * j employees. The roadeo was a yearly event in which bus s l | drivers competed against each other for beautiful silver i | trophies. The competition was based on driving skills, j I jpersonal appearance, safety practices, and a written exami | nation (5s1958). 93 Changes of address remained a vexing problem. The i ! mailing list had to be revised constantly because there i were 3,928 additions, 1,628 drops, and 1,295 changes of | address during the year. The cost of printing the magazine increased sharply to $17,412.33 due to rapidly increasing l | labor and paper costs. The number of copies mailed con- tinued to rise as 10,400 issues were mailed in July con trasted with 9,200 copies mailed in the same month of the preceding year (5*1958). i In 1959 the cycle of increased costs continued. Postage rose from three cents to five cents, the paper used in each magazine increased from nine cents to fourteen cents a pound, and the costs of a mailer's services also went up. The increase in circulation to 11,000 a month i was not enough to offset these rising costs despite every effort of the editor. The budget report of the editor for 1959-60 re- ; vealed the costs of producing the magazine in great detail i i as shown in Table 11. In his report to the annual conference in 1959, the j editor noted the following comparative figures (Table 12) i in the costs of The School Employee. 94 TABLE 11 GOST OF PRINTING THE CALIFORNIA SCHOOL EMPLOYEE IN 1959-60 (6*1959) Subject Estimated Actual Balance Printing $20,000.00 $19,665.97 $339.03 Mailer 1,700.00 1,347.21 152.79 By-laws allowance 300.00 300.00 0 Supplies 200.00 220.88 (20.88) Telephone 85.00 57.15 27.85 Postage 750.00 554.62 195.38 Totals $23,035.00 $22,345.83 $689.17 TABLE 12 COMPARATIVE FIGURES ON THE CALIFORNIA SCHOOL EMPLOYEE FOR 1956 TO 1960 (6*1959) Total budget Total number Average num Printing Year spent copies ber pages costs 1956-57 $16,125.21 92,310 25.6 $14,527.63 1957-58 19,215.37 95,100 26.0 17,732.08 1958-59 16,226.69 110,900 26.2 14,037.33 1959-60 23,027.58 139,100 28.6 19,665.97 The magazine steadily moved toward its present j I format during this period. The largest proportion of news was contained in chapter "chatter," a section devoted to i I inews about the field units with material submitted by the I chapters' reporters. The increasing importance of the 95 various group insurance programs also began to become apparent. The character of the contents of The School Employee for 1960-61 is revealed in Table 13. TABLE 13 ITEM ANALYSIS OF THE SCHOOL EMPLOYEE, VOLUME XXX, NUMBERS 1 THROUGH 10, 1960-61 Subject Number of articles Chapter "chatter" 539 Advertisements 157 Transportation 27 Lists of state officers and chapters 25 Annual conference 19 Organization 13 Messages from officers 9 Safety 9 Cafeteria 7 Group insurance 7 In-service training 7 Regional meetings 6 Recruitment 4 Socials 4 Scholarships 3 Legislation 2 It should be noted that in legislative years there were many articles written about the progress of CSEA I isponsored legislation and the status of the various bills. i i The analysis of the magazines at five-year intervals indi- t j cated trends toward a definite pattern of the contents of 96 i B w School Employee which would hold true generally if the ! i reader were to make allowances for the fact that many more | articles on legislation appeared over the five-year period : • than the tables indicate for any given year, i | The period between 1961 and 1963 was a time of i ! rapid growth for the association. The number of magazines j ; mailed in the year 1960-61 reached 179,865. By the 1961-62 :year no report was given to the annual conference but it is assumed that since the printing costs rose from $35,847.13 in 1961 to $42,500.00 budgeted for 1963-64 there was a large increase in the circulation. The recent issues of I The School Employee have devoted more space to the annual conference, the reorganization of CSEA complete with a table of organization, travel tours to Hawaii for members, t |and legislation. The advertisements reflect this change in l format as two full-page ads were run in current (1963) : issues on the CSEA sponsored insurance programs. Another | feature of interest is a two-page report of the actions of } the board of directors. This new feature attempts to keep | the membership informed on a current basis as to what : transpired at the meeting of the board of directors pre ceding the printing of the magazine. 97 I I An analysis of the number of items contained in each volume of the magazine at five-year intervals reveals t l the following pattern of developments i TABLE 14 COMPARISON OF THE CONTENTS OF THE CALIFORNIA SCHOOL EMPLOYEE FROM 1929 TO 1960 1929- 1932- 1939- 1945- 1950- 1955- 1960- Subject 1930 1933 1940 1946 1951 1956 1961 Chapter "chatter■ 56 70 29 126 135 364 539 Advertisements 59 49 124 211 115 157 Transportation 1 5 15 27 Officer lists 34 25 Annual conference 3 22 9 16 16 19 Organisation 3 13 Safety 9 Cafeteria workers 2 2 3 7 Group insurance 5 6 7 In-service train ing 24 17 12 4 7 Recruitment 10 10 7 23 16 4 4 Scholarships 2 2 3 Legislation 6 1 3 2 6 3 2 Custodians 5 15 8 5 13 3 An examination of Table 14 reveals very clearly ! the increased space being given to news about the local i chapters and advertisements. There is a decrease in the i |number of articles concerned with in-service training, | recruitment of members, and custodians. 96 i The California School Bnplovae of 1963 has become a i vary attractive and well written magazine. A new editor, Mr. Ron Bouck, began service as publications manager of !CSEA in February, 1964. Nr. Bouck has a fine background in |editorial, advertising, and publication production. The ! employment of a specialist, it is hoped, will lead to a ; i ibigger and better journal in the near future. The yearly salary survey i I In March of 1947, the research committee of CSEA began what was to become an annual survey of the salaries paid classified employees in the California public schools. The results of the survey were widely distributed through out California. In 1954 the survey became a joint effort with the California Association of Public School Business Officials. The report of the survey has grown from a twelve-page mimeographed booklet to a 202-page report. It ;is a very detailed analysis of the salaries paid for six- I i |teen basic jobs traditionally found in school districts. I iEach year, the Survey of Salaries is printed and distrib- i uted to chapters of CSEA and to members of GAPSBO. I The procedure followed in collecting the data used in the survey involves mailing a questionnaire to a 99 representative sample of the largest school districts in the state. In 1962 this involved 346 questionnaires mailedj to the sample and a return from 285 districts in which 46,926 classified personnel were employed. The results | were carefully tabulated and central tendency data in the i salary range for sixteen basic jobs were computed. There i was a wide variation in salary ranges found in different ! parts of the state so the committee urged caution in the use of the data reported in the survey without reference to the movement of the wage pattern in private industry in the !community in \rtiich a particular district was located. The purpose of the survey was to present a compila tion of factual data concerning salaries currently being paid in the participating districts. Additionally, infor- j 1mation is included relating to group benefits such as health insurance, life insurance, and long service recogni tion. In 1962 it was reported that 44 per cent of the surveyed districts provided some type of major medical | health and hospital insurance with 18.6 per cent of the i i : districts making sane contribution toward the premium. An i !additional 49 per cent of the districts reported having a basic plan without the major medical rider. Eighty-eight ! ........ - 100 I districts had a provision for life insurance coverage. Recognition for long service was provided in 72 per cent | « I of the reporting districts by granting additional vacation; 16.5 per cent recognize long service by additional pay. I I | The Survey of Salaries for 1962-63« Classified Employees in California Public Schools was provided free of charge to i each institutional member of CSEA and sold for $6.00 plus : 4 per cent tax to other districts. It was distributed to all chapters of CSEA and to the California Association of Public School Business Officials members. The material contained in the salary survey is used extensively in salary determinations for classified employees of many local school districts. i The report of the annual conference Each year since 1927, a report of all proceedings at the annual conference of CSEA has been printed and j distributed to the local chapters of the association. This 1 ; report is an accurate compilation of the complete proceed- j j ings of the business portions of the conference and it pro vides a valuable record of the important decisions made in the annual meeting of the delegate assembly of CSEA. ! ioi ! Chapter IV of this study is devoted to an analysis of the I : thirty-seven annual conference reports. i i ! | The annual conference educational | program I Since 1949 a report has been published of the ! ! educational program presented at the annual conference of I CSEA. This report is sent to all chapters and to all ! institutional members. A complete transcription is made ! of the speeches and presentations delivered to the various sections, or panels, Which the conference delegates attend. The constitution and by-laws Each time the constitution and by-laws of CSEA are revised, a new revision is printed and distributed to the membership. The 1963 revision is printed in a three and one-half by five and one-half inch handbook and it contains thirty pages. The inside of the front cover contains the association's code of ethics. | Miscellaneous publications | Other publications of the California School Employees Association include a handbook entitled "County i Institutes for Classified Employees," a brochure entitled L . ... . . . . . . . . . . . . 102 i i "CSEA Works For You," and special legislative news releases devoted to the status of legislation sponsored by the j association. These legislative news releases are issued when the state legislature is in session. Chapter summary The publications program of CSEA for many years con sisted of a magazine named The School Employees Journal in the beginning year of 1929 and changed to The California School Employee in 1939. This journal has served as the association's official medium of communication with each individual member from its earliest days. The editor was an elected official until 1961 when the position was filled by a paid employee due to the increased workload. An anal ysis of the contents of the journals over the years clearly reveals the trend from a small and struggling group to a more mature, confident, and growing association secure in its increasing strength. The purposes for which the maga zine was established have been fulfilled consistently over the years by a group of elected editors who gave service far beyond the call of duty. Other publications of CSEA are the reports of the annual salary surveys, of the annual tconferences, and the annual conference educational programs. CHAPTER IV THE ANNUAL CONFERENCES OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION The founding years The First Annual Conference.— An interested com mittee of nine custodians plus Mr. William P. Schwartz, an attorney, met in Oakland, California, on August 9, 1927, with the stated purpose of drawing up a temporary consti tution and by-laws for a proposed association of public school custodians. In attendance were* Mr. L. Twoaxe, president, Oakland School Janitors Association Mr. W. P. Schwartz, secretary of the committee Mr. J. C. Swift, president, Los Angeles School Janitors Association Mr. H. K. Hall, president, San Jose Custodians Association 103 Nr. S. J. Hagerman, secretary, Oakland School Janitors Association j Mrs. Mary Bradley, natron. Technical High School, Oakland Mr. C. Gove, past president, Oakland School Janitors Association Mr. V. Steahle, past president, Oakland School Janitors Association Mr. G. B. Aldrich, past president, Oakland School Janitors Association Mr. E. R. Torrence, president, Alameda Association of School Janitors After three days of deliberation the first consti tution and by-laws were adopted (see Appendix A) • It was noted in the minutes of the first conference that "each Article and Section was taken up separately and discussed, and on* a motion being regularly made, recorded, and carried, each and every Article and Section of the Constitution and By-Laws was adopted separately." (3) In Article I, section 1, the organization was named the California Public School Custodians Association. Its stated object was "the uniting of all California School 105 i !Custodians into one Association as a means of securing a ; I retirement system for aged and disabled custodians and all i j ♦ i other benefits for the good and welfare of all public school custodians within the State of California.*1 Article III, section 1, provided for the election of officers at the annual conference. Officers chosen for the following year were as follows (3): President.......... Twoaxe, Oakland Vice president . . . . J. C. Swift, Los Angeles Secretary.......... Treasurer.......... Hodge, Los Angeles The minutes show that Nas it was getting late in the night, it was regularly moved by Mr. Gove, seconded by Mr. Aldrich and carried, there being only one Officer nominated for each office, that the Officers be elected by acclaimation.1 * (3) The constitution provided that "meetings of the Association shall be held annually at such time and place as shall be selected by the Executive Committee. Those members present at each session of such Conference shall constitute a quorum." (3) The order of business at the annual conference was ! as stipulated in the by-laws to be as follows s ! | 1. Call of the Roll. | 2. Reading of the minutes of the last session. I 3. Address of the President. 4. Report of the Treasurer. 5. Report of the Secretary. 6. Report of the Executive Committee. 7. Report of the Standing Committees in the order named in Article III, section 3, of the Consti tution. 8. Reports of Special Committees. 9. Unfinished Business. 10. New Business. (3) One further item of importance was added to the by laws which stressed that the president and first vice pres ident should be chosen from different parts of the state— one from the north and one from the south. This meeting was later called the First Annual Con ference of the California Public School Custodians Associa tion. : The pioneer period. 1928 to 1931 The Second Annual Conference.— The Second Annual i ; i Conference was called to order by President Lawrence Twoaxe | in Los Angeles on July 12, 1928. The meeting opened with a i i banquet at the Los Angeles Chamber of Commerce and there j | were twenty-seven delegates in attendance. The president reported that chapters established during the year included 107 Long Beach, Glendale, Sacramento, San Joaquin, Stanislaus, Fresno, Hollywood, Bay Cities, Harbor, Santa Rosa, and |Alhambra. His progress report revealed that progress was made during the year inasmuch as several groups ware added to the lists, . . . the state officers made many visits to the surrounding districts, traveling as far north as Ukiah, and as far south as San Diego, all this being without thought of remuneration, their objective being to have the Association established in as many dis tricts as possible, these visits created untold interest in our cause, and in some places, much opposition, in some districts organizers were told they were revolutionary, but all setbacks goaded the officers to greater efforts. (6tl928) The program for the conference featured J. C. Swift, E. J. Schwingen, G. Wright, and G. W. Nickell. They spoke on topics such ass organization— present and pro spective; retirement and the mortuary fund; custodians; and personal work for the growth of the association. Officers elected for 1928-29 were as follows (6*1928)t President............John C. Swift, Los Angeles Vice president . . . . E. J. Schwingen, Oakland Secretary............C. R. Tillison, Long Beach Secretary of the mortuary fund. . . . A. Burrows, Long Beach Treasurer A. H. West, Oakland 108 ! I Bight second vice presidents were appointed to assist in the work of organizing local chapters wherever possible. ! The conference closed on a happy note as it was reported that S.B. 511 had passed during the year. This i i ! was an enabling act permitting a district employing 500 or j I more teachers to adopt a retirement plan for its employees (6i1928). The Third Annual Conference.— Sacramento was the scene of the Third Annual Conference. The dates were July 10, 11, and 12, 1929. Nineteen delegates were on hand to hear President Swift report on the progress made by the association in the preceding year. His report revealed that the association had gained 860 new members and that it was now 1,932 strong. A highlight of the conference was an address by state Senator Inman, sponsor of S.B. 511, who encouraged i the group by saying that he would be pleased to sponsor any ; legislation desired by the school employees (6x1929). i The legislation committee reported that S.B. 511 ; had been a joint effort with Mr. R. W. Everett, president j I of the Northern Section of the California Teachers Associa tion. The main provisions of the act werex (1) The plan 109 ; i was permissive in districts employing 500 or more teachers;j (2) Employees could retire at age seventy if they had twenty years or more of service in the district? (3) Dis- ! i ability could be collected after ten years of service in | the district? and (4) The contributions required were 8 per | t i cent of the salary earned by the employee with the district! | ■ ! paying 4 per cent and the employee 4 per cent. The bill i ! had been drafted by Attorney W. P. Schwartz, a paid legis- ; lative advocate of the association (6*1929). Changes adopted in the by-laws raised the member ship assessments from five centB to ten cents a month; the name of the association was changed to the California School Employees Association in order to allow all non teaching employees of the public schools to become members; and a membership pin was adopted. Officers elected for 1929-30 included the follow ing (6*1929)* President............John C. Swift, Los Angeles Vice president . . . . E. J. Schwingen, Oakland | i Secretary............W. E. Magee, Tujunga Secretary of the mortuary fund. ... A. Burrows, Long Beach i { Treasurer............. A. J. Allcock, Venice 110 Financial secretary. . A. J. Allcock, Venice Editor..............John C. Swift, Los Angeles The committee chairmen chosen were as follows t Legislation..........W. P. Schwartz Publicity............D. Fowler Auditing............G. W. Nickel 1 Executive board. . . . Lawrence Twoaxe (6s1929) The Fourth Annual Conference.— The Fourth Annual Conference met at the Hotel Fresno on July 10f 11, and 12, 1930. Mayor Leymel welcomed the delegates and stressed his best wishes for the continued success of this worthwhile association. President Swift revealed that more coopera tion was needed on the part of the officers and the com mittee chairmen if CSEA was to grow to the size that it should. He noted that chapters had been formed in Rich mond, Berkeley, Pomona, and Riverside during the past year (6sl930). Recognition of the new association had reached as far as Pierre, South Dakota, and a letter was received from the superintendent there stating that he believed "the organization had a real place in the educational field." This letter created a considerable amount of enthusiasm Ill and led to 500 letters being sent nationwide listing the benefits to be obtained from an association such as CSEA. the enthusiasm of the group created a great deal of talk concerning the formation of a national association (6s1930). Officers elected for the 1930-31 year were as fol lows (6s1930)t President............John C. Swift, Los Angeles Vice president • . • . E. J. Schwingen, Oakland Secretary............W. E. Magee, Tujunga Secretary of the mortuary fund. • . . Ben Burns Treasurer...........A. J. Allcock, Venice Financial secretary. . G. If. Nickell, Oakland Editor............. John C. Swift, Los Angeles Committee chairmen appointed were as follows (6sl930)s Executive committee. . Lawrence Twoaxe Legislation.........W. P. Schwartz Publicity...........D. Fowler Auditing...........G. If. Nickell Ten years of struggle. 1931 to 1940 The Fifth Annual Conference.— The Fifth Annual Conference was held in Long Beach on July 5, 6, and 7, 1931. It was a noteworthy conference in that the educa tional program of the association was adopted and it in cluded the following goals* 1. To have men trained as instructors in custodian service. 2. To establish schools on instruction throughout the state. 3. To develop a plan of certification to be based on a standard of efficiency and experience (6*1931). A legislative program was decided upon and included the following objectives* 1. The drafting of suitable local legislation in conjunction with S.B. 511. 2. The sponsoring of legislation that would allow all school employees to be under the direct jurisdiction of the State Department of Public Instruction. 3. The advocating of state legislation that would establish insurance for all school employees (6*1931). r 113 j This conference was held in a public school as so many of the early conferences were. Only seventeen dele gates attended and they were in a subdued mood since their proposed amendments to S.B. 511 which would have extended permissive retirement systems to smaller districts had been tabled by the Senate Education Committee in May. They agreed to increase membership assessments to fifteen cents a month, welcomed one new chapter— San Fernando, and elected the following officers for the coming year (6 *1931)* President............ George J. Luhrsen, Tracy Vice president .... A. 0. Buck, Glendale Secretary. .......... Secretary of the mortuary fund. . . . 0. P. Richardson, Alhambra Treasurer............ Editor .............. John C. Swift, Los Angeles The committee chairmen selected for 1931-32 were follows <6sl931): Executive committee. . Lawrence Twoaxe Legislation.......... Publicity............ Education............ Professor R. R. Hammersley Auditing ............ Sixth Annual Conftewce. — The Sixth Annual Con- i ference was held in Stockton on July 6, 7, and 8, 1932. i ; i |Mr. Ben Mallory of the Department of Vocational Training, University of California at Berkeley, was the principal i i |speaker. The theme of his talk concerned the great need and value of scientific training for custodians. Some of the delegates challenged the retaining fee of $25.00 a month paid Mr. William Schwartz, the associa tion's counselor. A motion to discontinue his services lost by a narrow majority. Officers elected for the 1932-33 year were as fol lows (6x1932)t President............. George J. Luhrsen, Tracy Vice president .... 0. E. McNutt, Long Beach Secretary. ...... A. D. Buck, Glendale Secretary of the mortuary fund. . . . 0. R. Richardson, Alhambra Treasurer............A. J. Allcock, Venice Financial secretary. . G. W. Nickell, Oakland Editor .............. Frank Thomas, Berkeley | Counselor............ W. P. Schwartz, Oakland i The Seventh Annual Conference.— An air of fear and ! suspicion was evident at the Seventh Annual Conference held, 115 | In San Diago on July 6, 7, and 8, 1933. The depression j j years were being reflected in pay cuts, lay-offs, longer i hours, and fewer benefits for the school employees of the state. The new association seemed to be of very little help to the struggling nonteaching school employee. Even in the face of adversity, however, the dedicated officers had continued to work and eleven new units were formed during the year. Total association membership had fallen to 546 members in good standing. A cheerful note was added to the conference when a committee from Los Angeles that had been formed to help find work for assistant custodians laid off during the summer months reported it had been able to help over 300 men find part-time employment. The annual motion to dispense with the services of Attorney William P. Schwartz lost ten to twelve (6t1933). The following officers were elected for the 1933-34 year (6*1933): President........ Luhrsen, Tracy Vice president . . • o • • E. McNutt, Long Beach Secretary........ Buck, Glendale Secretary of the mortuary fund. • . . 0 • P. Richardson, Alhambra Treasurer........ Glotfelty, Patterson Editor .............. Frank Thomas, Berkeley Counselor............W* P. Schwartz, Oakland Committee chairmen appointed for the year were as follows (6>1933)> Executive committee. • L. P. 0*Reilly Legislation..........W. P. Schwartz Education............Professor R. R. Hammersley Auditing............C. A. Stonebreaker The Eighth Annual Conference.— A new feature of the Eighth Annual Conference was the division of the meetings into business sessions in the morning and educational meet ings in the afternoons. Exhibitors secured booth space and appeared on the program for the first time at this confer- v ence. A change in the constitution took away the power of the president to appoint a large minority of the executive board. The change provided that the elective officers plus the chairmen of the legislation, education, and organiza tion committees would compose the executive committee of CSEA (6 >1934). The programs for the conference were de voted largely to topics such as retirement plans, certifi cation programs, civil service for state employees, and demonstrations of custodial aids. The speakers were drawn ilargely from the ranks of the delegatee. i Officers elected for the 1934-35 year were ae fol low* (6*1934): President. ...... George J. Luhrsen, Tracy Vice president .... Edward A. Haire, Hollywood Secretary. ••••.. Edgar Elder, Los Angeles Secretary of the mortuary fund. . . . Edward A. Haire, Hollywood Treasurer. ...... A. D. Glotfelty, Patterson Assistant treasurer. . Curt Green, Modesto Editor .............. Frank Thomas, Berkeley Counselor............W. P. Schwartz, Oakland The Hinth Annual Conference.— The Ninth Annual Con ference held on July 8, 9, and 10, 1935, opened with the largest number of delegates in the association's history. The credentials committee reported that fifty-four dele gates were on hand at the Hollywood Masonic Temple when the meeting was called to order on July 8. President Luhrsen gave a summary of his four years as president of the asso ciation in his opening address and noted that the associa tion had grown from 400 to 2,100 members during his terms of office (6sl935). The legislative efforts of CSEA had enjoyed some 118 success during the year and A.B. 999, a permissive Civil Service Act, was even then on Governor Merriam's desk awaiting his signature. One setback occurred during the year When the state Supreme Court ruled the permissive retirement system established by the state legislature to be unconstitutional (6s1935). The delegates authorized the issuance of charters to the ladies' auxiliaries at this conference in order that they could be officially recognized at any future confer ence. Past President Lawrence Twoaxe appealed to the group to establish a campsite at Yosemite for members and to establish a home for retired members. Both proposals died for lack of funds. Eleven new chapters were formed during the year and President Luhrsen thus ended four long and difficult years as state president of CSEA on an optimistic note (6:1935). Officers elected for the 1935-36 year were as follows (6:1935): President .Edward A. Haire, Hollywood Vice president . . . . Al K. Evans, Berkeley Secretary .Edward Elder, Los Angeles Treasurer .Curt Green, Modesto ' ■ 1 119 Editor .............. Frank Thomas, Berkeley i « i i The Tenth Annual Conference.— The Tenth Annual Con- — — — — — — — — i |ference was called to order by President Edward A. Haire |on the morning of July 6, 1936, in Sacramento, California. The credentials committee reported fifty-two delegates and twelve officers plus committee chairmen on hand to greet the mayor of Sacramento as he gave his address of welcome. President Haire was very optimistic in his report to the members because of the success of CSEA in getting the State Board of Education to approve of a certification plan for classified enqployees. The governor was also re ported to have signed the permissive Civil Service Act so Borne major goals appeared to have been achieved (6:1936). The annual conferences at this time were very much concerned with the business aspects of the association. On the first day the program included the welcoming speeches, the officers' reports, committee reports, and the annual banquet (6:1936). The second day consisted of more committee reports, an address on school maintenance, and an evening dance. The third and final day was devoted to the business session, voting on resolutions, and the election of officers for the 120 ensuing year. There were twelve exhibitors at the 1936 conference (611936). Officers elected for the 1936-37 year were as follows (6i1936)i President............Edward A. Haire, Hollywood Vice president ....AIK. Evans, Berkeley Secretary.*..........C. H. Prior, Compton Treasurer............C. L. Green, Modesto Editor .............. Frank Thomas, Berkeley The following committee chairmen were selected for this period (6*1936)t Executive committee. . George J. Luhrsen Advisory committee . . H. M. Chellis Legislation........... E.B. Savoie Education............H. H. Price, Organization........Clyde Hamilton Civil service........W. P. Francis Organizer............Robert Trimlett There was a very lively time in selecting the city for the next conference. Mr. Boynton, superintendent of schools in Santa Monica, took a plane to Sacramento in order to help get the conference voted to Santa Monica for tht following yemr (6*1936). The Eleventh Annual Conference.— The 1937-38 con ference in Santa Monica was another one of apparent prog ress. There were ninety-one voting delegates on hand on the morning of July 12, when President Haire began the annual meeting. Major achievements made during the year included (1) the adopting of civil service by Los Angeles City; (2) the passage of S.B. 799, a new type of permissive retirement; (3) the approach of certification for nonteach ing employees of the public schools of California; and (4) the organization of seventeen new chapters. Even though the nation was in the depths of the depression, CSEA felt that its future was secured, and enthusiastic plans for progress were vigorously laid (6*1937). President Haire recommended a program for the 1937-38 association year that included (1) mandatory civil service; (2) mandatory retirement; (3) the forty-hour week; and (4) a minimum wage scale for every classified position. This was an optimistic program When the times in which it was adopted are considered. For example, the California Association of School Administrators revealed that in 1937 things ware not very good for it, when it was reported* 122 "The treasurer's report, given lay R. B. Walters, showed no i * ! income whatsoever during the past year. However, the total i , expenses for the year were only $11.78." (59*94) At this conference the practice of having business t ' in the morning and educational programs in the afternoon was emphasized. Programs included* "Custodian Allotments," H. M. Chellis, Los Angeles City schools* "Heating, Venti lating, and Air Conditioning," Art Hess, Prank Wiggins Trade School* "Retirement," Paul Shaffer, A.T.O.L.A.* "Civil Service," Dr. John Pfiffner, Civil Service Commis sion (6*1937). The officers elected for the 1937-38 year-were as follows (6*1937)* President............A. K. Evans, Berkeley Vice president . . . . C. H. Prior, Compton Secretary............Ralph Boyden, Alhambra Treasurer............C. L. Green, Modesto Editor .............. Frank Thomas, Berkeley The list of counittees increased to include the followings advisory, ladies auxiliary, civil service, education and certification, insurance, wages and hours, legislation, historical, organization, publicity, and retirement (611937). An all-out campaign for mandatory civil aervice was i instituted during the year Which showed every indication of success. i The Twelfth Annual Conference.— A notable feature of the Twelfth Annual Conference was the adoption of a policy to set all conference business for the morning sessions and the educational and recreational sessions for the afternoons. Many fine programs were provided urtiich included addresses from Percy Sherbourne of San Jose, H. M. Chellis of Los Angeles, and F. Collins of Whittier. The delegates were inspired by addresses presented by Congress man Byron Scott; Mr. Roy Becker, president of the Los Angeles City Board of Education; and Dr. Dexter of Sacra mento. An achievement in the courts was celebrated at the conference. A.B. 799, a permissive retirement law, had been upheld in a superior court decision, reversed in an appelate court, and held to be constitutional in the state Supreme Court. This was the association's first triumph in the state Supreme Court and the membership was understand ably elated (6x1938). Officers elected for the 1938-39 year included the following (6:1938): President............Al K. Evans, Berkeley Vice president .... W. P. Francis, Los Angeles Seqretary............. Mrs. Deane Wallace, Santa Monica Treasurer............C. L. Green, Modesto Editor..............Frank Thomas, Berkeley Executive secretary. • Kenneth Stromquist The Thirteenth Annual Conference.— The Thirteenth Annual Conference was held in San Jose on July 10, 11, and 12, 1939, with Mr. Al K. Evans of Berkeley presiding. The credentials committee reported that there were seventy- eight delegates representing forty-six of the sixty affili ated chapters on hand (6:1939). The educational program at this conference was of a far more diversified nature than before and it was very carefully reported by the secretary, Mrs. Deane Wallace. The following topics were covered: "Cooperation or Isolation— The Course of America in World Affairs," Dr. Charles Aikin, University of California at Berkeley; "Beating Fuel Economy," Frank Thomas, Superintendent of Buildings and Grounds, Berkeley; "School Building Gperations," Arthur Smith, Foreman of Operations, Pasadena; "Pupil Transportation," Paul Hull, Transportation Supervisor, San Mateo? "Problems of the Cafeteria Worker," Mrs. Sarah Dawdle, Professor of Home Economics, San Jose State College? "Leadership," Dr. T. W. McQuarrie, President, San Jose State College? "The School Secretary, Her Duties and Responsibili ties," A. H. Harrell, Assistant Superintendent, San Jose City School District? "Care of the Swimming Pool," C. L. Culbertson, Pool Operator, San Jose City School District? "Association Trends," William T. Brown, Instructor, Frank Wiggins Trade School? "Garden Problems," Clifford Stuefloaten, Herbert Hoover Junior High, San Jose. (6x1939) The report of the legislation committee revealed that A.B. 2248, mandatory civil service, was killed in the Senate Education Committee by a four to three vote. This bill had successfully passed the Assembly. Other gains were made, however, such as more liberal retirement pro visions and paid sick leave. Legislation against permissive civil service was defeated after an all-out effort by Attorney J. Hamlyn of Sacramento who had been hired as the legislative advocate of CSEA for the session (6x1939). The following officers were elected for the ensuing year of 1939-40 (6x1939)x President.............W.P. Francis, Los Angeles Vice president .... Charles Downey, San Jose 126 i | Secretary............Mrs. Deane Wallace, Santa Monica Treasurer............G. L. Green, Modesto Editor..............Ed Wilson, Los Angeles The fourteenth Annual Conference.— Los Angeles was ; the scene of the Fourteenth Annual Conference held on ; July 8, 9, and 10, 1940. There were sixty-six delegates, five officers, three past presidents, two life members, and four committee chairmen on hand making a voting strength of eighty (6x1940). The educational program continued at the high level established the previous year and included the following topless Mr. Harry Howell, Assistant Superintendent, Los Angeles City Schools, "Economic Security for School District Employees”; Mrs. Rhoda Tracy, Metropolitan School of Business, "What is a Successful Business Person ality?" Mr. John Vosberg, Landscape Gardening Instruc tor, Frank Wiggins Trade School, "Ground Mainte nance"; Mr. Herb Price, Chief Engineer, Berkeley High School, "Beating Plant Operations"; Mr. H. M. Chellis, Director of Operations, Los Angeles City Schools, "Allocation of Manpower”; , Mr. F. D. Sweger, Chief of Housing and Sanita tion, Los Angeles City Health Department, "Handling Food in Cafeterias”; Mr. Edward A. Haire, Operations Inspector, Los Angeles City Schools, "Legislation for the Future"; _j j Nr. Arthur Smith, Custodian Supervisor, _ _ j Pasadena Schools, "School Building Operation and Maintenance"i Mr. Jesse Blair, Instructor, Frank Wiggins Trade School, "Principles of Air Conditioning." (6tl940) The delegates to the conference believed that the j educational program offered at this session was the finest i ever. Progress was being made on all phases of the asso ciation's program but the fact was noted that receipts dur- :ing the year had dropped to $5,861.02, the lowest in years. The magazine at this time had been completely changed and ! was a most professional appearing publication, the com- ! mittees were operating well, two social groups formed in side the association— the "Oilers" in the north and the "Boosters" in the south— were very active, so on the sur face at least C8BA should have been surging forward rapidly (6s1940). The officers elected for the 1940-41 association year were as follows (6sl940)s President............W. P. Francis, Los Angeles Vice president .... Charles Downey, San Jose Secretary............Claude Marona Treasurer............C. L. Green, Modesto M i tor .... . . • . Mward A. Haire, Hollywood 128 The voting for the site of the next conference resulted in thirty-nine votes for Stockton end thirty-eight i t I votes for 8anta Crus. This was the closest margin in the f i history of the association on a conference location selec- i tion (6i1940). I j The war years j The world situation began having a serious effect - on CSEA as the opening of war in Europe began the period of i national emergency in the United States. The Fifteenth Annual Conference.— The number of voting delegates at the Fifteenth Annual Conference was reduced to seventy-one and all reports reflected the un easiness of the nation. The number of educational programs was reduced to three but many more speakers exhorted the group to further efforts in preparedness for the future. The greatest legislative effort that the association had yet attempted was completed during the year with many major i gains (6s1941). These gains will be treated more fully in a later chapter of this paper. The problem of hiring an executive secretary once again became a matter of importance and Nr. Claude Marona 1 was employed as of October 1, 1941. Each chapter was askedi 129 i to contribute $2.00 per member to pay his salary. The officers elected for 1941-42 were as follows (6:1941): President............. Frank Thomas, Berkeley Vice president . . . . N. L. Phillips, Long Beach Secretary............ Nr. Shildroth, Pasadena Treasurer............ C. L. Green, Modesto Editor .............. Edward Black, Compton The Sixteenth Annual Conference.— The Sixteenth i Annual Conference was held in Long Beach on July 6, 7, and 8, 1942, with the executive secretary, Claude Marona, acting as conference chairman. There were 103 voting dele gates on hand to take part in the decisions that would be 'necessary to steer the association through the difficult i years ahead. The reports of the committees revealed that j twelve new chapters were formed, fifteen of the larger dis tricts had adopted a retirement system for their nonteach ing employees, receipts had risen to $9,114.48, and in j general, emphasized that the California School Employees j Association was growing in numbers, prestige, and service i ! to its mashers (6:1942). i The programs held in the afternoons revealed the concern of the association with the war effort. They were 130 as follows* Mr. Osborns Garber, Text Book Author, "Nagle in Shorthand” ; . Mr. Carl Muller, California Highway Patrol, "The Driver and the Code" ; Mr. Waldo J. Norra, Bank of America, "Stream - | lining Your Business Letter" ; Nr. Douglas Boone, Ass't Purchasing Agent, Los | Angeles City Schools, "School Supplies and the War"; Nr. George B. Bettinger, Superintendent of | Schools, Alhaaibra, "Won-Certificated Employee j Classifications"; Nr. Glen McKeekin, Long Beach City Schools, "Salary Schedules”; Mr. Claude Marona, Executive Secretary, CSEA, "Retirement"; Nr. Arthur Knoll, Business Manager, Long Beach City Schools, "Bnployee Turnover.” (6*1942) i Officers elected for the following year were i i (6*1942)* President............Frank Thomas, Berkeley Vice president . . . . L. C. Sutliff, Taft Secretary............Robert Trimlett, Hollywood Treasurer............C. L. Green, Modesto 9 Editor .............. Edward Black, Compton The Seventeenth Annual Conference. — President Frank Thomas called the Seventeenth Annual Conference to order on July 26, 1943, at Berkeley. Due to war restrictions, the J yearly conference was cancelled and only state officers and 1 committee chairmen were in attendance. The officers 131 i elected in 1942 wtra hold ovor until ouch a time aa a statewide conferonco could bo hold again (6s1943). The Eighteenth Annual Conforonco.— The loaa of Executive Secretary Claude Marona during the year was keenly felt by CSEA aa the Eighteenth Annual Conference was called to order by Preeident Thomaa in Bakerafield on July 14, 1944, More work for all of the officera both in their local diatricta and on aaaociatiOn activities aeemed to be the rule (6tl944). The preaident reported that two areas of weakness on the part of the California School Employees Association were becoming very evident. These areas were public rela tions and service to membership. He explained that a great need was apparent for closer relationships with the school trustees, superintendents, business managers, and other associations within the educational field. There should also be established a central office where information could be gathered and disseminated on such matters as sala ries, hours worked, retirement systems, merit systems, and so on. The only effective way to get these jobs done was to hire a capable executive secretary according to Nr. Thosms (6s1944). Educational speakers at this confarenca included* Nr. Char las Bursch, Chief of the Division of School Bouaa Planning, California State Department of Bducationi Nr. Clark Baker, Counaallor, Northern California Sight Conservation Leaguer Nr. Kesp Buber, Weber Costello, Co.; Nr. H. N. Chellis, Director of Operations, Los Angeles City schools. (6*1944) Newly elected officers for the 1944-45 year were as follows (6*1944)* President............L. C. Sutliff, Taft Vice president .... Robert Trimlett, Hollywood Secretary............John Velotta, Los Angeles Treasurer............C. L. Green, Nodesto Editor .............. Edward Black, Compton The Nineteenth Annual Conference.— Restrictions on travel limited the attendance at the Nineteenth Annual Con ference held in Fresno on July 13, 14, and 15, 1945. There were only forty-three voting delegates on hand when the conference was called to order by President Sutliff. He reported that the past outlook for CSEA had been dark but things were looking brighter again due to the hard work of the devoted members of the association (6*1945). Resolutions passed at this session included the 1. The per capita tax was increased from thirty- five cents to fifty cents a month. 2. The editor's salary was increased from $250 a year to $300. 3. A uniform installation ceremony for new officers was adopted. 4. The treasurer was authorized to purchase an adding machine. The members of CSEA were saddened by the death of Mr. C. L. "Curt" Green, the association's treasurer for the preceding ten years. Mr. Green had not only been an out standing worker for the cause of the California School Em ployees Association but he had also served as a football coach for his school in Modesto where he was employed as a maintenance man (6tl945). Officers elected to serve for the 1945-46 year were as follows (6tl945)s President............L. C. Sutliff, Taft Vice president .... Howard Leard Secretary............ Otto Palumbo, Richmond Treasurer............George Hackett Editor .............. Edward Black, Compton 134 j The Twentieth Annual Conference. — The Twentieth 1 l ! Annuel Conference took place in Ventura on July 12, 13, and ! I 14, 1946, with seventy-four voting delegates in attendance.; It was an extremely active conference because gains had been recorded in mesibership of CSBA; the retirement system had been adopted by sixty-four districts; and through the efforts of the association plus the work of the local chap ter, civil service was adopted by the voters of the Coqpton| !School District for its noncertificated employees. District f representatives were appointed during the year to contact i I |the chapters in their districts and bring the members the j |latest information on retirement, civil service, wage and 1 hour schedules, and the progress of the plan for a forty- i hour week (6s1946). i . i Resolutions adopted at this conference that changed the association's by-laws were as followss Article 2— Section 4. Amended to reads The annual per capita tax for members at large shall be $6.00 per year payable in advance. Article 4— Section 4. Amended to reads Chapter shall be deemed delinquent when it has for ninety days failed to forward to the State Treasurer all funds due; if unpaid for six months, Charter is forfeited and shall be re turned to State Treasurer. Article 8— Hew Section designated as Section 601 addeds Wage and Salary Committee. It shall be tlM duty of this Committee to maintain a •alary aurvay of non-certificated employees of school districts within the Stats of Cali fornia. Said surveys shall be mads available to affiliatsd Chapters. Article 12— Section 1. Amended to reads Ths elected officers and Chairmen of the Legislative, Merit, Retirement, Education, Advisory, and Salary Survey Committees shall be paid a per diem allowance of $6.00 when authorized by the Presi dent to travel on State Association business in addition to five cents per mile as traveling expense for such automobiles as are deemed necessary to guarantee full committee representa tion. (6sl946)• Resolutions adopted that did not change the asso ciation's by-laws were as followsx Cafeteria Workers— Resolved that the Legislative Committee use its efforts in securing mandatory legislation placing cafeteria workers under the Board of Education in the same manner as other non-certificated employees. Constitution— Resolved that the President appoint a committee to revise and bring the State Asso ciation Constitution up to date. Fifteen per cent of Per Capita Tax Earmarked* Re solved that 15 per cent of all per capita tax be placed in a fund to be used for the services of an Executive Secretary when deemed wise to so employ one. (6x1946) The educational program at this conference consisted of panel discussions on maintenance, cafeterias, and store keepers. There were thirty-four advertisers listed in the programs passed out to the delegates and a much more im pressive booklet resulted (6x1946). 136 ; i i I Officers elected for 1946-47 were as follows I (6t1946)s i ! | President............. Robert Trimlett, Hollywood i : | Vice president .... Otto Palumbo, Richmond Secretary............William Zinn, Long Beach f Treasurer............. George Hackett i ; Bditor .............. Edward Black, Compton i i : The California School Employees Association comes of ace ' I I The Twenty-First Annual Conference,— The Twenty- i ! First Annual Conference was held in San Jose on July 10, 11, and 12, 1947, Approximately 250 persons were present, including ninety-one acting delegates. The spirit and I enthusiasm of the group reflected the progress made during the year and the growing enthusiasm for the attainment of i future success by CSEA. The entire list of officers who had served during the past year was returned to office for j the 1947-48 term by a unanimous vote of the assembled dele gates (6sl947). Much financial progress was made during the year as indicated by the fact that $12,580.55 was collected in per capita dues as compared with $8,455.96 received during the preceding ytar. This amounted to a gain of $4,124.59. New a— ibara racruitad totaled 803. There ware forty-three new chaptere added to the Hat of affiliated groupa. All phases of the aaaociation'a program appeared to have been awept forward on the new note of enthuaiaam. The committee re porta — re unuaually long and detailed (6t1947). The educational program at the conference consisted of panel diacuaaiona on electricity, gardening, houaing the ! |elementary school cafeteria, the school lunch program, ! | heating and ventilating, maintenance supervision, and sec retaries and clerks— their duties and responsibilities. ] The speakers included Frank M. Wright, Associate Superin- | tendent of Public Instruction! Cecil Hardesty, superintend- i ent of San Jose City schoolsj and Bruce A. Findlay, assist- i | ant superintendent of the Los Angeles City schools (6 s1947). Thus, on the twenty-first birthday of the Califor nia School Employees Association, it appeared as though the j association had come of age. The early setbacks and dis- couragement had been pushed aside and the future seemed i secure. The achievements made during this year are re- i j ported more fully in other chapters of this paper, especially the advances made in legislation, education, and 138 the publications program (6x1947). i The Twenty-Second Annual Conference. — A changed atmosphere from the usual conferences held in hotels was provided for at the Twenty-Second Annual Conference when it j i was decided to hold it at Asilomar, a Y.W.C.A. owned con- - i ' I |ference center located outside Pacific Grove. This seaside j |resort is one of the most beautiful places in California. A report of great importance made at this confer- ' * i i - ! ! ence was presented by the constitution committee chaired by |M. Ruth1 Whitcomb. This committee deleted all of the obso- jlete material and clarified other sections. The constitu- i tion and the by-laws were divided in order to follow i |Roberts Rules of Order which states that nothing is placed j in a constitution that may be suspended. Article II # sec tion 2, was amended to provide that once a person was voted a life membership it could never be taken away. The old constitution provided that a life member who failed to \ maintain active chapter membership forfeited his life mem bership (6x1948)• i The educational programs at Asilomar were once again presented by means of panels. The discussions were based on the topics of gardening, cafeterias, secretaries. 139 maintenance, and pupil transportation (6t1948). Officars elected at the conference were aa follows (6x1948)s President............Otto Palumbo, Richmond Vice president . . • . "Rick" Watts, Santa Monica Secretary............ William Zinn, Long Beach Treasurer............Lloyd Hitchman, San Jose Editor..............Edward D. Black, Compton The Twenty-Third Annual Conference,--Santa Monica was the scene of the Twenty-Third Annual Conference which was held on July 11, 12, and 13, 1949. The Proceedings of the Annual Conference and the Educational Program of the Annual Conference were printed as separate reports at this time. A detailed record of what was said and who said it in the panel discussions was provided to all chapters fol lowing the conference. The panels were held on the follow ing topicsx (1) secretaries and clerks, (2) cafeteria problems, (3) gardening, (4) storekeepers, (5) maintenance, (6) mechanics and building trades, (7) directors of school maintenance, (8) pupil transportation, (9) custodial per sonnel, (10) merit systems, and (11) retirement (7x1949). Three groups of superintendents of buildings and 1 grounds ware formed during the year, one in the north, one ! in the central, and one in the southern section of the i i i |state. This affiliation of the formerly unattached group i represented a forward step since it brought in men of high i t Icaliber (6 *1949). Officers elected for the next year were as follows i(6*1949)s President............Richard Watts, Santa Monica Vice president .... William Herb Second vice president. Otto Palumbo, Richmond Secretary............Emma Hoffman, Bakersfield Treasurer............Lloyd Hitchman, Campbell Editor..............William Zinn, Long Beach The Twenty-Fourth Annual Conference.— The Twenty- Fourth Annual Conference was held in Eureka, the capitol of the "Redwood E&pire." The Eureka Chamber of Commerce printed the official program and it was one of the most attractive appearing yet given to the members of the asso ciation. In the official "Welcome," the chamber noted that "here in the land of one of the 1Seven Natural Wonders of the World1— the fabulous giant Redwoods— you may enjoy the business and pleasure of your convention in a region of rare natural beauty and historic interest." (6s1950) The attendance at this conference was unusually large as the credentials committee submitted the following reports Delegates............................... 100 Officers .............................. 6 Chairmen.............................. 8 District Representatives .............. 5 Life Members.............. 1 Total 120 (6sl950) The educational program featured panels once again but a slight change occurred in the format when the same panels were presented for a second time. The panels werex Secretaries and Clerks . . . Irma Stevens, Chairman Cafeteria Problems ........ Pearl Finnegan, Chairman Pupil Transportation .... Leslie Wall, Chairman Custodial Problems ........ Fred O'Brien, Chairman Storekeepers 4 ............ Otto Palumbo, Chairman Merit System............. Frank Soderlun, Chairman The speakers at the conference included Frank M. Wright, Associate Superintendent of Public Instruction; Mayor John F. Langer, city of Eureka; Earl W. Chapman, executive officer of the State Employees Retirement System; and William Zinn, editor of The California School Employee (7x1950). Accomplishments listed for the year included 142 i (1) the beginnings of group insurance covering polio as I veil as health and hospitalisation; (2) a very successful salary survey; (3) the adding of six new chapters; and (4) the beginning of a study to determine a suitable memorial for the association's first president, Lawrence Twoaxe (6*1950). The Eureka conference of the California School Employees Association elected the following officers to lead the association for the year 1950-51 (6*1950)* President............Lloyd Hoyt, Antioch Vice president . . . . M. L. Brazil, Ventura Junior past president. "Rick" Watts, Santa Monica Secretary............Emma Hoffman, Bakersfield Treasurer............Lloyd Hitchman, Campbell Editor..............William Zinn, Long Beach The Twenty-Fifth Annual Conference. — The Twenty- Fifth Annual Conference was held in Stockton in 1951. The following officers were elected to guide the association through the 1951-52 year (6*1951)* President............M. L. Brazil, Ventura Vice president .... Robert L. Wales, Alameda Secretary. ...... Emma T. Hoffman, Bakersfield 143 i Treasurer............ Lloyd W. Hitchman, Campbell Editor..............William H. Zinn, Long Beach Junior past president. Lloyd 6. Hoyt, Antioch J Committee chairmen appointed by the president and i approved by the executive committee were as follows (6 1 | 1951)s Advisory ............ Ernest C. Hunter Advertising.......... Frank P. Burch Education............F. H. O'Brien Legislation..........Edward A. Haire Organization ........ Francis E. Stout Merit system........Lois E. Cox Retirement .......... Boynton Hays Survey.......... Laura Hilton Historical ...... Irene Riggle The Twentv-Sixth Annual Conference.— The Twenty- Sixth Annual Conference was held in Long Beach on July 6, 7, 8, and 9, 1952. Officers elected to serve for the 1952-53 year were as follows (6sl952)i President. ...... Robert L. Wales, Alameda Vice president .... Fred H. O'Brien, Long Beach Secretary............ Emma T. Hoffman, Bakersfield r............... i { 144 f Treasurer............. Lloyd W. Hitchman, Campbell i i . 1 Editor............... William B. Zinn, Long Beach Junior past president. N. L. Brasil, Ventura The educational program of this conference was de voted to panels of general interest to the delegates. i |These discussion groups consisted of sections for secre- j | taries and clerks, cafeteria employees, custodians, main tenance and building trades, merit and insurance, transpor- I i tation, and storekeepers (7x1952). Life memberships were awarded at the Long Beach I conference to "Mike" Brazil, past president of CSEA and a former general conference chairman, and to Miss Emma Hoff- I man of Bakersfield. Miss Hoffman was the first woman so honored by the association. Her service to the group in cluded three terms as secretary of the state association and numerous appointments as a district representative (6x1952). Mr. Carl Will served as conference chairman for the next annual conference. The Twenty-Seventh Annual Conference.— The Twenty- Seventh Annual Conference was held in Berkeley on July 9, 10, and 11, 1953. A voting delegate strength of 170 was on ; hand. President Wales stressed to the delegates that three; i i i j major objectives had been worked on during his term of I i |office. These wares 1. An improved and more comprehensive liaison between the Chapters and the State Association. 2. An expanded Organisation program. 3. A more extensive program of Public Relations and information to chapters and other groups. (6x1953): In 1952 CSEA was qualified to receive institutional ! memberships and the association gained $810 in receipts from this source. Mrs. Lois Cox of Antioch served as chair man of the committee that made this gain possible (6s1952). i An active legislation committee reported that three major bills had been passed by the state legislature that I were of value to the classified school employees. These [ ; 1 bills (1) permitted school districts that had entered the i I | State Employees Retirement System on a contracted basis to amend their contracts and bring them up-to-date; (2) The ceiling on force account labor was raised from $1,000 to $2,000; and (3) The ceiling on purchasing of materials without asking for bids was raised from $500 to $1,000 (6t1952). The survey committee reported that it had been honored by an invitation from the California Association 146 of Public School Business Officials to discuss the possi bility of a joint salary survey venture. A tentative plan was agreed upon to work on job classifications and descrip tions as well as a joint questionnaire to be sent to a selected sample of districts. Each association under the joint sponsorship plan was to publish the results and dis tribute them to their respective members (6>1952). Resolutions adopted were as follows> 1. The Advertising Committee was to be included as one of the Standing Committees and the Chairman was to be paid a 5 per cent monthly cosanission on all ads sold for the previous month and 5 per cent on all booth space sold and collected for the Annual Conference. 2. The amount transferred from the regular fund to the Special Executive Secretary Fund was increased from 15 per cent to 20 per cent. 3. Registration fees for the Annual Conference were increased from one dollar for delegates to two dol lars and fifty cents and from fifty cents to one dollar for visitors. (6>1952) Officers elected for the coming year were as fol lows (6tl953)> President Fred B. O'Brien, Long Beach ; Vice president Lloyd W. Hitchman, Campbell Secretary Emma Hoffman, Bakersfield Treasurer Mrs. Lois Cox, Antioch Editor William H. Zinn, Long Beach 147 junior past president. Robsrt L. Wales, Alameda A highlight of this confsrsncs was the adoption of a code of ethics which was drawn up by a coss&ittee of i several of the association's outstanding members. This |code of ethics was announced as a great forward step in i the development of a true association (6>1953). i The William 6. Paden Scholarship was added to the i « | list of scholarships awarded by CSBA in honor of this fine educator who had served the association so well as an advisor. It was Dr. Paden who had organized the institu tional membership program, drawn up much of the proposed legislation during this period, and served as a legislative advocate for the association. It was noted in the 1953 conference proceedings that Dr. Paden died on April 6, 1954 (6*1953)• The Twenty-Eighth Annual Conference.— This confer ence was held in Sacramento on July 11, 12, 13, and 14, 1954, with L. W. Hitchman as general conference chairman. The credentials committee reported an attendance of 149 delegates, two members at large, six officers, six com mittee chairmen, six district representatives, and eight life members, for a voting strength of 177 (6*1954). Mr. George Paden of the Occidental Insurance Com pany, underwriters of the CSEA insurance plan, reported to | the conference delegates that as of that time there were ! twenty-five districts insured under the plan with 1,000 members and dependents covered. Eleven of the covered dis- I !tricts were nonchapter units (6*1954). The salary survey committee announced that 225 dis- ' tricts had returned questionnaires during the year and that I !practices of districts in relation to group health plans I i i and longevity recognition were included for the first time. i | The joint survey with CAPSBO was reported as working very | well in actual practice (6<1954), r I i Resolutions adopted by the delegates were as fol- j ! lows: I 1. Resolution to change the By-Laws to read "In any school district where a chapter or chapters exist, no chapter shall be chartered by the Asso ciation until the existing chapter or chapters, shall have notified and shall have granted their approval in writing to the Executive Committee. 2. Resolution to change the By-Laws "that persons on the Bonor Roll be given a voice in the Annual Conference, but only those on the HOnor Roll cur rently serving on the Executive Committee or as delegates to the Annual Conference." 3. Resolution amending the By-Laws, authorising the Executive Conudttee to select a person and establish a position of a full time paid treasurer with an office at his place of residence. (6tl954) Life memberships wr« voted to Fred fl. O'Brien, I I the retiring president, and to William B. Zinn, the retiring editor of The California nymm Nr. Frank Soder- i |lun was placed on the honor roll of the association (6« I | |1954). I The officers elected to serve the association for i I the 1954-55 year were as followss President............Lloyd W. Hitchman, Campbell i Vice president .... Charles J. Kramer, Monrovia Secretary............Emma Hoffman, Bakersfield Treasurer............Lois E. Cox, Antioch Editor..............M. Ruth Whitcomb, Long Beach! The Twenty-Ninth Annual Conference.— This confer- i | ence was held in San Jose on July 10, 11, 12, and 13, 1955, i ! with Howard Rittenhouse as conference chairman. The report [ i of the credentials committee showed that there were 217 ' voting delegates in attendance. President Lloyd Hitchman revealed that the public relations program of CSEA was being expanded steadily as s he had represented the association at the National Business i Officials of the United States and Canada conference and the California State Employees Association conference in 150 i San Jose (6x1955). | Nike Brasil, legislation chairman, reported an j | extremely busy year with 685 bills applying to schools and i j ; school personnel considered by the state legislature. Many! gains for classified employees were made at this session j including bereavement leave, seniority rights in newly 1 I ; unified districts, and many iiqprovements in retirement i |(6x1955). It was reported that the two school bus roadeos had | j I been extremely successful and well attended. The "School ! i | Bus Driver of the Month" award was instituted during this ! conference. For the first time, the school bus roadeo was i |made a part of the conference and forty-one drivers entered i . the competition on Sunday, July 10, at the Peter Burnett i ! School in San Jose. Bill Prolasco of Ventura was declared I i the winner (6x1955). Officers elected to serve in 1955-56 were as fol lows (6 xl955)x President. . ..... Charles J. Kramer, Monrovia Vice president .... Samuel W. Anthes, Jr., Richmond Secretary............. Mrs. Betty McKinley, Fullerton Editor.............. M. Ruth Whitcomb, Long Beach junior past president. Lloyd W. Hitchman, San Jose President Kramer died in office on March 10, 1956, and the balance of his term was served by Samuel Anthes, Jr., the vice president. Mr. Kramer had been a tireless worker on behalf of the association for many years and his untimely death was felt very deeply (6x1956). The Thirtieth Annual Conference. — The Thirtieth j Annual Conference was held in Long Beach on July 8, 9, 10, and 11, 1956. One of the outstanding features of this con- j ference was the high degree of excellence obtained in the i educational program. Zt was noted that inspiration, in struction, and guidance for classified personnel had been I I the uniform results of these educational programs. Dr. i j i James H. Corson was the featured speaker and he chose the topic, "Toward New Horizons." In this talk, Dr. Corson em- t phasized the new responsibilities incumbent upon CSEA to j cooperate and grow with the other educational associations of the state (7x1956). Panels were held on retirement, secretaries and clerks, cafeteria, custodial, maintenance and building trades, pupil transportation, insurance, gardening, and 152 merit systems (7*1956). The reports at the conference indicated that the organization was at last well established, growing, and getting ready to expand its growth in membership, service to chapters, and influence by employing a new executive secretary (6*1956). I | Officers elected for the succeeding year were as |follows (6*1956)* i President............ Vice president .... | Secretary............ I Editor .............. i Editor and junior past president . . • The new era in CSEA The Thirty-First Annual Conference.— This confer ence was held in Fresno on July 8, 9, and 10, 1957. There jwere 248 delegates on hand and 302 nonvoting visitors, i jmaking a total attendance of 550. A highlight of this conference was the acceptance of the sponsorship of the school bus roadeos, "School Bus Driver of the Month," and Samuel W. Anthes, Jr., Richmond William H. Zinn, Long Beach Elma Sassone, Richmond Nell Porter (March-JUly, 1957), Richmond Lloyd W. Hitchman, San Jose 153 "School Bus Driver of the Year" contests. These had been sponsored previously by bus Manufacturers, the National Safety Council, insurance companies, and the California Highway Patrol. These educational programs involved a great deal of time and the expenditure of a considerable i sum of money (6* 1957). Richard K, Bartlett, the association's new execu tive secretary, made his first conference report. In it he i summarized where he had been, what he had learned, and l [where he thought CSEA was headed. In his talk, Mr. Bartlett I iemphasizeds It is my opinion that we are, this day, standing upon the threshold of our organizational life. We must continue to expand or we will revert to ineffec tiveness. But expansion from this point on must be as methodical and orderly as the minds of men will permit • . •, the chapters must plan to improve their internal leadership, increase and improve their pub lic relations, establish workable local programs for the increase in Chapter membership, improve each Chapter meeting program to the extent that no member can afford to miss a single meeting. We must always strive to make every link in this chain of CSEA a stronger one. . . . We are an integral part of the most impor tant team known to man— the education of people, especially little people. . . Our requests for im provement and advancement, educationally and welfare- wise, will always be made, as it has in the past, with the problems of the other members of the "team” in mind and our paramount thoughts and deeds will be for the education of our sons and daughters in order that wm can contribute, in a maaaure, to making this world a better place to live in. (6*1957) Resolutions passed at this conference included a I code of ethics which was included in Chapter ZZ of this i study, per capita assessments were raised to seventy-five j I cents a month, and some minor changes were made on the i ;names of various committees (6*1957). A further resolution was introduced under new busi ness which directed the executive committee to take such j steps as it deemed necessary to cause CSEA to be incor- i |porated as a nonprofit organization under the corporate ilaws of the state of California (6*1957). i Officers elected for the ensuing year were as fol lows (6*1957)* i President............William Zinn, Long Beach Vice president .... Clarence Lawrence, San Lorenzo Secretary............Mrs. Irene Riggle, Ontario Editor..............Lloyd W. Hitchman, San Jose Junior past president. Samuel W. Anthes, Jr., Richmond Zt is worthy of note that Dr. James H. Corson, superintendent of the Modesto City schools became the head : of CSEA's advisory committee at this time and played a part in the anjor organizational changes that had so profound an affaet on the future course of the association (6s1957). The Thirty-Second Annual Conference.— The Thirty- Second Annual Conference was honored by having State Super intendent of Public Instruction Dr. Roy E. Simpson as its opening speaker. In his address. Dr. Simpson acknowledged the increasingly important part played in the educational program in today's schools by the classified employees. He charged the group to prepare themselves better for the work they were doing (6x1958). The educational program was again devoted to panel discussions covering the work of the fourteen committees. One of the very popular new panels introduced at this con ference was a discussion of CSEA's relations with other organizations. This panel was headed by Dr. James Corson, the chairman of the advisory committee. Four major changes were made in the educational program for the 1958 confer ences (1) The chapter activities program was shifted from the last afternoon of the conference to the first afternoon and the number of meetings devoted to these activities was increased from four to thirteen! (2) Job classification sections were shifted in order to allow this program to | 156 . . begin on one afternoon and conclude the following morning; (3) The clerical-secretarial meetings were divided into a t | third group covering bookkeeping and accounting; and (4) Section meetings on the safety program were added (7x1958). ! Resolutions adopted at this conference included (1) the raising of the per capita dues to seventy-five cents per month, payable in advance; (2) The constitution and by laws were ordered amended to delete "noncertificated" Wher ever it might appear and to substitute the word "classi fied” for it; (3) The amount of salaries of the executive I secretary and the treasurer was left up to the executive t committee; and (4) The president was directed to prepare legislation vriiich would permit employees under the county !superintendent's contract the right to vote as to whether i they desired to coordinate their retirement plan contract with O.A.S.D.X. and to give any employee of a public school system in the state the privilege of participating in O.A.S.D.I. under the "self-employment type status." (6x1958) The report on the social events held in connection with this conference indicated that the host chapters of Campbell and San Jose served coffee, punch, cookies, and I 157 1 candy in tha main racaption room, and many dalagatas ware attracted by tha refreshmanta offered in tha various hospi tality suites. A bar-be-qua was held at tha Matasci Ranch and over 300 dalagatas and their wives attended this event. |Bob Kennedy's dance band played for dancing, some athletic I ; type delegates played horseshoes, and the evening was cli maxed by drawings for various prizes (6s1958). i i The officers elected at this conference were as i follows (6>1958)i President. ...... Clarence Lawrence, San Lorenzo Vice president .... Harold Prough, Visalia Secretary............Mrs. Irene Riggle, Pomona Bditor.............. Lloyd W. Hitchman, San Jose junior past president. William H. Zinn, Long Beach The Thirty-Third Annual Conference.— This confer ence of the California School Employees Association was held in Santa Monica on July 12, 13, 14, and 15, 1959. I There were 350 voting delegates on hand as well as 288 visitors and exhibitors, making an attendance total of 638. Mayor Ben Banard welcomed the delegates to Santa Monica i land Dr. C. C. Carpenter of the Los Angeles County Schools gave the kt^note address. His talk was entitled_MExpandingj 158 [ Circles of Cooperation." Tha main theme developed by Dr. | i Carpenter wee that ultimately no educational association should lose sight of the children for whom the public schools exist (6*1959). This conference reflected the great enthusiasm of the classified employees in the state of California follow ing their significant victories in the legislature. I Assemblywoman Dorothy Donahoe, chairman of the Assembly i jEducation Committee and the sponsor for the association's i ; ; legislative effort, spoke on Wednesday morning, July 15, 11959. Her great interest in the legislation was pointed t 1 j | out in her speech when she declared* For twenty-four and a half years I was a classified employee. When Z asked for a leave of absence upon my first election, it was denied, j mainly because the code did not provide for people such as you and Z. Zt didn't say we couldn't have it, but neither did it say that we could, so Z had to resign. . . . Little did Z know that this bill was an omnibus bill, literally a bill of rights, and that ultimately it broke off into not one, but ten, six of which Z carried and one my new colleague from the other half of Kern County and the other three, my new senator from Kern County, both of whom were freshmen, but who were very interested and very dedicated in the problems of people Who work. (6*1959) Hiss Donahoe then reminded the group that there were also some new responsibilities for the association in r ~ 159 the following words* X think now that you have the door open and at least a few toes inside. X hope that X convince you in the few aments that X have here the tremen dous obligation and responsibility you have to see that you protect these gains. Nothing is free in this world, particularly freedom. Somewhere along j the line someone has paid a very dear price to give ! you the benefits which X am afraid most of us take for granted today. (6t1959) She speaker praised Richard "Dick" Bartlett in glowing termss i Dick has built up in the minds of the legisla ture and the individual legislator an image picture of 60,000 classified employees about to realize their total responsibility in the concept of educa tion. . . . These two points are very important: First that we can identify someone as your spokes man, and secondly, by infinite patience, by kindness, by gentlemanly conduct— bring you a kind of prestige that money cannot buy. (6>1959) The realization that CSEA had finally broken through the barriers that had stalled its efforts for many years seemed to have a wonderful effect on the group. The organizational structure under which the association had floundered for thirty-two years was completely revised at this conference and a modern, streamlined, and efficient organization was adopted that provided the necessary flexi bility to allow growth and expansion in a planned manner. The table of organization which had its beginnings at this 160 conference le Included ae Illustration 3 (page 74) in this ! paper (6x1959). j The chapters and districts reported at this time i i that the following scholarships were being granted to high | school graduates* District 3, one scholarship $100 District 2, Long Beach, four scholarships 100 each Cosqpton College, one scholarship 100 Lynwood Chapter, one scholarship 100 Santa Barbara, two scholarships 200 each Centinela Valley, three scholarships 100 each Eden Chapter, two scholarships 100 each Chapter No. 7, one scholarship 100 Vallejo Chapter, two scholarships 100 each Mojave Chapter, one scholarship 150 Sierra High, one scholarship 200 Berkeley Chapter 12, one scholarship 100 (6x1959) i These were in addition to the Lawrence Two Axe i ! Memorial Scholarship and the William 6. Paden Scholarship ■ awarded by the state association. It was a real tribute to the districts and chapters that the various groups were making an effort to further the education of their own j children (6x1959). The officers chosen to lead the newly reorganized association were as follows (6x1959)x President and chairman of the board • • . • Harold Prough, Visalia Vice president .... Owen Kidman, Costa Mesa Secretary Irene B. Riggle, Pomona Bditor Lloyd W. Hitchman, San Joee junior paat president. Clarence Lawrence, San Loreneo Directorst Area I. . . Sigrid Teach, Eureka Area II . . Elnora E. Hoyt, Antioch Area III. . Roy Keys, Taft Area IV . • Howard Rittenhouse, San Jose Area V. . . Raymond Giletrap, Compton Area VI . . Marjorie 0. Wilson, Chino The Thirty-Fourth Annual Conference.— This confer ence was held in Berkeley on July 10, 11, 12, and 13, I960. There were 449 delegates on hand and 221 visitors for a total attendance of 670. Changes were made in seating arrangements and delegates were required to sit in their own regional group in order that the regional representa tive could recognize them. All proposed resolutions were required to he submitted in time for mimeographing prior to the conference. These two changes were very important be cause the number of delegates at the annual conference had reached the point that made the conduct of business and identification of delegates very difficult (6s1960). The usual welcoming speeches by visiting dignitaries oprntd the conference and Dr. Ivan Crookehanka of the Col lege of the Sequoias gave the keynote address, "Efficiency through Education and a Comparison of Two Systems." The i address was baaed on a comparison of the educational sys- i terns of the United States and the Soviet Union (6*1960). Resolutions acted upon at this conference were generally designed to clarify areas that were in doubt due to the reorganization of the previous year. A major change created the office of second vice president because the :first vice president often did not choose to run for presi- I dent. A major debate raged over a proposed resolution that read as followst The school districts shall, at the'time of re tirement or termination of a classified employee, compensate said employee for any and all accumulated sick leave time, as of the date of said retirement or termination, regardless of length of service or number of accumulated days. (6*1960) The resolution was not adopted and no attempt was made to have the provision put forward as a legislative i proposal (6 *1960). i The budget for the following year was a very de tailed presentation and it required twenty-two printed pages of the conference report to present it. All items were enumerated in great detail and no doubts were left in 163 the minds of any of the delegates as to how the associa tion's funds were allocated for expenditure. Receipts in the amount of $166,020.00 were projected for the coming I I jyear in contrast to $116,709.05 collected during the cur- i i ;rent year. This amount reflected the faith that the group ! had in the continued growth of the association (6x1960). | The format of the printed list of officers elected !for the following year reflected the reorganizational change. It was now set up as followsx Board of Directors President and Chairman of the Board .......... Harold Prough, Visalia 1st Vice-President .... Lewis 6. McCall, Merced 2nd Vice-President .... Roy Keys, Taft Secretary................Miss Nell Porter, Richmond Editor..................Lloyd W. Hitchman, San Jose Past President..........Sam Anthes, Richmond Directors. . . Area I ..............Mrs. Sigrid Teach, Eureka Area II..............Mrs. Elnora Hoyt, Antioch Area III............6. Dale Keirn, Modesto Area IV..............Howard Rittenhouse, San Jose Area V ..............Raymond Gilstrap, Compton Area VI..............Mrs. Josephine Duck, Indio (6x1960) The headquarters staff was now listed as followsx Executive Director .... Richard W. Bartlett Field Representative . . • Keif Kelberg Field Representative . . . Milton Anninos 164 i Field Representative . . . William Vernon Secretary, Office Manager. M. Ruth Whitcomb Controller .Mrs. Thelma Hubley Insurance Secretaryi . . . Mrs. Beatrice Marshall Typist-Clerk .Mrs. Letitia B. Conell (6x1960) | The Thirty-Fifth Annual Conference.— The theme j"Peace and Progress through Education" was adopted for the ; Thirty-Fifth Annual Conference held in Long Beach on July j 116, 17, 18, and 19, 1961. It was noticeable that the con- I |ference dates were gradually being set for later in the {month in order that classified employees involved in budget | preparation and pay roll preparation might have an oppor- i { tunity to attend. The growth had continued its phenominal rise as it had for the past few years and there were 487 voting delegates on hand as well as 197 guests making a ! total attendance of 684 (6x1961). The mayor of Long Beach, Edwin W. Wade, and W. Odie 0 Wright, deputy superintendent of the Long Beach School Dis trict welcomed CSEA to the community. The keynote address | was delivered by Dr. Charlotte Elmott, director of guidance projects, Santa Barbara City schools. Her address was very inspirational and reflected her thirty-five years of service in the public schools (6x1961). The session on resolutions ran into some heated 165 debates. Over four and throe-fourths hours ware spent In deliberation and the session did not adjourn until 11*45 P.M. The hulk of the debate centered on a proposed fifty | cents per month dues increase which was finally defeated I i by 332 noes to 175 yesses. A compromise resolution calling for a dues increase to $12,00 per year was passed 416 to 89, so at least a partial victory was won (6x1961). Other resolutions passed allocated ten minutes of speaking time to all candidates for office; the office of an elected editor was discontinued; a standard chapter year that extended from January 1 to December 31 of each calen dar year was adopted; and a definite conference city and site were chosen for the next ten-year period. The sites selected were as followst Year Annual Conference City 1962 36th Sacramento. 1963 37th San Diego 1964 38th Fresno 1965 39th 8anta Monica 1966 40th San Jose 1967 41st Long Beach 1968 42nd San Francisco 1969 43rd Los Angeles 1970 44th Sacramento 1971 45th San Diego (10x1961) The budget report at this conference was another 166 •net breakdown of all items. In addition, an attempt was j made to divide the coat of each function and service into its percentage of the total budget expenditure. The budget i i itself required nineteen pages of the conference proceed- i ;ings. It was noteworthy that receipts of $166,020 were I | estimated and $166,754 was received which represented a fairly accurate income estimation (6:1961). A step forward in the drive for recognition of CSEA I came with the election of Otto Palumbo to the State Retire ment Board, the first classified school employee so honored by the members of the State Employees Retirement System : (6:1961). j Officers elected for the following year, 1961-62, i were as follows (6:1961): President............Lewis 6. McCall, Merced First vice president . Roy Keys, Taft Second vice president. Clinton Mortenson, Long Beach Secretary. ...... Miss Nell Porter, Richmond Junior past president. Harold Prough, Visalia The Thirty-Sixth Annual Conference.— In 1962 the largest gathering of CSEA in its history opened the lhirty- :Sixth Annual Conference. There were.642 delegates and539_ guests on hand for a total of 1,183 in attendance. The conference thems was stated to be "Vision Plus Action Equals j i ; Achievement." The keynote speech was delivered by Dr. Burt: i Tiffany, superintendent of the Chula Vista School District I i I (6*1962). i I There were thirty-two resolutions to be considered at this conference and the usual heated debate broke out t i | over many of the proposals. The arguments pro and con con- Burned many hours and it was 9*05 P.M. before the business i ! portion of the first day of the conference ended. Resolu tions of considerable importance adopted were* (1) The i ! elected officers were to be selected on the basis of quali fications rather than geographical location; (2) The board |of directors was instructed to prepare legislation to be 'introduced which would bring all classified school employees under a merit system; (3) A provision was made that part- ] time employees could become members of CSEA by paying pro- irated dues; (4) Institutional dues were raised to $25.00 j jfor districts with an A.D.A. of zero to 5,000; (5) The i i ilegislation committee was directed to bend every effort i toward the repeal or modification of A.B. 1786 (1961) which established a minimum percentage of the district budgets to : 1 L _________ j 168 1m expanded for teachers1 salariesj and (6) The delegates asseaibled at the Thirty-Sixth Annual Conference adopted as continuing policy a position of opposition to collective bargaining in government (6t1962). i ' The annual budget again was very long and detailed. t | It required twenty-seven printed pages in the conference proceedings to present it. Each year saw improvements made in its presentation and 1962 was no exception. The budget i i i • ! was divided into four partsx ! Part I, "Comments and Recommendations"7 j Part II, "The 1961-62 Budget Review"7 Part III, "The Proposed 1962-63 Budget"1 Part IV, "Request for Additional Position Authorization." ! It was noted that the 1961-62 ending figures showed a j budget not only balanced but also providing a surplus of receipts over expenditures (6x1962). The Thirty-Seventh Annual Conference.— The Thirty- Seventh Annual Conference was held in San Diego on July 24, 25, 26, and 27, 1963. The conference theme was "Hoy Es Kanaqa" (Today Is Tomorrow). Another large turnout was on i hand to open the conference as 680 voting delegates and 593 169 guests Mrs reported In attendance by the credentials com mittee (6>1963). The educational program of this conference con sisted of the following panels (or seminars)s i Panel Topic Chairman i i | Retirement.................Otto Paluaibo j Legislation.................Mrs. Folly White Chapter Leadership........Mrs. Evelyn Bennett Chapter Relations with Administrators .......... Mrs. Moreen Weidenhenner | Safety Program............Mrs. Mildred Mathews Food Services. ....... Mrs. Xlene Bullen Purchasing and Warehousing . George Fierman Secretarial-Clerical .... Mrs. Marjorie 0. Wilson Administrative Secretaries • Miss Lucille Cadlini Secondary School Secretaries..............Mrs. Doris Plummer School Finance............R. Paul Reynolds Presidents and Vice Presidents........... . Lewis McCall Treasurers................Max Gott Maintenance................George A. Dickenson Elementary School Secretaries..............Mrs. Lois Durrett Personnel Relations........Harold Prough Gardening and Grounds. . . . Clifford Poy Custodial Services • • • • . Glenn 0. Ephraxn (7>1963) Specialists in each of the listed fields were guest speakers. The caliber of these guest panelists had in creased steadily over the years. For example, Dr. James Corson, executive secretary of CASA; Mr. Robert Fisher« personnel director of the Los Angeles City schools; Mr. Wayne Higbee, personnel director of thecityof Fresno; and 170 f i Nr. Allen Grant, member of the board of education, Viaalia J I School District, were the guest speakers at the "Personnel ! | Relations" section (711963). i ■ ; ! The keynote address was given by Dr. Rax Rafferty, State Superintendent of Public Instruction. Dr. Rafferty spoke on the trends in education in the state of California. He described the good things that were taking place and then pleaded with the group to get behind a drive for non- , t : I i partisanship in the schools. It was his belief that the I most alarming trends in Sacramento were the increasing i movements toward state control and the involvement of edu- i i cation in partisan politics (6*1963). There were fourteen resolutions considered at this j conference, and only six were adopted while six were de feated, one was withdrawn, and one was referred to the ; legislation committee. It is significant to note that once again proposals were made for cash reimbursement for accumulated sick leave. This proposal was again defeated by the delegates. The increasing size of the conference attendance was recognized in a proposal by the Long Beach chapter that the ratio be changed from one delegate per chapter plus one for every fifty members or a major frac- 171 tlon thereof to two delegates per chapter plus one for i i every 100 — here or major fraction thereof. This proposal i was also defeated (6«1963). The auditor's report Indicated that estimated re ceipts for the year had been $280,560.00 but the budgeted receipts exceeded the actual Income by $5,332.11 or 1.9 per cent udiich Is remarkably close since so much of It was predicated on membership growth. The budget for the 1963-64 association year was submitted to the delegates in the form of a forty-four page booklet. Estimated income was projected as $317,950 and disbursements were listed as $317,320, leaving $59,681 in reserves and surplus. This budget was perhaps one of the most meticulously developed documents ever submitted to the delegates. All necessary items were documented in great detail and presented in full to the assembled delegates. This is in sharp contrast to some associations tdiich habitually and repeatedly adopt a budget as a matter of course on the last day of their conference when few inter ested members are in attendance (8x1964). At the Thirty-Seventh Annual Conference the first woman candidate for president, Mrs. Elnora Hoyt, was nomi- 172 i I nated. She was also the wife of the twenty-fifth president; of CSBA, Lloyd Hoyt. Mrs. Hoyt did not win the election but it is worthy of mention that a school secretary was at least nominated. The elected president was Clinton Morten- son of Long Beach. Other officers elected were (6*1963)* First vice president . Roy Keys, Taft Second vice president. Ralph Davis Secretary..............Mrs. Ruth Dye The report of the executive director, Richard W. Bartlett, reflected optimism for the future and a decided stiffening of his attitude toward peaceful and cooperative efforts with all educational groups in an effort to secure legislation making the adoption of a merit system compul sory for all districts. He listed the association's main problem as funds adequate to do the job that needed to be done and requested the delegates to consider a $3.00 per year dues increase at the next conference (6t1963). Chapter summary From the very beginnings in 1927, CSEA left all policy making in the hands of the delegates to the annual conference. This procedure has carried on to the present 173 j I time although tha growth in the number of delegates in I i attendance has increased from nine to 680, as reflected in ; Illustration 4 on the following page. The soundness of this method is reflected best in the preceding growth !statistics. i The written proceedings of the annual conferences | reveal accurately the problems brought on by the different i : historical periods during which the conferences were held. The struggle for life in the beginning, the continuation 1 i of the precarious existence of the association during the i i ! depression and war years, and the great surge forward that | came with the triunphs of 1959 are depicted in these re- i ports. j : The value of the conferences to the delegates who have attended them has also increased. The variety of im portant topics considered and the caliber of the speakers j I : that made the presentations have increased steadily. Today i the annual conference of the California School Employees i Association must be ranked with the best held in the state of California by educational associations. ILLUSTRATION #0 CONFERENCE 0ELE6ATES j m sto M * .M l 1 S T .M t a o . W O 0 0 JO •• Ai 19 n 4> n 1 9 2 V 1990 1 9 9 9 1 9 9 0 1 9 4 0 1 9 9 0 1 9 9 0 1 9 1 9 1 9 9 0 I9W I9 « t IMS ___ i CHAPTER V THE EDUCATIONAL PROGRAM OF THE CALIFORNIA 8CBOOL EMPLOYEES ASSOCIATION i Introduction One of the most Important problems facing the California school employees today lies in the Identifica tion of an area vhereby the status of the classified em ployees of the public schools of California can be elevated In the eyes of the general public. This problem Is as old as the public school system itself. Ward G. Reeder stated* During recent decades, there has been a large improvement in the quality of school buildings, equipment, and supplies. Moreover, the qualifica tions of teachers, supervisors, administrators, and of almost all other school employees have advanced by leaps and bounds. The school janitorship, on the other hand, has been permitted to maintain its original and lowly status. As in the earlier years, the position is still frequently given to a pauper, to an aged person, to a cripple, to a "politician,1 1 to a politician's friend, or to some other type of incompetent person. . . . The school janitor is— at least, he should be— an important member of the school employee personnel, and everywhere the position should be professional ized. (32t248) 175 176 The founders of CSEA realised in the very beginning that a program of education was the best method known by I which to raise the status of nonteaching personnel (9). Various authors have pointed out the value of additional training for the classified employees of the public schools i jRobert Fisher, the personnel director of the Los Angeles |City schools, pointed out that it is a practical necessity which produces practical and measurable results in the form of improved methods, reduction of waste, reduction of absenteeism and turnover, reduction of learning time, reduction of supervisory and inspectional burden, reduction of overtime costs, reduction of school maintenance costs, reduction of grievances, improvement of quality, encouragement for upgrad ing, reduction of accident rate, improvement of coammnication, and the improvement of morale. (32s232) i Even though great efforts were made for many years i by classified employees in their attempts to help them- i selves, very little progress was made. In 1949, King found that there had been little change in conditions relating to | janitor-engineer practice during the past twenty-five years | He recommended that they be encouraged to attend summer ! sessions in suitable schools and that books and magazines relating to their needs be made available to them (55). Despite recommendations by various authors in the 177 j i field of personnel relations in the public schools, Stoops ! and Rafferty noted in 1961s A carefully planned and well organised program of on-the-job training unquestionably pays dividends when applied to teachers; this has been demonstrated | repeatedly. The only reason that similar findings are harder to find for classified personnel is the almost total absence of such programs for this impor tant group of school employees. (34s456) 1 The attempts of the California School Employees Association to develop a suitable educational program were i l a fascinating part of this study. The efforts to obtain state certification on the part of so many early leaders i of the association that ultimately led to failure should be ireviewed and analyzed by today's leaders because success I was so nearly at hand many times before the final defeat ! (2). Somewhere among the tangled threads of the history of the proposed program an answer should be found. Early educational programs An educational program for all custodians in the public schools of California was clearly in the plans of the group that founded the California School Custodians IAssociation in 1927. The original letter sent out in 1926 to prospective members listed the "raising of working standards of efficiency" as one of the primary purposes for founding the new group (X). The first definite policy adopted by the charter members listed the following goals of the proposed associations j 2nd. Establish a system of education for the school custodian that would eventually place him on the same level as other crafts. 3rd. To work for a system of recognition for the school custodian from the State Department of Education. <3s1927) The inclusion of these objectives made it very j |clear that the men Who founded the California School Em ployees Association realized fully the importance of an i {educational program to the future welfare of the group. i The Los Angeles City Board of Education established |a janitor-engineering school of training in 1928. Several |of the CSEA officers were among the group that drew up the ;curriculum. The association voted enthusiastic approval of this venture and sent a resolution to the Los Angeles City board to this effect (6sl928). i i The University of California at Berkeley also be- I came interested in the new group in 1928 and asked to be allowed to make a survey under its auspices covering the hours worked, duties, and wage scales of custodians. Dr. I. Peterson conducted the survey Which took several ___ months to complete (6x1928). The idea of training courses for custodians made rapid headway and The School Employees Journal in its first issue of August, 1929, carried the following storyx A New Kind of Graduation On June 13, 1929, 434 men graduated from the Frank Wiggins Trade School. They received Certifi cates of Proficiency as School Custodians at a ceremony held in the Shrine Auditorium. (4x1929) The following issue of The Journal explained that the motto "We Serve" was adopted because education is gained in both a theoretical and practical manner. The high standards of efficiency gained through education reaps its reward and the day is fast approaching when a higher standard of service will be universally expected. The members felt that they must not only encourage the thought, "We aim to please," but to show the world that "We Serve!" (4) The initial objects of the association were publi cized to bex "Its objects shall be to promote the effi ciency and raise the standards of service of all public school employees." (4x1929) The October, 1929, issue of The Journal featured an article describing the plan of the Los Angeles City Board of Education wherein custodians were required to attend the janitor-engineering training school at least two hours per mik. Editor Swift believed that tha ultimata result, naturally, will be the i elimination of tha unfit, higher standards, and | increased efficiency, and these in turn we feel will result in great compensation and wider recog nition of the employ**8 ** integral parts of our public school system. (4>1929) | The course of studies was outlined as followsx A. Floors 1. Concrete 2. Soft wood 3. Maple 4. Linoleum 5. Industrial carpet B. Processing According to Age 1. Renovating 2• Cleaning C. Desks and School Furniture 1. Duco 2. Stain and varnish D. Lavatories 1. Cleaning and whitening bowls 2. Most economical ways of maintaining E. Dust and Dusting F. Heating and Ventilation 6. Building Renovation and Maintenance H. Cleansers and Their Use I. Organizing the Work for the Day, the Month, and the Year J. Useful Hints on Repairs K. Care of Lawns and Shrubbery L. Janitor's Relationship to the Principal, Teacher, and Pupils (4x1929) The annual conference held in 1930 was honored by having R. R. Hammers ley, principal of the Custodian's Training School of San Francisco,in attendance. He sopke on the need for education in order to prevent the school 180 : r~ t service from becoming a dumping ground for mediocre custo dians. An educational program was adopted at this confer- i j i ence which included the followings 1. To have men trained as instructors in custodian service. 2. Establish schools on instruction throughout the state. 3. Recommend a plan of certification to be based on a standard of efficiency and experience, this plan being formulated to professionalize the job and be recognized as such. (6s1930) The educational committee under the chairmanship of Nr. R. R. Hammersley of San Francisco, acting in con junction with the University of California at Berkeley, conducted the first educational meeting of its kind in California. The committee drew up a plan for a training program which was as follows: A. Leadership Training B. Establishment of classes for Custodian-Engineers C. Organization of materials and methods for pro moting brandies of the association D. Elevation of the position of Custodian-Engineer to a higher level through s 1st. Custodial conferences 2nd. Institute programs 3rd. Conferences with Administrators and Boards of Trustees 4th. Talks before parent-teacher organizations 5th. Contributions to various publications (2*1930) The first conference held under this plan took place at the University of California at Berkeley on July 182 13 through July 20, 1931, inclusive. Thirty-five associa tion members took the course and Mr. Frank Thonas of Alameda acted as secretary. Lectures were given by Dr. * Borage of Long Beach and Janes Mahonay of San Francisco, j Dr. Ben Mallory of the University of California acted as | mentor (2 >1931). j | One of the results of this conference prompted J. C. .Swift, past president of the association, to write to i Dr. Frank Hart of the university for his opinion on the i question of state certification for school custodians and his reply stateds On October 28th, I have written to State Super intendent of Instruction, Dr. V. Kersey, asking him whether or not it is within the power of the State Board to take steps to establish a scheme of certifi cation. Dr. Kersey will probably write you direct regarding the matter. (1) The preceding materials were the first written I actions of the California Public School Custodians Associa- i ! tion in regard to the idea of state certification. I « The education committee under the leadership of R. R. Hammersley organized a series of educational confer- i ; ences at the University of California at Berkeley from ; June 27 to August 1( 1931, and at the University of Cali- , j fornia at Los Angeles from June 20 to June 24, 1931. 183 i Ueturiri Mr* Nr. J* C. Btwldc, Dr. B. A. Lee, Dr. 6. Watkins, and Nr. Ban Johnson. Tha confarancas were jointly | conductad by CSEA, tha Stata Department of Education, and J |tha Division of Vocational Education of the University of |California. A $10.00 registration fee was charged and a j |$15.00 charge ms made for a room and all meals for the !duration of the conference. Tha purpose of the conferences was stated to be to 1 train a selected group of building superintendents and custodian foremen in the techniques of training new em- I ployees in custodial positions. It was noted that in case custodian-engineering training classes were formally organ- ;ized on an evening trade extension basis in any part of i Ithe state, attendance at this conference would be accepted by the State Department of Education as partial fulfillment of the requirement for a state teacher's credential. Admission requirements limited attendance to men iwhose experience and personal qualifications obviously warranted their consideration as meeting the standards of the State Department of Education. The conference sessions ran from 8s00 A.M. to 12s00 noon, and from ls30 P.M. to 5s30 P.M. A fifty-cent luncheon 184 : i was served each day and an aapart in achool administration j spoke to tha group at this tima. | Tha topics covarad ware (1) the school heating plant, (2) school buildings and grounds, (3) health, safety, ! and sanitation, (4) clerical duties, (5) organization of I | work, (6) economy, (7) maintenance standards, and (8) per sonnel relations (2t1931). The entire conference finished with a banquet t I | generously donated by one of the exhibitors at the confer- I • ; | ence. By a coincidence the main speaker at the banquet was; j | also the owner of one of the large floor cleaning supply houses with an eadiibit at the session (2>1931). j ■ The year of 1933 found the state of California in I , j serious financial difficulties and the demand for savings i 1 on the part of all tax supported institutions was widely i i ! voiced in the state. Dr. Hart answered some of the criti- ; cisms in an article in The Journal wherein he pointed out : that better trained custodians would save the taxpayers i | more than their costs. He also stressed the point that custodians would have to raise their standards if they i iwanted to raise their pay (4s1933). Certification of th> nontoicihiiw school — plov— Plana for cartification were apparently proceeding smoothly under the direction of Nr. Herbert H. Price of Berkeley, chairman of the certification committee. In Nay of 1935 the president of the aaaociation received a letter from Dr. Kersey, State Superintendent of Public instruction, that the State Board of Education had approved of a plan to issue certificates for custodians and custodian- engineers (1). Nany articles vere now appearing in The Journal on the upward trend in the training of custodians. One sug gestion even called for them to study chemistry related to their work. Suggestions on how to operate steam boilers and oil burners were included (4s1935). The minutes of the Tenth Annual Conference held in 1936 listed the following requirements for the new creden tials s Special Credentials for School Custodians Credentials may be issued to non-teaching employees for custodial work in the public schools as follows t I. Credential for Custodial Engineer II. Credential for Assistant Custodial Engineer III. Credential for Custodian IV. Credential for Assistant Custodian 186 V. Credential tor Power Plant Operator VI. Credential for Beating Plant Operator General Requirements An applicant for a credential as school custodian ■uet submits A. A certificate from a physician licensed to practice medicine and surgery that the appli cant is physically and mentally fit to be engaged as a non-teaching employee in the public school. B. Verification oft 1. Registration as a voter in California 2. Two years' residence in California specific Requirements In addition to the above general requirements, the following requirements govern the issuance of the several credentials. I. Custodian-Engineer The credential for the custodian-engineer may be granted to a person between the ages of twenty-five and forty-five, upon verification of x C. High school graduation or the equivalent D. Four years of experience as a custodian in public buildings, as a power plant operator, or as a heating plant operator plua six months course of training in a recognized vocational school for custodian-engineers. E. A successful trade examination provided by the State Department of Education which shall furnish proof oft 1. Knowledge of organization of employees and their duties. 2. Knowledge of electrical equipment, plumb ing, carpenter work, painting, gardening, hardware and shades, together with minor repairs of equipment when necessary. 3. Knowledge of methods of cleaning and main taining school buildings. 187 4. Ability to operate high and low pressure haating ayataaa. (8taamr boilers, vacuum pusps, burners, vantilating equipment, miaeallanaoua equipment.) 5. Knowladga of indua trial chad a try in ao far aa it conearaa custodial work. 6. Knowladga of mathoda of claaning school buildinga. 7. Knowladga of aanitation. 8. Ability to maka and kaap reporta. Authoriaation < Thia credential authorises tha holder to asauma complete charge of tha entire physical achool plant, to operate either low or high pressure heating sys tems aa the plant may require, and to direct assist ants in all cuatodial duties. II. Assistant Custodian Engineer The credential for the assistant custodian- engineer may be granted to a person between the ages of twenty-five and forty-five, upon verifi cation of s C. Completion of eight grades of school work or the equivalent. D. Two years of esqperience as custodian in public buildings, as a power plant operator, or as a heating plant operator, or six months training in a recognized vocational school for custodian engineers. B. A successful trade examination provided by the State Department of Education vftiich shall furn ish proof of* 1. Knowledge of school building upkeep, in cluding care of hardware, shades, floors, floor coverings, glass, and furniture. 2. Ability to operate high and low pressure heating systems. (Steam, boilers, burners miscellaneous equipment.) 3. Ability to make reports. Authorizations This credential authorizes the holder to work under the direction of the custodian engineer and 188 to u n m complete charge of the school plant In tha absancs of tha custodian anginaar. IZZ. Custodian Tha cradantlal for tha custodian may be granted to a parson between tha ages of twenty-five and forty-five, upon verification oft C. Completion of eight grades of school work or tha equivalent. D. Two years of experience as a custodian in public buildings, ,or six months of training in a recognised vocational school for custo dian engineers. E. A successful trade examination provided by the State Department of Education which shall furnish proof oft 1. Knowledge of tools, materials, and equip ment. 2. Knowledge of organization of employees and their duties. 3. Knowledge of methods of cleaning school buildings. 4. Knowledge of industrial chemistry in so far as it concerns custodial work. 5. Knowledge of sanitation. 6. Ability to make and keep reports. Authorization t This credential authorizes the holder to work under the direction of the custodian engineer, or where there is no boiler plant, to have complete charge of all custodial duties in a school plant. ZV. Assistant Custodian The credential for assistant custodian may be granted to a person between the ages of twenty-one and forty-five upon the verifi cation oft C. Completion of eight grades of school work or the equivalent. D. Six months of experience as assistant custo dian, or six months training in a recognized vocational school for custodial engineers. 189 B. A successful trade examination provided by the 8tate Department of Bducation which shall furnish proof ofi 1. Knowledge of tools, materials, and equipment. 2. Knowledge of methods of cleaning school buildings• 3. Ability to make reports. Authorisations i This credential authorizes the holder to work under the direction of the custodian-engineer, or, where there is no boiler plant, under the direc tion of a custodian in a school plant. Terms* Credential may be issued for a period of two years and may be renewed thereafter for periods of 5 years on verification of 5 months of success ful eaqperience in a school plant. i •Note* Any school employee who has been steadily employed in custodial work in a school system during the preceding school year for 150 days may, upon the recommenda tion of the school superintendent, be issued a credential valid for a term of 2 years. The credential may be renewed for a 5 year period under the following conditionss 1. Completion of a minimum training course of 40 hours in custodial engineering offered by the State Department of Education. (6*1936) The State Board of Education approved of this ere- dentialing system on July 7, 1936 (1). Under the original j plan all noncertificated employees of the public schools of California were to be blanketed in. Enthusiasm in CSEA ran high and it was noted that 190 i i the annual oonfaranea dalagataa In 1936 were fully informed I I aa to idiat had transpired. The president's message to the convention showed that the State Board of Education had approved of a system of certification for all school employees, based on educational training, which requires that all employees other than the teacher take a training course, hereafter it will be necessary for enployees to hold certificates from the State Department of Education to receive appointments or promotion, the Association has fought for the enactment of this educational program for 6 years and B. H. Price and his committee finally worked to a successful con clusion. (6<1936) Vierling Kersey, in an article in California Schools j iin the August, 1936, edition, pointed out that certifica- tion was written testimonial of one's ability to work at i the trade or profession designated on the face of the ere- i ! dential. The article pointed out that training was required in order to gain the necessary ability. CSEA was notified that the State Department of Edu cation was ready to receive applications for the new cre dentials on November 7, 1936. There were very few issued because of the requirements and a suggestion was made that all persons presently engaged in a position requiring a credential be issued one and a training program developed later (1). Mrs. Evelyn Clement, chief of the Division of 191 i Teacher Training and Certification, wrote an article for ' the February, 1937, edition of The Scho^1 «*yiovees Journal i in which she stated that the State Board of Education was | ready to issue credentials to the followings i 1. School Custodian-Engineers 2. Assistant Custodian-Engineer 3. School Custodian 4. Assistant School Custodian | 5. School Power Plant Operator 6. School Beating Plant Operator (5x1937) She also stated that a teacher training course was i being developed for school custodians and other persons who; I desired to prepare themselves for the task of training per-; * ’ ! : sonnel. The education committee of CSEA made a very compre- i hensive report of its achievements at the annual conference ! |in 1937. The following objectives of the conmittee were listeds i 1. The complete certification of all the non certificated groups. 2. The establishment of an educational program for all non-certifloated employees in every district in California. 3. Research and tests for new certification re quests, training programs, outlines, and trade analysis. 4. Consideration of ways and means for the purpose of serving those members who are not residing within a convenient location to training centers; consideration given to possibility of a corre- ________ spondence course.______ _ . 192 5. The furnishing of Information concerning re- quirements of certification that ie now in efffcct. 6. Development of new requirements for new certifi cation to include training programs, analysis, and testf calling on the University of Califor nia for assistance whenever necessary. 7. Stimulation and encouragement toward profes sional growth of those members who have taken university training and who are expecting to teach their present occupations within their own districts. 8. Assistance in promoting educational training centers} furnishing outlines, procedure, and advice. 9. Oive consideration and help in the forming of work standards and instructional standards throughout the state. 10. Preliminary plans and publicity toward mandatory certification for the year 1939. (6x1937) Training centers were established in San Diego, Santa Barbara, San Bernardino, Santa Ana, Beverly Hills, Burbank, bong Beach, Whittier, Alhambra, El Monte, Los Angeles, Pasadena, San Jose, San Mateo, and Monterey. There were five instructors ready who had completed their training at the University of California at Los Angeles (6x1937). The new certification plan began to have many effects on the proposals for the development of methods necessary to train personnel in the job skills needed to qualify for the credentials. One such proposal was made 193 i i j by W. T. Brown, instructor at the Frank Wiggins Trade i School of Los Angeles, who spoke to a meeting of the association's education cosnittee on October 30, 1937. Be proposed to develop a correspondence course in training i 1 for certification. It was his belief that the course could i | be handled through The School Wf'iovees Journal (2*1937). j The permissive nature of the certification program ! j soon became evident. Very few applications were received. ! ; , i i The education cosnittee finally began to propose that the I | programs be made mandatory for all nonteaching employees |of the public schools in 1938 (2*1939). Chairman Harold Wells of the education cosnittee reported at the Fourteenth Annual Conference that several enployees throughout the state had taken advantage of the program. It was the general opinion that the requirements for the credential had been set too high (6*1939). Training classes were being held in the north by ;Mr. Herb Price. School employees from Richmond, Napa, I i Vallejo, Salinas, San Mateo, Santa Cruz, and Watsonville i participated in these sessions. Mr. C. M. Prior conducted classes in the southern part of the state. Employees from South Downey, Bellflower, and Whittier took part in these class** (2s1940). Chairman Walls pleaded with the delegates at the Fourteenth Annual Conference in the following wordss | Certification and education go hand in hand and rightly so. We cannot overemphasise the value of education to the non-teaching school employee. • . . It will be through the channels of education that the non-teaching employee will improve his status in the schools and the community in which he lives. (6s1940) It was noted that some small progress had been made I iby the education committee during the year and that recent j jlegislation had enabled the State Department of Education I j to pay part of the cost of the training programs. This i 1 would help CSEA since previously the entire cost except j that borne by the trainee had been assumed by the associa- 1 tion (2*1940). The certification plan was well on its way to : success by the time the Sixteenth Annual Conference was | held in July of 1942. The association believed that its | drive to raise the standards of the nonteaching employee j I had earned the respect of many school boards and adminis- i trators. Efforts to develop a standardized course in co- ! operation with the State Board of Education were well along the road to completion. Legislation passed in 1941 which allowed tha county superintendents of schools to pay for institutes for nonteaching employees had net with sons success (6«1942). The plan of certification appeared to he an accept ed fact and well on its way to reality until suddenly in 1942 the state attorney general ruled that the State Board of Education did not have the authority to issue these cre- i | dentials (1) • Credentialing was held to be a function of i i the state legislature. All credentials issued to non- i | teaching employees were thus null and void, it appeared I | that sixteen years of hard work had been wiped out and the ! disappointment was very keen (1). i | Educational programs in the 1940*s The original idea was still believed to be sound | and a new attempt was made to raise the standards of the nonteaching employees of the public schools in 1944. A different approach was atteiqpted by the establishment of a training course carried on through correspondence. This course was to be offered through the correspondence section of the extension division of the university of California. An agreement was reached with the extension office that the i best available course was from the Frank Wiggins Trade 196 i I School. This course was divided into six divisions* (1) floor maintenance, (2) fixture and equipment mainte nance, (3) building operation, (4) low pressure heating, (5) ground maintenance, and (6) supervising, custodianship (2tl944). The course was set up by dividing each topic into | two divisions of ten lessons each. A final examination | was planned for each major division. A responsible school I i i | administrator in the local school district tfiere the examir i I ! nation was to be administered would siqaervise the trainees ■ j | taking it. The cost of each section was set at $10.00, and I ; a $20.00 fee was proposed for each major division (2tl944). i ^ In the meantime a different approach to the problem i ! was being made by Nr. Al K. Evans and Mr. Herb Chellis. r Correspondence between the two men began bn January 26, 1944, when Mr. Chellis, director of operations for the Los Angeles City School District, wrote a letter to Evans in ! which he suggested that perhaps the problem of in-service training could best be approached by developing the needs I first. A list of all positions around a school plant that should be included in the program wouid thus be developed, then a course detailed for each classification, and these 197 , i courses would thsn be submitted to the University of Cali- 1 i fornia in order that the content of the course and the number of hours required to teach it could be set up for leach subject. It was his opinion that this would be prefer able to any existing materials and courses if the needs of ■ the employees were to be the paramount consideration (1). Nr. Evans attempted to follow this suggestion and i i ion December 12, 1945, he wrote a letter to Dr. Roy E. i i I |Simpson, State Superintendent of Public Instruction, in i i ! {Which he stated it was the desire of CSEA that the State |Department of Education undertake a project which would j ilead to a sound, coordinated course of study in school j ! ; building maintenance and operation. He pointed out that | I instruction in these fields had been limited to one-day sessions in the large cities and that little value to em ployees had resulted. Other states had prepared such i courses so it would not be unusual for California to do so, jin Nr. Evan's opinion (1). Dr. Simpson replied to the letter on December 18, 1945. He indicated that he would give the matter his per sonal attention and that his department would go into the i content of the proposed course early in 1946 (1). 198 | j On February 18, 1946, Nr. Evans wrote to Dr. i Simpson end thanked him for hia consideration. He sug gested that CSBA had a quantity of material on hand from other states and the State Department of Education was wel-i { come to uae it (1)• i Dr. Simpson replied to this letter on February 25 t ; j and informed Nr. Bvans that George C. Nann, chief of the ! Division of Adult Education, had been assigned to work with | CSEA on the proposed course (1). i ■ Nr. Nann subsequently communicated with Evans on i . i March 4, 1946, to the effect that he was willing to proceed! with such a course but that materials on the suggested pro- t | gram had already been prepared by the Frank Wiggins Trade | , ; School. It was Nann's opinion that these materials should i i ; be used (1) • A1 K. Evans replied to Mr. Mann on April 10, 1946. ; He traced the development of his proposal over the past i ; four years, acknowledged the material at the Frank Wiggins i ! ; Trade School, and then pointed out the cost involved for : the trainee. It was still the opinion of Mr. Evans that i j other states had developed good programs at a small cost ! to the trainees and California should also attempt to do 199 •O (1). ! Mr. Mann returned an opinion* in a latter to Bvane i | on April 12, 1946 * that this idea of a low cost training i j plan was very good. He suggested that the two of them meet t _ 1 j for lunch in San Francisco at an early date (1). This i j ilunCheon engagement was held early in Nay and on the I twentieth Mann wrote to Herb Chellis. He informed Mr. i t i Chellis that arrangements had been made to formulate a | 1 course of study and that they were to work together on its I development (1) • The following June 20* 1946, Chellis wrote to Evans | I that a meeting had been held with George Mann and the fol- ' lowing agreements had been reached * 1. The California State Department of Education was willing to appoint an official to work with i * CSEA on the development of a five or six unit course. 2. CSEA would cooperate in every way possible (1). In September, Mr. Evans wrote to George Mann and indicated that the education committee of CSEA was pre- j pared to go ahead. He indicated that the sooner a state department representative was appointed, the better it would be for the proposed program (1). Nann replied on September 11, 1946, that the state department was nearly ready to proceed and that a representative would be dele gated in the near future (1). L. C. Suffield, business manager of the San Jose i Unified School District, notified CSEA through Nr. Frank Thomas of Berkeley on December 2, 1946, that the state department was willing to proceed with the plan only if i CSEA would put up $1,000 (1). This fact was communicated i to President Bob Trimlett and he instructed Chairman A1 K. ! Evans that CSEA did not have $1,000 to give to the state | department (1). An emergency meeting of the education committee was | held on January 18, 1947, and the committee was informed I that CSEA could not pay for the course so an attempt would have to be made to. find some other way of financing it (2*1947)• This alternative method appeared to be an attempt to work through the county school superintendents i | since the next communication noted was from C. C. Trilling- ham, Los Angeles County Superintendent of Schools. In his letter of January 31, 1947, Dr. Trillingham indicated that the Los Angeles County schools were planning to allocate I 201 more money for a batter in-service training program for maintenance men. 2To mention was made of the proposed course of studies (1). Che report of the education committee to the annual | ; J conference in July of 1947 indicated that major progress ! had been made toward the goal of CSEA sponsored educational i classes for all nonteaching school personnel. Che educa- l i tion committee had contacted state superintendents through-! i . i | out the United States and the accumulated data had been studied diligently. Che results of the study had been pre- i ; sented to the California State Department of Education in | April and May in an effort to get some state financial j I assistance in the program. It was hoped that the final | recommendations of the committee would be sponsored by the ! state department and the extension division of the Univer sity of California (6tl947). Che committee also reported the possibility that competent instructors would be provided by the various ! state colleges. Nr. Gail Moore, the supervisor of Trade i and Industrial Ceacher Training, State Department of Bduca- i tion, and Mr. George Mann, chief of the Division of Adult and Continuation Education, were highly commended for their i excellent cooperation (6c1947). Tha committee emphasized tha graat value of insti tutes until in-service training was generally available. Under the provisions of new legislation, institutes could be financed as adult education classes or paid for from school district funds. Many counties were holding insti tutes under the provisions of this legislation (6*1947). I The admonition of the committee to the membership to continue to press for institutes proved very sound be cause all attempts to coordinate a plan with the State Department of Education were abruptly ended. On August 5, i 1947, President Trimlett wrote a letter to William T. Brown t of the Frank Wiggins Trade School and requested him to takej over the job of chairman of the education committee and to ; attempt to put his plan into effect (1). William Brown then began an intensive letter writ ing campaign to county superintendents. He organized over fifty-eight meetings at the county level in an effort to sell his ideas on in-service training programs (2c1947). He wrote 815 letters to vocational high schools and spoke to numerous groups throughout the state. By October of 1947, Brown had his plan ready. Under his proposal a 1 203 j i i training school for custodians would be set up throughout j California. Itinerant instructors would be employed by ! | each county superintendent and assigned to a given number I i ! of districts within said county. Classes of fifteen would i | ! be set up in areas where the number of custodians employed j : would make such classes possible. A schedule for itinerant | instructors was set up in the southern part of the state | which called for the following classest i Monday Tuesday Wednesday | Los Angeles County: Santa Monica Redondo Inglewood Montebello Whittier Pomona i i Orange County: Santa Ana Santa Ana Anaheim i San Bernardino County: San Bernardino Riverside Redlands In November of 1947, Brown recommended that the following plan be adopted by CSEA: A Recommended In-Service Training Program for Custodians 1. Day trade extension courses for custodians with itinerant instructors. 2. Evening trade extension classes in convenient areas. 3. County and District Institutes for school employees. Thursday Friday Compton Long Beadi Ontario Azusa i La Habra Fullerton Colton Corona (2:1947) ! 204 4* In-service training workshops in the North, Central, and Southern parts of the state for Maintenance and custodian-engineer employees. 5. Educational conferences and conventions. ) Suggested Instructional Program Kind of Courses Trade extension covering custodial service and low pressure engineering. Given once each week, 3 to 4 hours. Length of Courses Minimum 160 hours to 320 hours. Course meets all Federal and State aid Require ments. Teaching Techniquess Conference Method, Four Teaching Steps, Lesson Plans. Job instruction and information sheets. Demonstrations and work projects. Awardss Certificate awarded on completion of trade extension course. Administrations By County Board of Education. The district will be reimbursed by State through A.D.A. and Smith-Hughes Funds. Equipment and Materials s Furnished by each indi vidual District. / Available books and materials dealing with the pro posed course wares (1) Boiler Operation. $1.00 each; (2) Questions and Answers. $2.00 each; (3) Boiler Operation Manual of Job Sheets. $1.50 each; and (4) Care of Floors, $3.00 each (2sl947). By March 6, 1948, the program was adopted and it went into operation. Classes were begun in Glendale, Los Angeles City, Los Angeles County, Berkeley, Alameda, and Richmond. In October of 1948 William T. Brown gave up in despair because of the apathy of the school employees and 205 i resigned as chairman. Ba offered 3,000 copies of his I course to CSEA for $2,000 but the association did not have ; the funds to purchase them (1). | In December of 1948, Mr. A1 K. Bvans wrote again to; j : i » ! j Oeorge Mann of the state department and attempted to get ! some financial help from the state in order to get the i j courses started again (1). Mann replied that he would be j willing to try to get CSEA some funds but on February 4, i : | 1949, Samuel L. Fick, chief of the Bureau of Trade and i i Industrial Education, informed Mr. Evans that the budget j i ! had already been submitted and it was too late (1). i : This letter ended all references in the records of ; ; ! CSEA on programs of this nature. Over twenty-four years of; i i tireless work and effort had ended in a sickening failure. • i ! The despair of these few men was very evident in articles published in The California School Employee (5tl949). Some true values of the work were overlooked such as the meeting | with chapters to explain the program, the articles of early encouragement in The Journal, and the programs of the annual conference. The members were at least aware that CSEA was attempting to work for them. The desire and needs of the members themselves had apparently been overesti- ] 206 i Mt«d (8). ! The movement t w g d inititutM for clwlfitd MPlOYtll From this point on the educational program of CSEA 1 I , I ' i !was directed toward county institutes. A brief flare-up i i of optimism occurred in 1948 when N. E. Viles developed a i |series of eleven units for custodial and maintenance per- i sonnel. These units were listed in an article published in | ; !the American School Board Journal as followss * 1. Custodial program, organisation and adminis tration. 2. General housekeeping problems. 3. Floor and special cleaning areas. 4. Heating and ventilating systems, fuels, j and combustion. 5. Operation and care of heating and ventilating plants. 6. School plant safety and fire protection. 7. Special problems in plant care. 8. Treatment and rejuvenation of floors. 9. Planning the work program. 10. Interior repairs. 11. Exterior and mechanical repairs, and shop controls. (46sl5) , Some articles were written in The California School 1 Employee concerning the suggestions of Viles but these j articles soon ceased appearing (5s1948). The activities of the education committee were de voted to providing the educational panels held at the annual 207 conferences end giving some educational programs at chapter meetings during the 1950*s. CSEA continued to press for county institutes for classified employees during this | period and in 1958 a suggested outline for use in planning ! 'institute sessions was developed. The outline was organ- j jised as followst j Section I lists the broad classifications of school employees and sets up some possible sub-groups around Which sessions could be planned. Some sample schedules for various lengths of time to be devoted to the institute are included. Lists of subject matter covered in various county in stitutes and reported to the CSEA are detailed. Section II outlines the resources available for each classification. Section ill contains some suggestions on evaluation. Section IV comments on some things Which the com mittee felt should be pointed out to institute planners. (2) In the introduction to the booklet the education < . i icommittee statedt i We fully realize that we are not experts. We do feel, however, that ws have a certain amount of knowledge of the needs and desires of classified school employees, and hope that we can be of assist ance to the administrative officers of educational institutions in a continuing and ever increasing effort to help the school employee to become a better school employee so that the surroundings of the teacher may better serve him in his efforts to do the best possible job of teaching the child— the purpose for which the schools are established and maintained. (2) 208 At the 1959 annual conference, Nias N. Ruth Whit comb, chairman of the education committee, made the follow ing reports It appears that the major opportunity for service to classified school employees in the iamediate future lies in the field of assistance | to administrators in increasing and shaping the in-service training program. It may be that the in-service training which is offered should be valuated to whether it answers the needs of to day's employees. Perhaps we are fortunate that there is, or seems to be, little being offered since we will not have to tear down before we begin to build. Along with the horse and buggy and the steam locomotive, the broom and the pen cil have disappeared, or are rapidly disappear ing, from the scene. Our Association should be ready to accept this challenge or perhaps to even throw out the challenge, for adequate preparation of the classified employee for the hinds of jobs now needed in modern school plants. There is plenty of work to be done. The opportunity to help make the training program what it should be, and to increase our own knowledge and under standing %hile we are helping is ours. (6x1959) The report of the educational committee for 1961 indicated that plans were being formulated for a long-range educational program with ernphasis placed on (1) institutes i and workshops, (2) in-service training, and (3) a committee I I of subchairmen representing each classification whose | responsibility would be the preparation and dissemination iof educational materials (6x1961). Marge Huff, chairman of the .education committee 209 submitted the following report to the Thirty-Sixth Annual Conferences I. Goals of the education Committee— outlined and emphasized. A. To provide professional level progress of recent informational worth to our membership. B. To seek and expedite means of dissemi nating the wealth of educational materials at hand, through chapters to membership. C. To recommend a suggested set of guidelines and dimensions to point up continuing interests, concerns, emphasis, and direc tions. II. Outstanding Accomplishments. A. Expansion of Conference Education Program to include thirty outstanding sections. B. Development of a nucleus for a comprehen sive handbook entitled "Institutes for Classified Employees" with the first rough draft to be presented to the Board at the June 1962 meeting. C. Appointment of a core committee— subcom mittee chairmen— one to represent each classification. D. Compilation of materials being incorpor ated into a manual (liaison) or guide, for use by chairmen of the Association's Annual Conference Section meetings. III. Recommendations for Ensuing Year. A. Handbook on Institutes. 1. Expedite distribution. 2. Continuing study, evaluation, and revision. B. Core cosnittee should be continued and given continuity. C. Provide educational programs and guides to chapters through training programs for Regional Education Staff Assistants. (6sl962) 210 Moat of tha larger school districts and some of tha smaller ware conducting in-service training programs for their own classified employees by the end of 1959. A study by Taylor Jackman revealed that this was the case. Bis findings led to the following conclusions with respect to existing in-service training for classified employees of public schoolss 1. Areas of greatest effectiveness weret a. A general awareness of the need for in- service training of classified employees exists. b. The provision of handbooks, manuals, or copies of rules and regulations for all classified employees. c. Training emphasis on employee morale and job performance. d. Coverage of job performance, job require ments, and job skills. 2. Least effective areas wares a. Evaluation of work of classified employees. b. Regular scheduling and planning of train ing meetings. c. Employee participation in such things as visits to other schools, faculty meetings, and staff's social functions. 3. There are differences in opinion concerning the value of certain in-service training activities between the custodians and the principals. 4. Classified employees feel that skill in job performance is their most vital need. (54) The study by Thomas Preece on "The Selection, Training, and Evaluation of School Bus Drivers in Califor nia," written in 1961, shows that a need for improvement in 211 this fisld Is badly nssdsd. Practices followed In local I school districts with respect to in-service training of i bus drivers fall far short of those followed by comercial transportation companies. The results of Preece's ques- ! tionnaire revealed that only 20 per cent of the reporting ! districts held new driver indoctrination meetings, in half | of the surveyed districts the only educational requirement i was the ability to read and write, and the age range of drivers was from eighteen to seventy (57). The recent research on in-service training programs for classified employees by Jackman and Preece shows that a pressing need still exists in this area. Budgetary prob lems and decreasing state apportionments in such areas as i transportation undoubtedly have hindered attempts of the local districts to set up effective programs. Dr. Max Rafferty, on the other hand, expressed the following point of view in his keynote address to the Thirty-Seventh Annual Conference of the California School Employees Associations Last in our parade of good trends in education, but far from the least, is the gradual professionali zation of the classified school employee, and this trend is, I think, irreversible. California leads the way in providing the non-certificated personnel with in-service training, with annual salary incraswnts, with decent provision for ratiramsnt and pansions. Tha years ahaad should saa staady prograss toward battar pay and as>ra job sacurity for tha classifiad employees. (6s1963) Tha status of tha classifiad employees of tha pub- I i lie schools of California is conditioned by public opinion. I ; Bffactive in-service training programs.in the largest dis- 1 i ! tricts are equalized by their almost total absence in the i smaller and more numerous districts. The need for a sound i i j | educational program actively sponsored by CSEA in coopera- i i tion with the California State Department of Education | would seem apparent if a new breed of classified employees ! is to emerge in the school service (8). I Chapter summary It was recognized that one of the nonteaching employee's greatest needs was to evaluate his stature through some system of education and self-improvement from the very beginnings of CSEA. Many methods of training were I attempted, beginning in 1930. These early attempts con- | sisted of potential instructors attending training sessions at the University of California during the summer with the hopes that they would return to their districts and train others. 213 Zn 1935 a plan of cartlflcation for the nonteaching employees of the public schools was initiated, but after sone initial success/the plan died when the state attorney i I general rendered an opinion that the plan was not legal ! since only the state legislature could set up credential | | systems. ! A period then followed during which the CSBA educa tion committee attempted to set up various training pro- i i grams with financial help from the State Department of i i Education but this plan also failed in the end. One more plan was attempted to provide methods of < training classified employees by means of itinerant instruc tors paid by the county superintendents of schools. William T. Brown, instructor at the Frank Wiggins Trade School, prepared many books and manuals for this proposed training program but his plan was not successful at this time. From the early 1950's until the present, the educa tional program of CSEA has consisted largely of planning institutes, developing a guide for institutes, and planning the educational programs of the annual conference. The organization has grown to a large size; the legislative 214 program has developed to a great extent; but the primary goal of self-improvement through education has almost dis appeared, There is somehow a real fascination in the bold I ! and forward looking plans of these early leaders that tried ! I so very hard to reach the goal of raising their own status j by raising the standards of the classified employee through 1 i ( in-service training. It was a progressive vision that CSEA could well afford to reexamine since it is the one primary goal as yet unfulfilled. CHAPTER VI i THE LEGISLATIVE PROGRAM OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION i Introduction Just as a small eddy in a huge air mass is needed to begin the formation of a great storm, so too in the birth of any organization some event must occur that spavins i the original idea. The beginning of the California School i I | Employees Association was almost as accidental as the I I momentary downflow of air on a mountain top that begins ! the air currents needed to set an air mass in motion. For several years prior to 1927 a group of school ! custodians had been meeting in Oakland, California. Ban quets, social events, dances, and other social gatherings were used to hold interest from year to year. In January I of 1927, Mr. Earl Warren, District Attorney of Alameda i ’ County, was invited to one of these gatherings as a guest i speaker. Mr. Warren learned that the group was interested 215 216 in retirement for school employees so he chose this topic. ! In the development of the telh he emphasised that under i | existing laws it was not possible for school employees to : be granted retirement by the state of California. He sug- t | geated that perhaps an organization should be formed with a statewide membership in order to bring about the neces sary legislation (9). The birth of today's large associa tion can thus be traced down to the choice of a topic by a ! speaker at a banquet. The end results of the suggestion : were probably not even anticipated by Mr. Warren. The birth of the legislative j program i An unknown early historian of CSEA noted that the founders had the following visions "As the teacher was protected by tenure, retirement, and certification, the non-certificated group should receive some such protection." (9) p . The group of men that founded the association was : aware that any hopes for the realization of the dreams of beginning a statewide organization would rest on a sound legislative program designed to provide benefits to non teaching school employees. The letter sent to all prospec- tive member* by Lawrence Twoaxe in 1927 contained the basic purposes for beginning a new association. These purposes i |were listed as ■. • . raising the working standards of i | efficiency, to work for old age retirement, and other bene- i fits accruing through a state organization." (2) The first policy adopted at the First Annual Con- i I ference held in 1927 stated that the obtaining of retire ment for all school custodians throughout the state would be the association's primary goal (6x1927). Article I, section 2, of the original constitution i of the California Public School Custodians Association | statedx Its object shall be to unite all California Public School Custodians into one Association as a means of securing a Retirement System for aged and disabled custodians and all other benefits for the good and welfare of all public school custodians within the State of California. (3) The first standing committee named in the consti tution of the association was the legislation comnittee and the first paid employee (if a $25.00 per month retaining fee could be called paid) was an attorney named William P. Schwartz of Oakland. His primary job was to serve as a legislative representative of the association and he was the initial chairman of the legislation committee (6x1927). 218 Section 16 of the by-laws described the duties of the legislation cosmittee as follows t i i It shall be the duty of the Legislation Com mittee to endeavor to secure the introduction into and passage by the Legislature of the State of California of an Act providing for a Retirement ! Qystem for all Public School Custodians within the State of California; and to take such other or further steps as may be advisable or necessary to bring about the passage of such an Act. The Presi dent and Secretary shall be kept informed continu ously of the activities of this Committee. (3) Section 17 related to the duty of members and it stated; It shall be the duty of the members of the Association to endeavor to procure the enactment by the Legislature of the State of California of the Act referred to in the next preceding section; and to do all within their power within their several Counties to further such legislation; and the Secretary shall furnish them with copies of each and every recommendation and a copy of the Act recommended when there shall be such an Act. (3) The fruit of their labors came sooner than expected. A committee of the new association working with R. W. Everett, president of the Northern Section of CTAf was able to get Senate Bill 551 passed by the legislature in 1928. This was an enabling act which permitted a school district with 500 or more teachers to set up a retirement system for all of its eiqployees. Under the terms of the act, an employee would ba entitled to retirement pay at age| i seventy if he had twenty years or more of service with the ! district. The employee was also permitted to retire at sixty-five if he had twenty or more years of service, but at a lower pension. The act provided that the funds neces sary to set up the retirement fund would come from both the district and the employee contributing an amount equal to 4 per cent of the gross salary of the employee (2). The passage of S.B. 551 was hailed by an early historian of CSEA as an outstanding achievement. The original history says: A notable feature of the work done during the year was the passing of Senate Bill 551, an enab ling act giving power to certain school districts to adopt a retirement plan for its employees. Great credit is due to Nr. Schwartz, Mr. Schwingen, and Nr. Luhrsen of the legislative committee for the way they worked and the time they freely gave in lobbying for the bill, and that without thought of remuneration beyond actual expenses which was allowed by the Association, this legislation was the first in the school code to affect all school employ*** and the officers felt that their efforts were not in vain, and above all, that the associa tion was being recognized. The 'funds for this legislative effort were raised by contributions of $2 per member and we were pleased that so many members responded in this way. (9) The delegates at the Third Annual Conference held in 1929 instructed the legislation committee to proceed with needed legislation to amend S.B. 551. This bill j covered only districts with 500 or more teachers and it was i the desire of the organisation to amend the bill in such a manner that all districts could grant retirement to their employees. : The legislative program j prior to 1959 The first Education Code of the state of California was published in 1929 during the superintendency of Vier- ling Kersey. Its contents totaled only 344 pages and there were no sections in it relating to the nonteaching employ ees of the California public schools. In 1931, Chapter IX was added to the Education Code. This chapter was entitled "Employees of School Dis tricts other than Persons Requiring Certification Qualifi cations." There were only three items included in this chapter with reference to noncertificated employees and these allowed local boards to hire janitors and other non teaching employees, no contract could be extended beyond the current year, and leaves of absence could be granted. The January issue of The School Employees Journal published in 1930 listed several new objectives of CSEA. ; Among these objectives was a new approach to the problem I of legislation. The report reads Our Association views with sorrow the unpre paredness of school employees for old age. Retire ment pay was created by industry so the aged and infirm could retire and spend their last few years without financial worry or the fear of being a burden on public funds. This opened the way for a more physically fit man to assist in the great competition of industry. (4s1930) It was discovered that only eight school districts in the state were large enough to grant retirement under the provisions of S.B. 551 and there did not appear to be any hurry on their part to adopt the plan. The Journal contained articles during 1930 that requested action toward the preparation of a new law which would make all school employees the employees of the state. It was contended that school districts were neither more nor less than de partments of the state of California. This being the case, the arguments ran, then all school employees were state employees and hence eligible for retirement under the same terms as state employees (4*1930). The loopholes in S.B. 551 were brought out fully during this year. The provisions for financing the plan were somewhat the same as many of today's legislative enactments; the school board was authorized to levy a tax in addition to any other tax authorized hy law. Local boards could choose to include all employees, or they could specify only the certificated. These defects, plus the fact that only eight districts could quality, spurred the CSEA legislation committee into action to draft new amend ments (2). An all-out effort was made to push through the needed amendments in 1931. No success was reported by the committee. The bill was tabled on May 5, 1931, by the Senate Education Committee because of strong opposition to the new taxes required to extend any retirement benefits. The sponsorship of the amended S.B. 551 was once again a joint effort of teachers and nonteachers. It was reported in the pages of The Journal that the real reason the act was defeated was that many of the members of the legisla ture felt that only teachers should have retirement (4 s 1931). Senator Swing of San Bernardino County introduced S.C.A. 10 at this session with some backing from CSEA members. Under this constitutional amendment the entire cost of education would be borne by the state, thus all employees would become state employees. The only excep- 223 tions to the coats of education to be borne by the state were specified to be buildings, grounds, and equipment. ; This amendment was defeated (2). Another measure defeated at this session which is of current interest was a proposal by the state chamber of commerce that it be made mandatory for all school districts to consolidate (4*1931). The years of 1932 and 1933 were bitter ones for the state of California and education in the state. Hundreds of bills were introduced in the state legislature dealing with economy measures. Some of these bills would have abolished teachers' institutes, remanded the constitutional guarantee on minimum teacher salaries, reduced the compul sory school leaving age, abolished compulsory physical education, raised the kindergarten entering age, curtailed adult education, and, in general, stripped the educational program to the bone (6*1933). No legislative proposals were attempted by CSEA during this period. The legislation committee spent its activities in efforts to have unde sirable legislation defeated (2). The year 1934 found a committee of CSEA headed by Hr. Robert Trimlett of Hollywood preparing a bilj. on civil 224 service for school employees. In early 1935 the executive committee prepared such a proposed act and entrusted it to j i Mr. Schwarts and Mr. Be ter son, principal of the Second i i Street School of Los Angeles. After a great deal of work this bill was unanimously passed in both houses of the legislature (2). This Assembly Bill, A.B. 999, became Part III of I Division IV of the Education Code and included sections ! 5.792 through 5.799b. Under the provisions of these new : code sections it was made permissible for the boards of j i trustees of school districts with an A.D.A. of 850 or more l to adopt a merit system for the employment of noncertifi cated employees. The procedure for setting up a personnel ; commission was outlined in detail and its duties were spelled out as were the responsibilities of the local school boards. Covered in the law were provisions for such things as applications, examinations, eligibility, appoint- ; ments, promotions, demotions, transfers, dismissals, resig nations, lay-offs, reemployment, vacations, leaves of absence, job analysis and specifications, service ratings, and elimination of unfit applicants (20x1935). The provisions of the law concerning the establish- 225 ment of salary schedules, appointment of a personnel direc tor, veteran's preference, and methods of preparing charges against offending employees are substantially the same as in the laws today. No discrimination against applicants because of age, color, creed, sex, or marital status could be practiced (20sl935). In essence, this permissive merit system contained all of the features of civil service sys tems found in many other branches of government— federal, state, and local. Its passage was hailed by CSEA in the following descriptions This bill, while being only an enabling act, and granting school administrators power to adopt civil service if they so desired, was a step in the right direction, and which would later be amended to compulsory civil service for the school employee throughout the state, and that we were getting the legislative recognition we felt we deserved. (9) The historical report of CSEA notedx The signing into law of AB 999, Civil Service Legislation permitting school districts to grant such protection to non-teaching employees, was accomplished after Nr. W. P. Francis, Chairman Civil Service Counittee and members thereof, to gether with Mr. Robert Trimlett, Chairman of the Los Angeles School Employ**8 Civil Service group and his committee called on Governor Merriam in person on July 19th, requesting that he sign the bill into law, which he did on July 19, 1936. (9) I — ■ - . . . . ................................. i | 226 j ; | This successful legislative effort was badly needed ! by C8BA because in the case of the Los Angeles City School I District, etc. v. Griffen. 89 CD 850, Pac (2nd), the Cali fornia Supreme Court ruled that Education Code section 5.1100 was unconstitutional. This was the section author izing the governing boards of any two or more school dis tricts employing 500 or more teachers to establish a re tirement salary plan. It was the opinion of the court that the classification of school districts established in the law was arbitrary and in violation of Article IV, section 25, of the constitution of the state of California. In 1937 the CSEA legislation committee again pre sented a permissive retirement salary bill, A.B. 799. This bill was an attempt to overcome the unconstitutional pro visions of the previous law. It provided that a school district with an A.D.A. of 850 or more could establish a retirement system for its employees upon obtaining a majority of votes of the electors balloting upon the propo sition of establishing such a system. This provision was written into the law because the debts incurred with the establishment of a retirement system would extend beyond the current fiscal year (2). The validity of this law was attacked in early 1937 in superior court and the court ruled that the law was con stitutional. This decision was appealed by the plaintiff and taken to appellate court where the plaintiff was up held. CSEA then filed an appeal with the Supreme Court of the state of California which reversed the appellate court and freed the new retirement system from further attack ( 2) . CSEA, flushed with this success, began to work for legislation that would make the merit system mandatory (2). The Los Angeles City School District, Hawthorne School District, and the Compton Secondary School District adopted it by 1937. A set back occurred, however, in Long Beach where a committee of the board of trustees appointed to investigate the problem recommended that the plan be re jected for the following reasons: (1) The provisions of the Civil Service Bill should be nearly the same as for the certifi cated personnel, in which case the personnel is not permanent for the administrative and supervisory positions. (2) The probationary period is not adequate as it is only six months long. (3) Inasmuch as Civil Service under the School Code cannot be terminated without the consent of the electorate, it should only be adopted with the approval of the electorate. (2) 228 A new first was introduced in the state when the Los Angeles City School District voters passed a retirement system for all school employees on May 4, 1937 (6x1937). In the 1939 session of the state legislature, a drive for mandatory civil service was attempted with the introduction of A.B. 2248 by Assemblyman George Miller of Alameda. The bill passed the Assembly by a vote of fifty to six but then the California School Boards Association put up an all-out fight against it. The measure was held in the Senate Education Committee and it never reached the floor. The historical report of CSEA statesx . . . Due to Senator Bigger of Covelo, Senator Duell of Chico, Senator Slater of Santa Rosa, and Senator Jesperson of Atascadero standing solidly against the balance of the Committee, it was not possible to get a majority recommendation to pass out of Committee onto the Senate for a vote. (The vote was two ayes and four noes in Committee.) (9) Chairman Phillips of the legislation committee was s very bitter about the defeat and he told CSEA that the failure of the passage of Bill 2248 pri marily was due to the lack of strength in member ship of our association up and down the State. It is the opinion of your chairman, that until the membership of the CSEA includes a much larger percentage of the eighteen thousand employees in the state, it is a waste of time, effort, and money to promote further legislation. (6x1939) 229 Many achievements were made at this session, how ever, so the pessimism of Phillips was not justified in full. Bills sponsored by CSEA which passed included paid leaves of absence for illness and authorisation for the school districts to become part of the State Employees Retirement System. An anticivil service bill which would have ruined the provisions of the previously passed A.B. 999 was defeated after some effective lobbying by the CSEA education committee (6x1939). The major advance made at this legislative session was the passage of the State Employees Retirement Law. This was an act to provide for the creation, establishment, and adjustment with other such systems of a retirement system for employees of the state of California and of such cities, school districts, and counties as may elect to include their employees pursuant to contract with the board of administration of such system. This act was placed in the general laws of the state of California since it was primarily intended to cover state employees (6x1939). The Education Code first mentioned retirement for nonteaching employees in the 1939 edition. The code con tains the definition of a contracting district as one which j has elected to have all or any part of ita employees become i j a part of a retirement system and has contracted with the | board for that purpose. It also provided that any school i board could participate in the State Employee Retirement System by making all of its employees not eligible for membership in the State Teachers Retirement System members of S.E.R.S. This act was permissive in its nature but it marked a milestone in the attainment of a sound retirement system for nonteaching Bchool employees (20*1939). CSEA quickly became aware of the advantages of the new retirement system and a vigorous campaign was begun to acquaint every member with the facts concerning this legis lation. Many superintendents, business managers, and school boards expressed themselves as preferring the state plan over the local retirement arrangement in effect pre viously. Actuarial surveys were begun in many districts in an effort to get ready to adopt the new system. The school | districts of San Mateo and Hayward were reported to be the first to adopt the State Employees Retirement System (6s 1940). The 1941 session of the state Assembly considered many pieces of legislation sponsored by CSEA, paramount of 231 which was A.B. 1020, a bill calling for mandatory civil aervlcs for noncartlfloated employees of school districts. j The bill, as introduced by Assemblyman Gardiner Johnson, i I : specified that all school districts with an A.D.A. in ex cess of 850 were to come within the meaning of this law. The historical report of the California School Employees ! Association described the progress of this bill aB follows: However, at the request of the Trustees Asso ciation Legislative Committee who were voicing serious opposition to the Bill, it was decided to have our legislative committee meet with them in order to iron out 14 amendments which they had introduced and would have seriously affected the interpretations of the law. We met with the Trustees Conmittee in the Hotel Embassy, Los Angeles, and agreed to amend the Bill to 7500 A.p.A. on a mandatory basis and a clause was inserted to permit it being submitted to a vote of the electorate on a petition signed by not less than 10 per cent of the electors vot ing at the previous election. On the strength of our agreeing to these amendments, the sponsor was elected to offer the amendments on the floor for adoption which was done and immediately thereafter the Legislative Committee of the Trustees forwarded 15 additional amendments to our sponsor with a request that the Bill be amended once more but more drastically than ever before. Not being desirous of accepting the last mentioned amendments, we requested Assem blyman Johnson to submit our Bill to the Assembly for their consideration at which time Assemblyman Frederick Howser of Long Beach, on behalf of the Trustees, introduced four amendments with the request that they be added to our Bill and asked that Assembly vote favorably on the amendments he submitted. When the vote was taken 18 votes were 232 lost. However, through the effective floor work of Assesblyman Johnson and Aseeniblyman Dille, they secured 43 votes in opposition to the amendments. The vote was then taken on our original Bill, without the amendments. The result was 54 favor able votes and 9 unfavorable votes. This vote should be clear indication to any doubtful CSEA member of the friendship which has been built up in their behalf in the Assembly. The Bill then went to the Senate, and Claude Marona, State Secre tary of the CSEA contacted several chapters with a reguest that a representative attend the hearing on the Bill before the Senate Educational Committee which was held in Sacramento June 12. Nr. Marona, Mr. Frank Thomas of Berkeley, who has been very active on the Legislative program in the north, Mr. F. A. Stewart of Fresno, and Mr. Harold Hall of San Jose, and Mr. Haire met in Sacramento to attend this hearing and these men gave their valu able support, help and advice. Two consultations were held by this group with Senators and Assembly men at that time and a study made on what effect the various amendments would have and the advis ability, of pressing 1020 further at this time, when we already had put through and had on the desk of the Governor for signature, A.B. 1756 which had several provisions not included in A.B. 1020, and for that reason accomplished nearly as much as A.B. 1020 would have accomplished. After conferring with Assemblymen and Senators, the committee was convinced of the wisdom of with drawing A.B. 1020 in order to protect the gains already made. Since that action was taken, we have received several communications from Legislators in Sacramento congratulating us on the action taken and the effect it will have on both the Assembly and the Senate at their next session. (9) Assemblyman Johnson later wrote the following letter to Mr. Edward Haire of CSEAs 233 Edward A. Haire, Esquire 5427 Lexington Ave. Los Angeles, Calif. Dear Eds Thank you very much for your very gracious note of June 21, thanking me for my efforts in behalf of Assembly Bill 1020. As I have told you on many previous occasions, it always seemed to me that your position was sound and that your Bill was entitled to favorable con sideration. Unfortunately, the opposition that you encountered was both unyielding and unreasoning. I hope that you will not be disheartened, because eventually the Bill will be passed. Let me also express to you a word of personal commendation for the very able way in which you steered the Bill up to the final hurdle. It was a pleasure to have worked with you and you were cer tainly both diplomatic and energetic in your efforts to bring all of the conflicting groups together. If I can be of any further service to you or any of your associates, just let me know and I will respond. With warmest best wishes, I am Sincerely yours, GARDINER JOHNSON Member of the Assembly, Nineteenth District. (9) The session was not without success, however, as many bills were passed that CSEA had sponsored. Among these bills were the followings A.B. 727, provided that any officers, agent, or employee of a school district or any other 234 person knowingly operating, or permitting the operation of, a school bus loaded with school children in excess of its lawful capacity were guilty of a misdemeanor. A.B. 845, placed the non-certificated employees on the same plane as the certificated as far as leaves of absence were concerned. A.B. 929, made it possible for the county superin tendent of schools or the local school district to hold Institutes for non-certificated em ployees and to pay the necessary expenses for conducting them. A.B. 1399, provided that an employee of a school district could become a member of a group life insurance system and have the premiums deducted from his salary warrant. A.B. 1110, provided that an employee called up for national defense would retain all of his em ployment rights. A.B. 1756, stipulated that upon a petition of 10 per cent of the electoral votes of a district, the board of Trustees could either grant im mediate civil service to its employees or else submit the question to the electors of the district within thirty days after they had received such petitions. (6*1941) Opposed by CSEA were the following measuress A.B. 1062 and 1387, would have required all school districts to discontinue the performance of any maintenance work with their own employees and to submit all such work to open bidding. A.B. 1787, an alternative merit system with many provisions opposed by the CSEA. This bill was tabled in Committee. (6x1941) The years between 1941 and 1946 were devoted largely to maintaining the benefits secured by CSEA pre viously and fighting to keep unfavorable legislation from being passed. The state retirement system was pushed very hard and in 1942 there were fifteen districts added to the ! number Which had adopted it. In 1945 it was noted that , thirty-nine districts had adopted it and thirty-one re quests for surveys leading to adoption of the system had been received from districts contemplating the adoption of the state plan (6tl945). Retirement Chairman Rick Watts reported to the membership in 1946 that the yearly progress in the adoption of the state retirement system by local districts was as follows t Number of Districts that Year Adopted State Retirement 1942 15 districts 1943 13 districts 1944 7 districts 1945 4 districts 1946 25 districts Total 64 districts (6sl946) The legislative year of 1948 found CSEA once again actively pushing legislation. A major victory was won with the passage of a bill that mandated all districts not covered by an existing retirement system to become members of the State Employees Retirement System by July 1, 1949. The provisions of this act became Chapter 4.5 of Part 3, Division 5, Title 2 of Government Code. It is apparent that the major provisions of the act were aimed at state employees in general and not to the smaller segment of employees from the school districts of the state (5tl949). CSEA had been very concerned with the problems of the cafeteria workers of the public schools for many years. Attempts had been made repeatedly to have them covered by legislation that would make cafeteria workers district em ployees in the same sense that other classified employees were. The efforts to secure such legislation met with little success due to the opposition of school boards and administrators. An opinion delivered in April of 1948 by the state attorney general accomplished what efforts at legis lation had failed to do. This opinion stated that cafeteria workers were indeed employees of the local school district wherein they were employed and as such they were to become members of the State Employees Retirement System. It was further stipulated that district funds were to be used to pay the district's contribution to the retirement fund. This ruling indicated that only employees working more than 50 per cent of the school year were covered (2). Legislation covering these points was quickly 237 i I passed in the state legislature by the enactment of S.B. ! 995 which granted authority to the local school district to pay cafeteria employees1 salaries from the general funds of the district and S.B. 1813 Which provided that retire ment fund contributions for cafeteria employees were also a legal expenditure from the general funds (5sl949). A study of the 1949 edition of the Education Code revealed that it was now 763 pages long, including the index. No mention of retirement systems for the noncer tificated employees of the public schools was included in its contents. The 1951 edition of the code was 854 pages long and the provisions for retirement programs for clas sified school employees were included in this volume. Many advancements were made in the coverage and benefits of the State Employees Retirement System in the next few years. J. R. Croad, in a study of retirement which was presented to the California Association of School Administrators, revealed how much better the retirement plan of the noncertificated employees was than that of the certificated employees (59x283). Further legislative successes in the area of fringe benefits occurred in 1955 with the passage of pro- visions that permitted local boards to grant bereavement leave and paid annual vacations. The initial steps leading to an integrated S.E.R.S. and O.A.S.D.I. (social security) retirement system were begun in the Assembly by the assign ment of an interim committee to study the possibility of such a system (5x1955). The following four years were relatively quiet as far as CSEA's legislative program was concerned. Many proposals for needed legislation were studied and prepared. The big push came in 1959 and was probably the most spectacular breakthrough in legislative achievement by any single organization in the records of the state. Legislation secured in 1959 The intensive work put forth by CSEA resulted in the omnibus bill labeled A.B. 579 and authored by Assembly woman Dorothy Donahoe. Coauthors of the bill were Messrs. Geddes, Porter, Hanna, Allen, Bee, Biddick, Brown, Garri- gos, Hawkins, Masterson, Munnell, Waldie, and Williamson. This bill was to become proclaimed as the classified em ployees' "Bill of Rights." A.B. 579 was subsequently broken up into several less inclusive provisions and passed in this form. I ------ ~ I 239 j The following general description of each measure i passed gives a clear indication of the magnitude of the legislative success achieved in 1959. A.B. 579.— The main provision of this bill was to define classified employees as all persons in positions not requiring certification. It excluded substitute and short-term employees employed and paid for less than 75 per cent of a school year. All local boards were required to classify all nonteaching positions prior to July 1, I960. Included in the classification procedure were such author izations as the followings 1. Boards shall fix and prescribe duties to be performed by classified employees. 2. Boards shall fix and order paid the compen sation of classified eiqplqyees. 3. Wages paid classified employees shall be drawn and paid at least once a month but not later than the tenth of the month following the month in which the wages were earned. 4. The provisions for holding institutes for classified employees were made much more lib eral. Other provisions of A.B. 579 were* (1) It clarified the mandatory retirement age provision and stip ulated that the age would be seventy, (2) provided that districts could not hire persons retired from any school position, (3) permitted maternity leaves with or without pay, (4) granted bereavement leave and provided that this leave could not be deducted from sick leave or vacation, and (5) provided that classified employees in merit system districts shall cease to be in the permanent classified service at age sixty-five (6x1959). Battle lines on this bill were drawn quickly and efforts were made to send the bill to interim study. Assemblywoman Donahoe then statedx It seems to me that every facet of education has had over fifty years to study the plight of the classified school eniployee, and if that has not been sufficient time certainly two more yearB will not produce positive results. (5x1959) The bill was passed after a difficult floor battle, signed by Governor Edmund "Pat" Brown, and CSEA was on its way to a successful legislative year. A.B. 2423.— This bill, cosponsored by the Califor nia Teachers Association, provided that all school employ ees must be fingerprinted. It further provided that the i prints must bs mads within tsn days following employment i ! and the board of trustees could reiniburse the employee for I the cost of having the fingerprints taken. All persons employed prior to the enactment of this bill were required to be fingerprinted within two years from the date of pass age of the law (5sl959). A.B. 2429.— This measure provided that any classi fied employee of a school district who had been employed for one calendar year or more by that district and who quit such district for the sole purpose of accepting another : classified position in a district in the state of Califor nia, could, if agreed to by the new district, have all or any part of his accumulated sick leave transferred to the new district. This bill encountered violent opposition and was passed after a strenuous attempt to defeat it (5s 1959). A.B. 2485.— This bill, also authored by Assembly woman Donahoe, was a very important victory for CSBA. The major provisions of the bill included the followings 1. The issuance of a one-year contract to each classified employee. 2. If the local board did not wish to issue a 242 one-year contract or adopt the merit eyetern, then it wae permitted to establish ita own system of permanency. In such a case the employee could be dismissed for "cause only" but such "cause" was left to the local board. 3. The work week was established at forty hours. 4. Permitted overtime to be paid either in cash or in compensatory time off but at a rate at least equal to the regular rate of pay of the employee. This bill also encountered some bitter opposition. It seemed doomed to failure in the Senate at one point when a vote was two short of passage but enough missing senators were rounded up by Richard Bartlett and their affirmative ballots carried the measure to a successful passage (6* 1959). A.B. 2486.— This bill was a "watered down" version of a much more liberal bill scheduled for introduction. It provided for one day of sick leave per month for classi fied employees and made provisions for prorating sick leave provisions to employees hired for less than a full year. It passed without a great deal of opposition (6t1959). * A.B. 2469."-This measure enabled the classified i school employees to obtain retirement under both the ! | 8.E.R.S. and the O.A.8.D.I. (social security) systems. The | matter had been studied for several years and the reasons i for its initiation by CSBA were listed as followss 1. The average classified school employee is not a "career" employee but is hired after he is forty-five or more years of age. 2. Because of being employed during the later years of their life, most of these employees were covered by social security in their pre vious field of employment. 3. S.E.R.S. did not provide adequate Burvivors benefits. 4. If an employee left the school service and returned to industry, the years served in the schools were "lost years" and could not be made up (7<1959). The original bill coordinating the two systems ran into some problems over various provisions and it was finally broken up into three senate bills which were as follows* 244 X. SB 1328— County Superintendent's Contract a. Automatic coordination with social security without any elections but SVBRY classified employee to be given one of three optionss (1) To leave the system just as it pres ently is without any change insofar as he was concerned. (2) To leave the system as is but to in clude survivor's benefits therein. (3) To coordinate with social security on the l/60th-l/90th formula. All new employees will come under the coordinated system. 2. SB 1174 (Government Code 20493 contracting agencies) a. This did exactly the same to these contracts as for those under a county contract. 3. SB 1329 (individual contracting agencies) a. It first automatically brought their level of benefits to a parity with other classi fied employees. b. Second, it placed them under Government Code 8ection 20493, thus assuring that future benefits would be added to the con tract without local action thereby insuring a single level of benefits to all classified employees. c. Finally, it coordinated the contracts in exactly the same manner as provide for county superintendent's contracts. (5t1959) In this form the measures were successfully passed and one of the finest retirement systems in the United States came into being. The preceding bills were the major measures that "triggered" the explosive growth of CSEA both in its mem bership and its legislative program. In his report to the delegatee attending the Thirty-Third Annual Conference, 245 Richard Bartlett noted* Perhaps the greateet eingle instance dealt with our legislative program. As most of you are aware, the legislative and retirement committees specifically developed our legislative program over a two-year period prior to the 1959 general session of the state legislature. It was then re viewed, modified, and approved by the state executive committee. The entire program in pre liminary form was then detailed and forwarded to every chapter unit of the Association and to every educational association in the state requesting comments and constructive criticisms. . . . Generally speaking, by the time our bills had reached an Assembly or Senate Committee, we were in agreement with other associations on the proposals that we were concerned with. ... I don't think any of them would have ventured a thought that we would be fortunate enough to achieve almost one hundred percent of our aims, but the fact that we were so miraculously successful extends to us even greater recognition, and, this point I must stress, far greater responsibility ... We must then concern and insure ourselves that all of the things we do or propose doing are good. (6*1960) The legislative year of 1961 launched another big legislative program in 1961 with the following results* The California School Employees Association Bill Principal Author Disposition A.B. 398 A.B. 400 A.B. 517 A.B. 869 Mr. Waldie Me. Begland Mr. Bee Mr. Banna Lost Lost Enacted Enacted Bill Principal Author Disposition A.B. 870 Nr. Banna Enacted A.B. 1783 Nr. G. Brown Enacted. A.B. 1784 Nr. 0. Brown Enacted A.B. 2183* Nr. Porter Enacted A.B. 2268 Nr. Casey Enacted A.B. 2390 Nr. Garrigus Enacted A.B. 2547 Nr. Rumford Enacted A.B. 2812* Nr. Busterud Enacted A.B. 3096 Nr. Neyers Enacted *Cosponsored with the Los Angeles Personnel commission (5*1961) The bills, in summary, provided for the following benefits to CSEAx A.B. 398.— This measure would have raised the statutory limitations on "force account" or school district labor from $1,000 to $3,000. The provision that school districts could make repairs, alterations, or additions to school plants using school employees if the labor costs did not exceed $1,000 had been in the code for twenty years. Inflated costs and salaries alone had badly distorted the original intent of the legislature. The contractors and the labor unions opposed A.B. 398 and it did not get out of committee (5*1961). A.B. 400.— This bill would have allowed school employees the necessary time off to vote at elections. This bill ran into trouble in the Senate Elections Consxittee and it was killed there (5sl961). A.B. 517.— This measure provided a method by which an election is held in a school district for the incorpora tion of a merit system. This bill passed with no major opposition (5tl961). A.B.*a 869. 1783. 1784, and 2390.— These four bills were grouped together since they applied to the same subject matter--retention of position, benefits, salary, and so forth, by classified school employees upon reorgani zation of the school district of employment. In essence they provided for continuance in employment of classified school personnel with retention of salary schedules and benefits previously conferred. They provided that when a district is reorganized (unified, et cetera) and one or i more of the districts involved has previously had the merit system, the new district or districts shall also provide the merit system for its classified school employees. These bills are possibly the most important pieces of leg islation that CSBA caused to be enacted insofar as classi fied personnel, generally, are concerned. Unification of districts seemed destined to become the prevailing practice for future district organization. These bills will insure 248 that the rights and benefits of all classified school em ployees are fully and reasonably protected regardless of What may happen to a district under any type of reorganise' tion (5x1961). A.B. 870.— This bill provided that paid leaves of absence for jury service must be granted to classified em ployees (5x1961). A.B. 2183.— This bill provided that certificated employees in merit system districts may take promotional examinations for classified positions (5x1961). A.B. 2268.— This measure amended section 13592 of the Education Code to insure that all classified school personnel could not be required to retire at any age earl ier than seventy. It also provided that classified per sonnel in a merit system district would continue to hold their merit system status through age seventy (5x1961). A.B. 2812.— This bill was instituted by the Los Angeles Personnel Commission and cosponsored and carried by C8EA. It provided that an employee in a merit system district could file for a promotional examination if he met the minimum requirements even though he was then serv ing in some other classification (5x1961). 249 A.B. 3096 and H.R. 6027.— A.B. 3096, authored by Nr. Keyers, was state legislation. H.R. 6027 was federal legislation, and the amendments to it which provide for CSBA's "second chance" were authored by Congressman Cecil R. King, Seventh California Congressional District, Ingle wood, California, and Senator Clare Engle of California. It became Public Law 87-64. These two bills jointly pro vided every classified school employee, who was employed by a school district on or before November 4, 1959, one more (and the last) opportunity to coordinate his retire ment (S.B.R.S.) with social security (O.A.S.D.I.), with the coordination to be on the exact same basis as the original coordination, thus to be retroactive to January 1, 1956 (5x1961). Other legislation passed at the 1961 session of the legislature not introduced by CSBA but vigorously sup ported were the following measures* A.B. 880.— Authored by Assemblyman Gordon Winton, A.B. 880 provided that any school employee could appear before the board of trustees for any legitimate purpose and could not in any way be discriminated against solely for having appeared before the board or any other legally constituted board, commission, et cetera. It made it a misdemeanor for any person to invoke or attempt to invoke disciplinary action against any employee simply because the employee, either voluntarily or involuntarily, appeared before a board (5tl961). A.B. 2375.— This bill can be termed an employee and employee organisation "Bill of Rights." In essence, it provided an employee with the right to join, or refrain » from joining, an employee organization and to have that organization represent him in all matters— all without interference from his administrators or governing boards. A.B. 2375 cannot, in any sense, be construed to provide collective bargaining rights to public employee organiza tions, but it most certainly provides them with the legal right to join and be represented by an organization of their own choosing without duress or coercion from source (5tl961). This bill may well represent one of the most sig nificant measures ever passed dealing with employer- employee group relations as far as classified employees are concerned. It will be referred to again in the next chapter of this paper. 251 A.B. 2471.— This Manure provided the followings 1. An employee Moving from a classified position to a certificated position within a school district (or County Superintendent's office) shall retain all sick leave, vacation and other rights or benefits accumulated as of the date of the transfer. 2. It secures to such an employee, defined in 1 above, all seniority and permanency rights to the classified position he is leaving for a period of 39 months from the time of transfer to the certificated position. It provides that during those 39 months the employee is eligible to return to that position and be treated as if there had not been an interrup tion in his classified service. 3. It attempts to define certificated super visory positions and requires that a person must use at least 50 per cent of his working time in any one or combination of the positions to be considered certificated. 4. It provides that governing boards or appoint ing authorities may not require certification quali fications for any position that is a part of the classified service, thus insuring that a classified position will be open to all who are qualified for the position. (5t1961) The 1961 session of the state legislature was once again a series of major achievements on the part of CSEA. In addition to measures sponsored directly by the associa tion, there were others of equal importance to the classi fied employees of the schools of California enacted at this session. The legislative session of 1963 A brief summary of the 1963 legislative session could be termed "stiffening resistance." This attitude was encountered by CSEA on several of its major bills, most particular of Which was A.B. 2265, a proposal for a manda tory merit system in the public schools of California. The session was one of bitter disappointment for education al groups in general due to the failure of the legislature to come up with a school finance measure acceptable to any of them. A description of the session was contained in the October, 1963, edition of The California School Employee which statedt Volumes could be filled relating to the failure of the legislature to adequately finance the needs of the State's public schools; but that is now "history," and the fight for increased aid will again be waged during the 1964 budget session. It is, however, a "symptom" or, in a sense, a barometer as relates to the 1963 general session of the legislature. It was a "tough" session. It has been erroneously termed a "do nothing" session. The legislature was reluctant and difficult. It was extremely critical, almost hypercritical. Its final actions would seem to indicate it was willing to consider a "half-loaf1 1 more than sufficient. While all concerned are inclined to pass judg ment on the legislature based on what it did or did not enact and relate same to the "cussedness1 1 or "wisdom" of the legislature, we believe that success in a legislative program comes through accurately "gauging" the temper and tenor of the legislature and being able to adapt to it and to rise to the challenge of the day. (5) j An analysis of C8BA sponsored legislation indicated I i | a fair amount of success once again. Bills enacted in- i eluded the followings B.B. 249.— This measure defined "short-term em- i ployees." It made very clear that personnel employed in continued positions are a part of the classified service. I {Persons employed for 195 days, regardless of number of hours worked per day, in the period of July 1 to June 30 : of any school year are thus made a part of the classified service and are extended all benefits of other classified employees. Seventy-five per cent of a school year was de fined as 195 working days, including holidays, sick leave, vacations, and other leaves of absence. A.B. 409.— This bill provided that the following are paid holidays for classified employeesx January 1, February 12, February 22, Nay 30, July 4, September 9, November 11, Thanksgiving Day, December 25, any day de clared a holiday for schools by the governor or the presi dent, and any day declared a holiday for classified em ployees by the local governing board. A.B. 1745.--This bill required that an industrial accident leave policy be established by the local governing 254 boards. This policy must provide leave for classified employees to be used solely for industrial accidents and i | without loss of normal accumulated sick leave, under this policy the employee is entitled to sixty days of industrial accident leave at full pay. In return, he must endorse his workman's compensation check over to the district. A.B. 2169.— This bill established without any question of doubt that all classified employees are en titled to benefits conferred by law or by an action of the governing board. In effect, this bill provided that a part-time classified employee is entitled to at least a prorated share of all fringe benefits. A.B. 2430.— This measure requires that districts under a merit system extend civil service coverage to classified personnel working in their child care centers. A.B. 527.— In the event a civil service district is unable to obtain needed personnel for electronic data processing positions, the governing board may contract for such work for a period not to exceed ninety days, under the provisions of this bill. A.B. 501.— Emergency appointments in civil service districts were extended from five to fifteen days by this MIX. 8.B. 77.— This senate Mil made It mandatory for school districts to offer pay roll deductions for group life or income protection insurance premiums. A.B. 1110.— This Mil permits a district to levy an override tax for the purpose of paying all or part of premiums for health and welfare insurance for employees. S.B. 322.— This Mil provides the local boards with the permissive authority to set classified salaries at any time during the year. If prior to July 1 of any year the board wants to increase salaries effective as of July 1 but finds funds unavailable for this purpose, it may adopt a resolution declaring its intent to increase salaries as of that date. Otherwise, any subsequent action would have to be effective as of the date of board action. A.B. 158.— This assembly bill requires that employ ee costs of food service personnel are to be paid from the general fund of the district. The board may transfer funds from the cafeteria fund or account to the general fund to assist in defraying food service employee costs. S.B. 22.— This bill requires S.E.R.S. to refund excess contributions to those persons who retired between 256 i i January 1, I960, and October 1, 1961, and Who had elected i to be covered by social security on the 1/60-1/90 formula (5tl963). The California School Employees Association in this session also suffered some reverses. There is little doubt but that these measures idiich were lost in 1963 will be introduced again in 1965. The legislation sponsored by CSBA which failed to pass in 1963 was as follows* A.B.'a 2265 and 3088 and S.B. 1025.— All three of these bills covered substantially the same subject, a mandatory merit system for all classified employees of the California public schools. In essence, A.B. 2265 required all districts with an A.D.A. in excess of 9,000 to adopt civil service; A.B. 3088 would have extended tenure provi sions to classified employees in districts of 250 A.D.A. or more; and S.B. 1025 would have abolished the annual con tract provision of the code and required any district not having a merit system to adopt a local system of permanency (5*1963). The opposition to these measures came from many of the administrator groups, the California School Boards Association, and the A.F.L.-C.I.O. It became, evident early 257 I i t in the session that it was going to be virtually impossiblej to have the measures passed. Zn the end, it was referred \ ■ i | to interim study and CSEA began preparations almost imsaedi- i I ately for an all-out effort to secure the passage of these i i i measures in 1965 (6t1963). (Detailed arguments for and i | against the mandatory merit system will be presented in i | Chapter VII of this paper.) A.B. 230.— This bill would have assured an employee who was absent due to illness that he would, when able, be returned to his position. A.B. 310.— This measure would have required all school districts to contribute at least $5.00 per month toward the premium of a medical-hospitalization program. The state would have been required to do the same for retired classified and certificated personnel. The bill failed because of the fourteen million dollar cost per year. It will be introduced again in 1965. A.B. 404.— This bill would have required the position of business manager to become part of the classi fied system. It was referred to interim study and appears to have a good chance of success in 1965. A.B. 3089.— This measure was introduced in the 258 hopes of developing a law which would permit school dis tricts to grant partially or fully paid leaves of absence f I for training or retraining purposes. It was also referred i i to interim study (5tl963). I The session of 1963 was a difficult session for i ! CSBA, as it was for all educational groups in California. i | The association recorded some improvements and suffered ' some reverses. The indications are that these areas which were "lost" in 1963 will be introduced again in 1965. Chapter summary The California School Employees Association was founded initially for the purpose of securing a sound retirement system. This purpose has grown to include many other major goals in the thirty-seven years of its history. The most accurate summary of the association's legislative program can be made by means of a chronological listing of legislation secured over this span of time. This summary is presented in Table 15. A brief summary thus shows that almost all major goals related to retirement, paid leaves, fringe benefits, employee group recognition, and rights of classified em ployees following the reorganization of.school districts 259 had bean von by 1963 while only mandatory civil service still remained unachieved by the California School Employ- !ees Association. i i i i TABLE 15 CHRONOLOGICAL SUMMARY OF THE LEGISLATIVE PROGRAM OF C8EA FROM 1928 TO 1963 Year Bill Summary of Contents 1928 S.B. 551 Retirement enabling act for non teaching school employees. 1935 A.B. 999 Permissive merit systems for school districts. 1937 A.B. 799 Retirement for nonteaching person nel granted upon a favorable elec toral vote of the local citisens. 1939 State Employees Retirement Law. Primarily for state employees but public school classified personnel were covered. 1941 A.B. 845 Leaves of absence for noncertifi cated employees. A.B. 929 Institutes for classified employees A.B. 1399 Pay roll deductions for group life insurance. A.B. 1110 Rights of employees called into service. A.B. 1756 Initiative petitions for civil service elections. TABUI 15— Continued Year Bill Suaaary of Contants 1948 A.B. 865 Mandatory S.B.R.S. ratiranant covaraga for claaaifiad employees. 1949 S.B. 995 Cafeteria employeea paid from general funda. S.B. 1813 Retirement contributiona for cafe teria workers a legal charge against the general funda. 1955 Bereavement leave granted classi fied employees. Paid annual vacations for classi fied employees. 1959 A.B. 579 Defined "classified employees." Provided several fringe benefits. Generally a "Bill of Rights." A.B. 2423 Required fingerprinting of em ployees . A.B. 2429 Permissive transfer of accumulated sick leave. A.B. 2485 The "annual contract" law. A.B. 2486 Sick leave for classified employees. A.B. 2469 Integrated S.B.R.S. and O.A.S.D.I. (Passed as three senate bills, S.B.'s 1328, 1174, and 1329.) 1961 A.B. 517 Election provisions for a merit system. TABLE 15— Continued 261 Year Bill Sumsmry of Contents 1961 A.B. 1783 2390 '• 869, , 1784, These four bills all relate to retention of position, benefits, salaries, et cetera, of classified employees following reorganization of school districts. A.B. 870 Paid leave for jury service. A.B. 2183 Certificated personnel eligible for promotional civil service examinations. A.B. 2268 Set retirement at maximum of seventy years of age. A.B. 3096 Second chance for O.A.S.D.Z. and S.B.R.S. A.B. 2375 Employee organization "Bill of Rights." 1963 S.B. 249 Defines "short-term employees." A.B. 409 Established definite paid holidays, A.B. 1745 Industrial accident leave of absence. A.B. 2169 Rights of part-time classified employees. A.B. 527 Contract rights in electronic data processing. A.B. 501 Emergency appointments in civil service districts extended to fifteen days. 262 TABLE 15— Continued Yur Bill Summary of contents 1963 S.B. 77 Pay roll deductions for group life or income protection insurance. A.B. 1110 Override tax to pay all or part of group medical-hospital insurance. S.B. 322 Permissive retroactive salary schedules. A.B. 158 Cafeteria employees to be paid from the general funds of the district. S.B. 22 Excess S.B.R.S. refunds to retired classified employees. Attempted legislation defeated during the history of CSBA 1929 S.B. 551 amended Attempted amendments to permissive retirement. 1931 S.B. 551 amended Attempted amendments to permissive retirement. 1937 A.B. 2249 Mandatory civil service. 1941 A.B. 1020 Mandatory civil service. 1961 A.B. 398 Force accounts raised to $3,000. A.B. 400 Time off to vote at elections. 1963 A.B. 2265 Mandatory civil service. A.B. 230 Position rights of sick employees. 263 TABLE 15— Continued Year Bill Sussuiry of Content* 1963 A.B. 310 Mandatory contributions toward nodical insurance. A.B. 404 Business manager to be classified position. A.B. 3089 Leave for retraining or training in preparation for the future. r ~ '........................ ( I i i CHAPTER VIZ i t I THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION AND EMPLOYER-EMPLOYEE RELATIONS i i i !Introduction The primary work of CSEA in the immediate future : lies in the field of employer-employee relationships j according to Executive Director Richard W. Bartlett. Much ;remains to be done in other areas such as employee training t |programs, the legislative program, and the extension of j field services, but the fundamental problem remains in this | jarea (8). Federal and state legislation has established a | favorable climate for collective bargaining in private industry but this legislation has specifically exempted |public employees from its provisions (23s3). This exeqp- i |tion has tended to create a type of employer-employee i relationship in the public service that differs from that of private industry. 264 265 1 [ The line of separation between the rights of pri vate enployees and public employees has become very indi- i , I stinct in recent years. Organised public employee groups have begun to demand more and more of the rights granted to | private labor. In many instances, the right to strike, l : negotiate, and arbitrate differences have been demanded. i ! The right of public employees to strike, Whether legally i | recognized or not, has not prevented over a thousand | strikes of public employees in the past ten years (7tl933). iIt is very apparent that school administrators should rec- I i | ognize this problem and take the necessary steps to prevent: the need for their enployees to strike. They should be ! ' aware of the procedures involved in collective bargaining 1 in the event that this procedure becomes necessary. Above jall, public school administrators and school boards need to know what they should be doing about the formulation of strong employee groups capable of representing the dis trict's employees (8). It is evident that problems in the employer- employee relationships in public employment may have created the need for employees to organise. Many of these needs have been satisfied, but enough remained unresolved to create the demand for collective bargaining legislation , at the 1961 and 1963 sessions of the California state legislature (11). The purpose of this chapter is to examine the his- ! torical development of exqployer-employee relationships in private industry, note the extensions of the practices and i j procedures developed in private employment to public agen- ‘ cies, and then to examine the evolving pattern in Califor nia with particular emphasis upon the role played by the California School Employees Association. Employer -mmpiovca Relationships in the Private Enterprise System of the United States Throughout history some men have issued the orders and some men have carried them out. The role of labor has progressed steadily from slavery to serfdom to indentured service to social and economic freedom. The coming of the industrial revolution led directly to the ownership of the means of production and an increasing percentage of perma nent wage earners in the population. These employees worked on the premises and with the tools of the employer. It was his prerogative to set the conditions under which 267 I | the employee could work. For several generations after the Industrial Revolution, there were few to question these pre rogatives and practically none who were able to do so successfully. However, with the turn of the twentieth century and at an accelerating rate since then, the working group has challenged the right of managers to set the conditions of employment unilaterally and has forced the latter to accede to demands for repre sentation of employees in the formulation of poli cies and practices affecting employees. (36x603) The first organizations of labor came into being in this country in the 1790's when the carpenters and shoe makers in Philadelphia, printers in New York, and tailors in Baltimore organized into societies which had many of the characteristics of today's unions. They bargained over wages and hours, demanded closed-shop conditions, engaged in strikes, boycotts, and picketing, paid strike benefits, regulated apprentices, and employed “walking delegates" to see that terms agreed upon were enforced. As these local craft societies became more numerous and active there developed a growing feeling that more united efforts were needed to alleviate some of the worst ills which beset the workingmen of that day. This found expression in the federation of the various societies within a large city into what were called “trade unions." 268 l i The first genuine union of which there is a record in the United States was that of the Federal Society of Journeymen Cordwainers which was organised in Philadelphia in 1794. This society struck in 1799 to prevent wage de creases and won after some months of negotiation. An effort to duplicate this early success some years later ended in failure. The strikers were also hailed into court and convicted on a charge of illegal conspiracy (30tl-39). The rights of labor to organize gained headway very slowly following this court case. In 1842, however, in the celebrated case of Commonwealth v. Hunt. 4 Metcalf 111, 45 Mass. Ill (1842), the Massachusetts Supreme Court handed down a decision that workers had the right to bar gain collectively. This decision eased the pressure on the criminal conspiracy cases. The right of employees to bar gain collectively and be represented by unions was thus established, but employers were free to refuse to bargain collectively with them. There were many attempts made by groups of workers to form unions from 1842 onward but the Civil War, recur ring business depressions, the wave of immigrants from | Europe, and rural residents moving into the large cities imade these efforts largely abortive. As soon as a union ! struck, there was a group of nonunionists ready to take over on the employer1s terms. Some skilled craftsmen organised successfully,, and these unions have remained with us to the present day. They were the typographers (1852), hat finishers (1854), machinists and blacksmiths (1857), and molders (1859). The latter became the first inter national union in 1861 when some Canadian molders1 unions affiliated with it (30tl-39). A rapid expansion of the labor union movement ; occurred following the Civil War. In the larger cities these locals were united into city trades assemblies which looked after the matters of general interest to all work ers. A forerunner of the modern industrial union was the i Knights of St. Crispen, a shoe workers union formed in 1869 for the protection of journeymen shoe workers against the "green hands" coming into the industry. Over 50,000 members were in this group at its peak but with the coming of labor saving machinery the St. Crispens virtually disin tegrated (18t327). In 1866 the National Labor Union, a loose federa- 270 i tion of national trade unions, was formed in an effort to establish a national body which contained all of the vari ous craft and local unions. The chief efforts of this union were directed toward the eight-hour day. It succeed ed in getting a law passed creating an eight-hour day for government laborers and mechanics in 1868 but the act was largely disregarded. The National Labor Union turned its attention to political action in the years that followed, causing the trade unions to grow dissatisfied and they withdrew. By 1872 the National Labor Union had disbanded (18x326). The prolonged business depression of the 1870's forced the unions to lose force gradually. Many bitter strikes were called against successive wage cuts, the introduction of new machinery, and other factors taking away jobs, but almost all of them were lost (30x3). Many striking textile workers in New England were replaced with French-Canadian immigrants and others were forced to sign agreements to join no labor organization as the price of reemployment. Although the strikes of cigar workers in New York attracted wide public attention to the evils of the sweatshop system, they were largely unsuccess- | ful. The 1877 railroad strikes against wage reductions and the introduction of double header freight cars were I marked by such violence that federal troops were used to i quell the strikes for the first time in this country (30s 4). Secret meetings of workers began to occur at this time, clothed in ritual, secret hand shakes, and pass-words. One of these groups was the Noble Order of the Knights of Labor. In the early 1880's, the Knights became a spectac ular mass movement which included workers of all trades and skills. It reached its peak in 1885 following the , Gould Railroad System strike when, for the first time, I officials of a large corporation met with and negotiated | an agreement with the organization. This success swelled j : the Knights membership rolls to over 700,000 employees in more than 5,500 local assemblies, the equivalent of almost 10 per cent of the existing industrial wage earners (30s 4-6). The day of power of the Knights of Labor was brief. ! A railroad strike in 1886 met with disastrous defeat, al most eliminating the Knights from the western railroads. The crowning blow came in the Haymarket riot in Chicago in Nay o£ 1886. A boob was thrown during a mooting sponsored lay an anarchist group Which had attached itself to the Knights. Despite all efforts by Grand Master Workman Terence v. Powderly and others to divest their organisation of any connection with the Haymarket affair, the Knights were thence forth blamed for any violence which occurred in labor disputes, and their prestige, even with the labor group, dwindled rapidly. (36t606) The Knights of Labor, however, proved to be the first national labor organization in this country to remain active over any period of time. Its chief contribution was one of educations Workers learned the strength and weak nesses of the big union type of organisation and the gen eral public was made conscious of the bitter discontent which existed among large segments of industrial wage earners (30s5). The modern American unions With the virtual dissolution of the Knights of Labor, the infant American Federation of Labor stood by ready and willing to take over. In contrast to the mixed crafts and allied groups that made up the Knights, the American Federation of Labor was made up of autonomous crafts unions, each with its own constitution and its own procedures for dealing with employers, _ Only persons______ actively working at the trade were admitted to membership. By 1904 there were 1,675,000 members in the American Fed eration of Labor. They were the aristocracy of American labor and were opposed to extending membership to the un skilled (30x6). Management in private industry was not standing still while this growth was going on. Many antilabor groups were formed such as the American Anti-Boycott Asso ciation which sought to attack the unions through the courts. Among the cases this association took to court was the famed Danbury Batter's case, Loews v. Lawlor, 208 US 274 (1908), in which the court ruled that the Sherman Anti trust Act of 1890 applied to unions. In this decision it was held that members of a union could be held financially responsible for the damages suffered by a manufacturer who had been boycotted at the behest of a union. The Sherman Act was originally aimed at the prevention of restraint of trade, and the court based its decisions in the Danbury case on the premise that labor, when striking or boycott ing, constituted a combination in restraint of trade (30x8). While the labor movement was struggling to combat employer antiunion campaigns and adverse public reactions to the violence of sons strikes, the government was showing new interest in eraployee-employer relations. The depart ment of labor was made a cabinet level department in 1913 by President Taft. The Clayton Act was passed by Congress in 1914 and it provided that nothing contained in the anti trust laws should be construed to forbid the existence of labor organizations. The use of injunctions was forbidden unless absolutely necessary to prevent irreparable injury to the property of the person making the application (30s9)• The courts showed little sympathy with the new legislation, however, and in many cases it was ruled that most of the acts Which the unionists committed were unlaw ful in themselves or in pursuit of illegal objectives. Test cases in which decisions were rendered upholding this viewpoint were Duplex Co. v. Peering. 254 US 443 (1921), and United Mine Workers v. Coronado Coal Company. 259 US 344 (1922). Coupled with the adverse decisions of the United States Supreme Court came the depression of the early 1920's. Union after union lost its war and postwar gains 275 in membership as a movement to destroy all unionism in the i ! United States went into operation. Open ahop contracts i became the order of the day. There were only occasional union victories during this period and membership dropped from a high of over five million in 1920 to three and a half million in 1924 (30x16). Management also undertook a new method of combat ting unions and the need for them during the prosperous days of the late 1920's. Many programs were begun in the fields of employees' pension plans, group life insurance, and medical services. Professional personnel directors appeared in the large corporations and an era of prosperity was evident. Wages rose 12 per cent in the automobile, steel, and petroleum industries. Opportunities for em ployee stock ownership were given in order to create an attitude of partnership between management and labor (30s 20) . In answer to these inroads, the American Federation of Labor established plans of union-management cooperation which proved to be very successful. This cooperative arrangement met with particular success in the railroads, the clothing industry, and the mining industry. Just when i 276 i ! ; this peaceful expansion of cooperative efforts to halt labor disputes was at Its peak, the great depression of i 1929 struck. Another half million union members were lost due to inability to pay dues (30t22). The Norris-LaGuardia Act of 1932 was passed as part of the nationwide effort to halt the ravages of the depres sion. This act declared that the workers' right to organ ize and the right to bargain collectively was the public policy of the United States. Specifically, it also re stricted the issuance of injunctions in labor disputes except under very stringent conditions, relieved officers and unions of unlawful acts of their members, and made "yellow dog contracts" unenforceable in federal courts (30t24). In 1933 the National Industrial Recovery Act was passed in an effort to restore employment and purchasing power. A group of codes was drawn up in each industry to establish fair competition. Section 7(a) of the act re quired that each code contain the provision that employees should have the right to organize and bargain collectively through representatives of their own choosing. Labor boards were created to handle disputes arising out of the interpretation of this section and to handle elections to determine bargaining representation (30x26). under the stimulus of this act, union membership again increased to over three million. The losses sus tained during the early years of the depression were re couped and gains were made in some hitherto nonunion indus tries. The Supreme Court, however, declared the act uncon stitutional in Schechter Poultry Corporation v. U.S.. 295 US 495 (1935). The protections afforded labor, however, had become acceptable and Congress passed the National Labor Relations Act, commonly called the Wagner Act, in 1935. This act is commonly termed labor's Magna Charta. Under it, employees were guaranteed the right to self organization, to form, join, or assist labor organizations, to bargain collectively through representatives of their own choosing, and to engage in concerted activities for the purpose of collective bargaining or other mutual aid or protection. Originally the law recognized only one class of unfair labor practices, those followed by the employer. Five specific practices were forbidden in the act that restricted the bargaining rights of the employers (36x659). 278 The Wagner Act was held to be conetitutlonal in five cases decided in 1937s 1. Associated Press v. H.L.R.B.. 301 US 103 (1937) 2. H.L.R.B. v. Fruehauf Trailer Company. 301 US 58 (1937) 3. H.L.R.B. v. Friedman-Harry Marks Clothing Company, 301 US 58 (1937) 4. H.L.R.B. v. Jones and Lauchlin Steal Corpora tion, 301 US 1 (1937) 5. Washington. Virginia, and Maryland Coach Company v. H.L.R.B., 301 US 142 (1937) Waite observed that unfortunately, the administration of the Wagner Act became subject to increasingly severe criticism as many people, representatives of the public at large as well as management (and, for that matter, some labor representatives), argued that the law was one-sided and favored labor, that the members of the Rational Labor Relations Board and its em ployees had leaned further toward labor than the Act specified, and that some members of the labor group had committed acts which called for control. (36x660) Concurrently with the passage of the Rational Labor Relations Act, there were momentous changes talcing place within the labor movement itself. The issue of craft versus industrial unionism came to a head at the 1935 convention of the American Federation of Labor when a reso lution to expand to include industrial unions was defeatedi 10,933 in favor and 18,024 against (30x28). The presidents of eight American Federation of Labor unions met one month later and created a committee for industrial organisation with the announced purpose of encouraging and promoting the organisation of the unorganised workers in mass pro duction industries. In November of 1938 the new group met and formed the Congress of Industrial Organisations. Thus, organised labor was divided into several groupsi the American Federation of Labor, the Congress of Industrial Organizations, the Standard Railroad Brotherhoods, and the United Mineworkers which was the largest (30x28). The one-sidedness of the National Labor Relations Act was offset by the passage of the Taft-Hartley Law in 1947. Unfair labor practices forbidden employers remained substantially unchanged. Ihere were some unfair practices followed by the unions defined in this lawx 1. Coercion of employees in the exercise of the rights of organization and selection of repre sentatives . 2. Causing discrimination against employees be cause they are unable to gain admission or because their membership has been terminated for some reason other than Mfailure to tender r ■ ........ .................... 280 ! the periodic due* and the initiation fea uni formly required aa a condition of acquiring and retaining membership.M 3. Refusal to bargain collectively with an em ployer after the union has been certified as the bargaining agent. 4. Engaging in secondary boycotts or sympathy or jurisdictional strikes. 5. Attempting to force an employer to deal with an uncertified union or a union other than that certified as the representative of his employees. 6. Charging excessive initiation fees. 7. Attempting to collect from employers fees or bribes for work not performed. (36s662) Other provisions of the Taft-Hartley Act required that the unions seeking certification must file comprehen sive statements with the Secretary of Labor showing their financial transactions, membership requirements, office rosters, and other data. Unions were also forbidden to spend any of their funds on federal elections. The prac tice of "feather bedding," or introducing "make-work" pro visions into union contracts, was declared illegal. Work ers were to be allowed direct access to their employers in order to air individual grievances. Strikes against the federal government were forbidden altogether (36s662). The unions condemned the Tttft-Hartley Act and described it as a "slave labor act." The fact remained that a tremendous change in the climate of public opinion 281 had been nacesaary to paaa this restrictive measure and the; excessive number of strikes In the automobile, steel, meat-1 packing, and textile Industries which occurred In 1946 undoubtedly helped to create this shift In the reactions of the public at large (36*663). This act, plus the determined fight to rid them selves of communists and racketeers, drew the rival A.F.L. and C.Z.O. back together In 1955. Following the death of President William Green of the A.F.L. and President Phillip Murray of the C.Z.O., the newly elected presidents, George Meany of the A.F.L. and Walter Reuther of the C.I.O., showed a real desire to combine the two giant unions. The new organization was named the American Federation of Labor and Congress of Industrial Organizations (29*201). The major task facing the new A.F.L.-C.Z.O. was to rid itself of corrupt leaders. An investigation was begun of the giant Teamsters Union by the ethical practices com mittee of the A.F.L.-C.Z.O. This investigation was taken uip by the Senate of the United States which established a "Committee on Improper Activities in the Labor or Manage ment Field." "This Committee soon uncovered a vast network of corruption in the Teamsters Union at all levels up to 282 and including tha president, Dave Beck, who was also a vice-president of the A.F.L.-C.X.O." (291203) The A.F.L.-C.Z.O. acted promptly to rid itself of racket-ridden elements in its ranks by expelling the team sters, the bakery and confectionery workers, and the laun dry workers. The public, however, still identified the rackets with the entire union movement, and as a result, nduring most of the 1950's, with a Republican and Conserva tive Democratic coalition ruling in Congress, labor lobby ists were hard put to it to prevent the enactment of even stricter legislation." (29*205) Congress passed the "Labor-Management Reporting and Disclosure Act," known as the Hof fa Act, in 1959. Its main provisions laid down precise regulations for the procedure of union elections and for the supervision of all financial matters. It also outlawed extortion picketing and almost all forms of secondary boycotts. These setbacks did not seriously hamper the growth of the unions, however, as Polling states that at the end of the 1950's the American labor movement could claim a membership of almost 18 million, which was a little more than a quarter of the total civilian labor force of 70 million, or over a third of the 50 million eligible to 283 join. . . . Furthermore — and this was the most seri ous feature of all, in view of the occupational trends in the 1950's— comparatively few white-collar workers belonged to unions. (29*207) Emerging from the picture of employer-employee relationships in private industry over the years, some pertinent gains are notable. One of these gains has been the development of the contract between the employers and the employees. The contract is the basic document which sets forth the conditions under which work will be per formed by labor. It is generally broken up into eight sections as followsz 1. Recognition of the representative association or union. 2. Wages to be paid in the various classifica tions during the life of the contract. 3. Working time. 4. Conditions of employment. 5. Management rights. 6. Seniority. 7. Day to day relationships. 8. Legal formalities (38*4.41-4.49). Other gains have included the right of labor to bargain collectively, free from the coercion of employers, . and representation on the basis of majority vote in collec tive negotiation processes. A noticeable trend in indus trial bargaining has been the emergence of fringe benefits. Pelling noted that increasingly in recent years union leaders have found it convenient to take more and more of the gains that they make in collective bargain ing in the form of the reduction of hours and in fringe benefits such as pensions, supplemental un employment benefits, paid vacations, and health and welfare plans. The development of fringe bene fits started in wartime, when there was an obliga tion to avoid the inflationary pressures that would have been caused lay direct wage increases; but the post war period has seen a vast expansion in the same direction. (29t217) Thus, in the area of private employment, employee- employer relationships today contain five basic elements; 1. The individual employee has the right to join an organisation which represents him in nego tiations with the employer. 2. The employer must extend exclusive recognition to the organisation chosen by the majority of his employees. 3. Negotiation between employers and employees is carried on through a system of collective bargaining. 4. A written contract, signed by both employer and employee organisation, contains the condi- ' tions under Which the employees will work. 5. The right to strike remains the employees* ultimate bargaining tool in collective bargain ing. mmpioveg-Brnplovee Relations in the Public Service The problem of employer-employee relations in the public service is a very complex one due to the requirement that a representative government must reserve for itself the inalienable duty to retain ultimate control over the administrative machinery created for the accomplishment of public purposes. Although the federal government has enacted broad and liberal laws creating an ideal climate for labor in private industry, it was noted that "such legislation as has been passed by the national and state governments toward the promotion of collective bargaining in private industry has scrupulously excluded public em ployees from the scope of its provisions.H (22*3) Historically, the concept of the sovereign author- ! - - - .... . . . . . . . . . . . . . . . ^ ! 286 i , j ity of the etate has been, the main reaaon for the lack of i j !legislation establishing greater flexibility in employer- ! employee relationships in the public service. The question raised by Godine stated: "Does an acceptance of the notion that an absolute despotic power . . . must in all govern ments reside somewhere, inherently preclude the possibility of responsible collective negotiation between the state and its employees?" (22:41) The chief danger in an absolute interpretation of the classic theory of sovereignty lies in the clash of the theory of popular government versus authoritarian manage ment. The primary interest of the public is to secure the continuous and uninterrupted services rendered by govern mental employees. This condition oftentimes becomes the exclusive interest of the lay public. Coupled with this attitude is one of public hostility to the growing number of governmental employees supported by general taxes. In this atmosphere, conditions leading to the unresolved problems of the civil service employee are apt to flourish. As Godine states: Public hostility or indifference permits grievances to remain without redress with the result that the civil service presents a deceiv ing picture of surface tranquility beneath which j frustration takas its toll in the form of dimin ishad afficiancy. (22*8) Thasa facts hava brought about the growth of organisations of public employees whose purposes are to seek for the betterment of their economic welfare and to secure a voice in the determination of the conditions under which they will work. Public employee associations have emerged to make articulate and to promote the peculiar and diverse needs of the civil service. They might conceivably become superfluous if an enlightened electorate were interested in the processes of administration or if its elected representatives were more responsive to the requirements of the public service, or if administrative officials could be entrusted unilaterally to carry out the popular mandate with due regard to their tasks and to the welfare of the rank and file. But these conditions do not exist. (22*20) The first recorded public employee union was the National Federation of Post Office Clerks which was chartered by the American Federation of Labor in 1906. Since that time there have been many other unions formed in governmental agencies. In 1944 the following unions of governmental employees were in operations National Federation of Federal Employees American Federation of Government Employees United Federal Workers of America American Federation of State, County, and Municipal Employees State, County, and Municipal Workers of America International Association of Fire-Fighters National Association of hatter Carriers United National Association of Post Office Clerks National Federation of Post Office Clerks National Rural Latter Carriers Association Railway Nail Association National League of District Postmasters of the united States National Association of Postal Supervisors National Alliance of Postal Employees National Federation of Rural Letter Carriers National Association of Post Office and Railway Mail Handlers (30x279) It is of interest to note that of the sixteen government employee unions organized as of 1944, ten were directly concerned with employees of the United States Post Office. The purposes for which these unions were formed remain substantially the same as the ones sought by unions in private industry. Civil service unions have not only directed their efforts toward securing substantial improve ments in working conditions but they have increas- ingly sought an opportunity to share in the formu lation and administration of personnel policies which vitally affect the welfare of the rank and file. (22x3) In 1912, the federal government recognized the rights of federal employees to organize under the terms of the Lloyd-LaFollette Act. Postal employees were specif ically granted the right to organize to promote legislation 289 for the improvement of conditione of labor, hours and rate of pay, and leave of absence, The law provided that organ isation was permissible provided that the right to strike was not a part of the agreement. In 1919, following a strike of policemen in Boston, Congress passed a law for bidding the affiliation of policemen and firemen in Wash ington, D.C., with any organization that retained the right to strike as a legitimate method of gaining its objectives. Any strike in the government service was held to be open defiance of public authority (22t83). Collective bargaining in the public service con tinued to be a vexing problem for many years. A much quoted letter from President Franklin D. Roosevelt to Mr. Luther Steward, president of the National Federation of Federal Employees, in August of 1937 statedt The process of collective bargaining, as usually understood, cannot be translated into the public service. It has its distinct and unsur- mountable limitations when applied to public per sonnel management. The very nature and purposes of Government make it impossible for administra tive officials to represent fully or to bind the employer in mutual discussions with Government employee organizations. The employer is the whole people who speak by means of laws enacted by their representatives in Congress. Accordingly, adminis trative officials and employees alike are governed and guided, and in many instances restricted, by laws which •atabliah policies § procedures, or rules in personnel natters. Particularly, I want to enphasise ay conviction that militant tactics have no place in the functions of any organisation of Government employees. (22s84) Three years after this letter was written, in August of 1940, the Tennessee Valley Authority signed a series of agreements with fifteen A.F.L. unions represent ing its construction and operating employees and with the T.V.A. Trades and Labor Council composed of these unions (22 sS9). The general agreement between the T.V.A. and the T.V.A. Trades and Labor Council which was signed in 1940 was a milestone in the development of a genuine collective bargaining agreement between a governmental agency and employee unions. As Godine points outs The organic legislation establishing the Tenn essee Valley Authority enables the management of this enterprise to conclude agreements with employ ees in a manner which closely resembles collective bargaining in private industry. (22>59) The agreement provided that the principle of exclusive majority representation was recognized; proce dures were established for the resolution of jurisdictional disputes and employee grievances; annual meetings were set up to determine wages, work standards, and conditions of 291 employment? and provisions were made for labor-management cooperative committees. The machinery for the arbitration of disputes by the National Labor Relations Board was in cluded as part of the agreement. The T.V.A. labor relations program has had the following significances First, the General agreement, which has re mained in effect for many years, provides impres sive evidence of the feasibility of collective bargaining in public employment. . . . It is true that this enterprise possesses extraordinary autonomous powers but it is nevertheless a direct instrumentality of the United States Government and the precedents which it has established may, con ceivably at least, be extended to other administra tive areas by appropriate legislative or executive action. Secondly, the establishment of collective bargaining at T.V.A. has successfully challenged the conception of the public service as an integral and indivisible hierarchy. The employee-relations program has been based on a frank recognition of the fact that two categories of personnel may be found in any working organization and that vital distinctions in interest exist between management and the labor force. T.V.A. personnel policy has sought to recognize the validity of each of these interests. Thirdly, the program has sought to cultivate within the supervisory staff a sympathetic regard for employee needs. . . . Finally, the introduction of collective bar gaining at the T.V.A. has not compromised the dis charge by Congress or by administrative officials of their respective responsibilities. (22s62) 292 i i . ; j The right to ■trike In | Public — ploy— nt It has been held by many writers in the field of personnel relations that the effectiveness of collective bargaining is diminished considerably when the right to strike is denied. Godine feels, however, that it is illogical to conclude that the possi bility of collective negotiation between managerial personnel and employees is precluded because of the inadmissibility of strike action. The right to strike may be curtailed . . . and yet permit substantial scope for collective bargaining. (22*85) The fear of strikes by governmental eiqployees re mained with Congress for many years. When the United Federal Workers of America was organized in 1946, its con stitution provided that after a local union has exhausted all other methods to attain its collective bargaining objectives and is considering strike action it . . . shall be guided by the advice and decisions of the National Officers. The National Executive Board shall establish rulqs and regulations governing strike procedures. (22s167) Congress reacted very swiftly to this statement by attaching riders to appropriation bills which provided that no part of any appropriation contained in this Act shall be used to pay the salary or wages of any person who engages in a strike against the Govern ment of the United States or who belongs to an organization of government employees that asserts i 293 the right to strike against the Government of the United States. (22x167) Employees of the federal government were specif ically denied the right to strike under the terms of the Taft-Bartley Act. Thus, the legislature once again clearly reiterated its basic policy of prohibiting strikes against the sovereign state. With the ban on strikes in the federal I service, it became imperative for the government to estab lish some workable method of dealing with individual griev ances and with labor as a group on general conditions of i work. The United States Civil Service Commission set up grievance procedures and has required them to be used by every civil service agency. The procedures specify that the use of hierarchial channels should be followed. Thus the grievance is presented to the supervisor, then on to the next in authority, and finally to the head of the agency. This procedure has been used successfully with the Tennessee Valley Authority and the Atomic Energy Commission (22x249). Gradually the difference between a governmental agency entering into contractual agreements with its em ployees while acting in the role of its sovereign capacity and while acting in the role of a proprietary agent has been more clearly drawn. In the case of Nutter, et al. v. City of Santa Monica, 74 Cal ap 2d 292, the court ruled that the; city's operation of buses is not a municipal affair but an enterprise and the city must therefore bargain with unions in natters concerning city owned transportation employees. Another case dealing with this problem was City of Los Angeles v. Los Angeles Building and Construction Trades Council, 94 Cal ap 2d 36 (1949). In this case the court held that those who enter public employment do not thereby acquire the right to arrange, by negotiation and contract, the terms and conditions of employment which are defined by law or vAiich are subject to regulation by governmental bodies. A further case in which the right of public em ployees to strike was decided by the courts was Mewmarker v. Regents of the University of California. 160 Cal ap 2d 640 (1958). In this case the court ruled that the board of regents of the state university constituted a public entity and that a strike against a public entity is unlawful. In any instance where a strike against such a duly constituted governmental agency is followed, the strike terminates the employment relationship. It would thus appear that the courts maintain that a strike against the government, while acting in the role r “ . . . . . . . . . . . . . . . . . . . . . . ; ; 295 1 ! of government, is unlawful but that when government acta | in a proprietary role, such as operating bus lines or power plants, a strike may be lawful. The opinions of the courts and antistrike legisla- ; tion, however, did not bring about the end of strikes against governmental agencies. The fact is that there have been many strikes among government employees and there will probably be more in the future. David Ziskind found that 1,116 strikes had been held by public employee groups prior to 1940 (39). The problem still remains that if the governmental agencies could and would create adequate machinery for the prevention and/or solution of employment problems, the strike need never be used. In summary, (1) blue collar workers at the federal level have become highly unionized; (2) they have won the right to organize and to affiliate with the large unions of America. (3) In certain instances, such as in areas where the government has assumed a proprietary role, the rights of collective bargaining for public employees have been established. (4) It is unlawful for public employees to strike when they are employed by the government acting in its sovereign capacity. (5) The line of separation between the rights of private employees and public employ ees has become less clear with the passage of time. Employer-Employee Relations and the California School Employees Association Historically, the employer-employee relationships in the public schools of California have been based on the fact that legislation affecting the public schools of California, unlike legislation affecting munici palities of the state, does not permit public school officials to make discretionary decisions. School officials must act as provided for in the statutes. They may act in other expressly stated ways. They may not act except as authorized, regardless of how necessary or desirable for the welfare of the schools action may appear to be. (68*12) Thus, education is a function of the state and the local governing board is an agency of the state for carry ing out such functions as are delegated to it. Management is limited in making decisions relating to policy and the expenditure of funds whereas in private industry management has full authority. The development of sound employer-employee rela tionships in the classified service of the public schools " ' 1 297 of California has been a long and painfully alow one. For many years all problems relating to wages, working condi- i tions f and the personnel process were handled on a face to face basis. School districts in the state were generally small and in only a very few instances was a felt need for i any different method of handling employee problems appar ent. This condition has changed somewhat, but in 1962 there were still 1,227 elementary school districts and 207 ' high school districts in the state. Even though there remains a large number of total districts, the greatest ■ percentage of employees work in districts where the tradi tional ratio of one to one in employer-employee relation ships has long since disappeared. Employer-employee rela tionships are rapidly giving way to employer-employee | organization relationships (7x1963). The teachers of the state recognized this fact many years ago and they formed the California Teachers Association which has performed admirably throughout the years in securing the necessary legislation to maintain sound working conditions. Many protections and rights were secured for the certificated employees but very few were gained for the classified employees until as recently 298 I as 1959. The obvious fact that the services of all school employees are Important and Interdependent seemed to have been overlooked by the legislature, many of the local boards, and some local administrators (7tl963). Today the classified school employees of the state have an association powerful enough to make their wishes known. The organisation Is now equipped to provide a con siderable amount of leadership and training for the officers and membership at the local level in the vital areas of labor relations (50tl94). If the local boards and adminis trators do not see fit to develop sound employer-employee relations policies, then it seems reasonable to assume that the California School Employees Association will sponsor new legislation to do it for them. This has been necessary in the recent past and the fact persists that a new outlook on employee relations has become essential on the part of school administrators. New legislation in California has established new relationships in the public service and in classified employment (50tl92). The school administrator of today should add one more responsibility to the ever growing list of skills needed to perform an adequate job. This involves the responsibility of an in-service training program for him self in the field of labor relations, and especially in the; t field of working with and negotiating with .employee organi sations. It would seem to be a justifiable assumption that trends in labor negotiations in private industry will appear in public employment sooner or later. There is also a need for the employee organizations to share the responsibility for developing sound policies. As Chaffey observed, employee organizations, as the negotiating representatives of their members, must assume a reasonable share of the responsibility for the improvement of iabor relations . . . through exerting their influence in the development of personnel policies, in the interpretation of policies to their members, and in the determina tion of broad conditions of employment. (50:198) Assemblywoman Dorothy Donahoe reminded CSEA that the legislative triumphs of 1959 had thrust new responsi bilities upon it with these challenging words: Yours is the obligation and the responsibility to decide that whether now this new-found freedom is to be used constructively, is to be used in co operation with all of the facets of education, the administrators, the school personnel, the school boards . . . you will wear that responsibility with humility and with a dedicated service. (6:1959) Legislation passed in 1959 and 1961 made it neces sary for all school districts to review their personnel procedures. It became, seemingly, a simple matter of reducing their personnel practices to written form in con formity with the new legislation. The definition of the rights and responsibilities of governing boards, school administrators; employees, and employee organisations rela tive to labor relations could be handled in no other way. Studies made since that time by Chaffey (50), CASA (66), and CTA (61) indicate that in too many instances this has not been done. Indeed, a survey made by the California Association of School Administrators in 1963 revealed that 130 districts responding to the questionnaire indicated that they did not yet have, and operate under, written per sonnel policies for classified employees. It was note worthy that 107 out of 352 respondents from the elementary district level indicated that this was the case (66t5). The provisions of Education Code section 13583 stipulate the followings DURATION OF CONTRACT 13583. The governing board shall provide an annual employment contract for employees a part of the classified service which shall extend to the close of the fiscal year; except that any govern ing board may make the contract renewable from year to year. The governing board may adopt a single contract which applies to all classified employees of the district and, if so adopted shall 301 be construed to be In compliance with this section; provided, the board issues each affected employee a copy of the contract or a handbook containing all of the provisions thsreof. In lieu of the foregoing provisions the govern ing board nay prescribe written rules and regula tions, which shall be printed and made available to employees in the classified service, the public, and those concerned with the administration of this section, whereby such employees are designated as permanent employees of the district. Any employee designated as a permanent employee shall be subject to dismissal for cause, only, as determined by the governing board. This section shall apply only to districts which are required by law to classify as permanent employees those employees of the district who are employed in a position requiring certification qualifications and who otherwise meet the require ments of law for attaining the status of a permanent employee of the district. (Amended by Stats. 1959, Ch. 1901.) (20s620) A more recent piece of legislation vitally affect ing the employer-employee organization relationships in the schools of California may be found in the provisions of Assembly Bill 2375 adopted by the 1961 session of the legislature and signed into law by Governor Edmund "Pat" Brown on July 17, 1961. This act was added to the Govern ment Code of the state of California and reads as followsz THE PEOPLE OF THE STATE OF CALIFORNIA DO ENACT AS FOLLOWSs SECTION 1. Chapter 10 (commencing with sec tion 3500) is added to division 4 of title 1 of the government code, to reads 302 CHAPTER 10. PUBLIC EMPLOYEE ORGANIZATIONS 3500. It is the purpose of this chapter to promote the improvement of personnel management and employer^eaoployee relations within the various pub lic agencies in the state of California by providing a uniform basis for recognising the right of public employees to join organisations of their own choice and be represented by such organisations in their employment relationships with public agencies. Nothing contained herein shall be deemed to super sede the provisions of existing state law and the charters, ordinances and rules of local public agen cies which establish and regulate a merit or civil service system or uriiich provide for other methods of administering employer-employee relations. This chapter is intended, instead, to strengthen merit, civil service and other methods of administering employer-employee relations through the establish ment of uniform and orderly methods of communica tion between employees and the public agencies by which they are employed. 3501. As used in this chapters (A) "Employee Organisation" means any organi sation Which includes employees of a public agency and which has as one of its primary purposes repre senting such employees in their relations with that public agency. (B) "Public Agency" means the state of Califor nia, every governmental subdivision, every district, every public and quasi-public corporation, every public agency and public service, corporation and every town, city, county, city and county and municipal corporation, whether incorporated or not and whether chartered or not. (C) "Public Employee" means any person employed by any public agency excepting those persons elected by popular vote or appointed to office by the governor of this state. 3502. Except as otherwise provided by the Legislature, public employees shall have the right to form, join, and participate in the activities of employee organisations of their own choosing for the purpose of representation on all matters of 303 employer-employee relations. Public employees also shall have the right to refuse to join or participate in the activities of employee organi sations and shall have the right to represent themselves individually in their employment rela tions with the public agency. 3503. Employee organizations shall have the right to represent their members in their employ ment relations with public agencies. Employee Organisations may establish reasonable restrictions regarding who may join and may make reasonable pro visions for the dismissal of individuals from menbership. Nothing in this section shall prohibit any employee from appearing in his own behalf in his employment relations with the public agency. 3504. The scope of representation shall include all matters relating to employment conditions and employer-employee relations, including, but not limited to, wages, hours, and other terms and con ditions of employment. 3505. The governing body of a public agency, or such boards; commissions, administrative officers or other representatives as may be properly desig nated by law or by such governing body, shall meet and confer with representatives of employee organi zations upon request, and shall consider as fully as it deems reasonable such presentations as are made by the employee organization on behalf of its members prior to arriving at a determination of policy or course of action. 3506. Public agencies and employee organiza tions shall not interfere with, intimidate, restrain, coerce or discriminate against public employees because of their exercise of their rights under section 3502. 3507. A public agency may adopt reasonable rules and regulations for the administration of employer-employee relations under this chapter (commencing with section 3500). Such rules and regulations may include provi sions for (A) verifying that an organisation does in fact represent employees of the public agency (B) verifying the official status of employee 304 i i | organisation officers and representatives (C) Access of employee organisation officers and representatives to work locations (D) use of official bulletin boards and other means of com munication by employee organisations (B) furnish ing non-confidential information pertaining to employment relations to employee organisations (F) such other matters as are necessary to carry out the purposes of this chapter. For employees in the state civil service, rules and regulations in accordance with this section may be adopted by the state personnel board. 3508. The governing body of a public agency may, in accordance with reasonable standards designate positions or classes of positions vAiich have duties consisting primarily of the enforce ment of state laws or local ordinances, and may by resolution or ordinance adopted after a public hearing, limit or prohibit the right of employees in such positions or classes of positions to form, join or participate in employee organisations where it is the public interest to do so. The right of employees to form, join and par ticipate in the activities of employee organiza tions shall not be restricted by a public agency on any grounds other than those set forth in this section. This section is not applicable to any employee subject to the provisions of Chapter 4 (commencing with section 1960) of Part 7, Division 2 of the Labor Code. 3509. The enactment of this chapter shall not be construed as making the provisions of section 923 of the labor code applicable to public employees. The changing role of employer-employee relation ships was clearly evident to the California Association of Public School Business Officials as early as 1958 when it published a Personnel Procedures Manual for Classified (64). The, purpose of thismanual was__ noted as follows s 1.1 PURPOSE OF THE HANDBOOKS It is the purpose of this handbook to provide suggestions and policy guides to those responsible for the personnel program for the noncertificated employees in California school districts. Brief reflection will indicate the importance of personnel planning as related to all other phases of manage ment. 1. The largest item in the school budget is the salary figure for employees. 2. Organizational planning and staffing are based on personnel considerations. 3. The nature of the public relations con tacts between individual employees and the citizens of the community influences the attitudes of the public toward the school system. 4. All levels of administrators and super visors spend a substantial portion of their time dealing with such personnel problems ass a. Unfilled positions. b. Selecting the best applicants to fill positions. c. Improving the quality of service rendered by employees. d. Improving employee morale by establishing and interpreting policies dealing with compensation and conditions of employment. As a school district grows, an increasing num ber of nonteaching employees are added to the pay roll. The increase in such noncertificated personnel is often so gradual that proper consideration is not given to systematic planning and the establishment of equitable policies. Establishing sound personnel policies before a critical situation develops is a prime management responsibility that should not be overlooked. (64tl.l) The handbook further defines the elements of a 306 sound personnel program In the following sections 1.3 EUMENTS OF A PERSONNEL PROGRAMS A complete personnel program includes the fol lowing provisionss 1. The classification of positions according to the assigned duties and responsibilities and according to the qualifications re quired to perform the duties. 2. The compensation of employees on the basis of "like pay for like work" within the school district and in the community. 3. The selection and retention of personnel on the basis of merit and fitness. 4. The filling of vacancies in better paying and more responsible jobs through promotion wherever possible, based on developing all employees to their maximum effectiveness. 5. The prevention of discrimination for political, religious, or racial reasons. 6. The establishment of a basis for develop ing and maintaining sound employee relations, including health, safety, and welfare. 7. The development of appropriate forms, records, and procedures for carrying on personnel activities. (64si.3) The increasing importance of employee organiza tions was noted to be one of ever increasing nature: 5.3 EMPLOYEE ORGANIZATIONS: A type of communication between the administra tion and the employees that deserves consideration is that achieved through employee organizations. Whenever an organization grows so large that there is not regular face-to-face contact between the person responsible for the operations and the em ployees doing the work, it is desirable to encour age employees to select responsible persons from their group to speak on their behalf and to repre sent their point of view. Many private businesses f " 307 and public agencies have come to recognise the ad vantages offered through this particular method of channelling communications. Consideration should be given to permitting employees to organize, join, or refrain from joining any lawful organisation of their choice. (64x5.3) George Chaffey noted in 1963 that "carefully developed written policies, then, are not to be viewed as a luxury . . . but rather as a necessity . . . in further ing the interests both of the school district and the employees." (50x192) The disregard by some districts for the recom mendations made by many authorities in the field of employee-employer relations was bound to be noticed. CSEA pointed outx The most telling argument in favor of enact ment of A.B. 2265 comes from school administrators themselves. In a survey conducted by the California Association of School Administrators (1-29-63) it was extremely obvious that something should be done to materially improve classified personnel manage ment. For examplex (a) Of the districts responding approxi mately 130 admitted that they were not then meeting the minimum require ments of law; (b) Of the districts responding, 161 dis tricts admitted there were no statements of qualifications for applicants and methods of applying . . . It should be pointed out that, despite this overwhelming confirmation of a need for a proven (acceptable) system of personnel management, r 1 308 administrators have adriotly attempted to brush aside the facts and to offer an in-lieu proposal Which, if adopted, would effectively set good personnel management back about 50 years. (66:3) The changing position of CSEA from a peaceful, educational approach to the problem to one of growing con cern can be seen in the following report to the 1963 con ference by Executive Director Richard W. Bartlettt But from this point on I fully intend to call a spade a spade. I have completely exhausted every reasonable means of presenting our case on a friendly and a gentlemanly basis. I am tired of forcefully and tactfully pointing out the need and the desir ability of good personnel management and reasonable job security through our proven successful system of civil service. I am most tired of listening to some school people in some school boards indicate that they have a good system of personnel management at about the same time that our staff is overtaxed trying to undo arbitrary and capricious acts of demotion and dismissal. I'm awfully tired of having to tell some chapter and one or more of its members that if a board does not renew a contract they are not entitled to a hearing, nor do they have any job rights whatsoever, regardless of how long they have been employed by this district. (6:1963) It must be assumed that many districts have ade quate, indeed excellent, personnel procedures. As long as any districts remain with poor practices, however, there will remain a pressing need for legislation to correct evils in order that fair and equitable practices will be available to all Principles relating to labor relatione George p. Chaffey, deputy superintendent of the Vallejo Unified School District, identified twenty-five basic principles which identify a sound labor relations program for the classified employees of the schools of California. There principles were as followss MBMBERSHXP-AFFXLXATION 1. Classified employees shall have the right to form, join, and participate in the activities of employee organizations of their own choosing. 2. Classified employees shall have the right to refuse to join or participate in the activities of employee organizations. representation 3. Classified employees shall have the right to designate the employee organizations to repre sent them in their employment relations with the school district. 4. Each employee organization desiring to repre sent its members in their employment relations with the school district shall verify that the organization does in fact represent employees of the school district by filing with the Superintendent the following informations (a) The official name and address of the organization. (b) The names and addresses of the persons designated to represent the organization in its contacts with the school district. (c) The names of the members of the organiza tion who are employees of the school dis trict and who have designated the organi zation to represent them. 5. Each employee organization desiring to represent 310 its members in their employment relations with the school district shall submit a written statement to the effect that the organisations (a) Zs aware that Section 923 of the California Labor Code is not applicable to the public service. (b) Supports the Constitution of the United States and the Constitution of the State of California. (c) Accepts membership without reference to race, color, creed, national origin, or age. 6. Classified employees shall have the right to represent themselves individually in their em ployment relations with the school district. 7. Classified employees shall have the right to be represented by individuals of their own choosing in their employment relations with the school district. RECOGNITION 8. Each employee organization that has verified its representation status and is otherwise qualified, and that has been designated by classified employees to represent them, shall be recognized by the school district as the representative of said employees. 9. Each recognized employee organization shall be expected to conduct itself in a manner that will be a credit to the school district and to the employees of the school district. NON-DISCRIMINATION 10. Classified employees shall not be interfered with, intimidated, restrained, coerced or discriminated against— either by the school district or by employee organisations— because of their membership or non-membership in em ployee organizations. 11. Recognized employee organizations and their designated representatives shall receive fair and equitable treatment by school district representatives. 311 12. All recognised employee organizations shall enjoy the sane opportunities to present to the > classified employees their program and objec tives. NEGOTIATION 13. The Governing Board or its representatives shall meet and confer with representatives of recog nised employee organisations upon request, and shall consider as fully as it deems reasonable such presentations as are made by the employee organisation on behalf of its members prior to arriving at a determination of policy or course of action. MEETING FACILITIES 14. Recognised employ**/Organizations shall be en titled to equal access to school district facilities for meetings provided such meetings are not scheduled during the regular working hours of the group that is expected to attend. COMMUNICATION MEDIA AND FACILITIES 15. Recognized employee organizations shall be en titled to equal access to school district communication media and facilities. (The school district may require its approval before any material is either posted on school district bulletin boards or distributed to employees through other school district means. All mater ials posted or otherwise distributed shall identify the employee organization and an officer responsible for the material.) USE OF WORK TIME 16. School employees who have been designated as official representatives of recognized employee organisations may use a reasonable amount of work time, as determined by the Superintendent of Schools, to confer and meet with the school administrative staff on matters related to 312 employment relations. (The employees desig nated as official representatives shall receive permission from their principals or department heads before leaving their school district work stations•) 17. School employees shall not use school district time for the purpose of conducting or partici pating in activities of the employee organisa tions related to dues collection, organisation meetings, membership campaigns, and other busi ness affairs. 18. Official representatives of recognised employee organisations may be granted permission to con tact classified employees at their work stations on matters related to employment relations. (Official representatives may contact employees at their work stations only with the consent of the principal or department head.) GRIEVANCE AND BEARING PROCEDURES 19. The Governing Board shall adopt policies and regulations (a grievance procedure) for the orderly processing of complaints and misunder standings . 20. Complaints, misunderstandings, and dispotes relating to employment relations shall be handled through the grievance procedure, when applicable. 21. The Governing Board shall adopt policies and regulations (hearing procedure) for the orderly processing of appeals by employees, relating particularly to disciplinary actions involving suspension, demotion, and dismissal. COMMUNICATION 22. Regular, planned meetings should be held be tween the school administrative staff and the official representatives of recognised employee organisations as a means of keeping the avenues of communication and negotiation open at all times. 313 23. Governing Board Policies and Administrative Regulations relating to employment relations shall be distributed to the classified em ployees and to the recognised employee organi sations. 24. Information of a nonconfidential nature relating to employment relations shall be made available to the official representatives of recognised employee organisations by the school district. PERSONNEL SERVICES 25. The Governing Board shall provide reasonable and necessary personnel services for the bene fit of classified employees. (50*129) A significant finding of Chaffey's study reveals that* The administrators indicated that the majority of the districts do not have written policies or regulations relating to the twenty-five principles, and that the governing boards have not discussed the principles within the past 18 months. By contrast, the great majority of the govern ing boards do support the twenty-five principles, except for Principle 4(c) and 5(a). From this response, it seems reasonable to assume that most of the districts could move ahead with the formu lation of written policies with little difficulty. (50*138) The districts responding to Dr. Chaffey's question naire indicated that the following employee organizations existed in their districts* California Association of Educational ' Office Employees .............. 12 districts Labor unions 15 districts 314 California School Food Services Association 16 districts Local organizations 19 districts California School Employees Association 80 districts (50sl38) The merit system Governmental employment differs radically from private employment in many ways. Hie following differences were noted hy the California State Employees Association in I960* 1. Employment conditions are established by law— not hy contract as in private employment. 2. The "profit motive" does not exist in public employment. The compelling motive is service to the public. 3. Public employees are typically more dedicated to their agency and its program than private employees are to their company. 4. Selection and promotion of public employees is typically based on demonstrated merit as determined by competitive examination. 5. It is almost impossible to draw a clear line between management and employees. Persons in supervisory positions have many interests in common with their subordinates who are govern mental employees. 6. Working conditions have differed significantly in the past. Formerly, governmental employment emphasised security of tenure# generous vacation and holiday provisions, and highly developed 315 retirement eyeteme. Government pioneered in theee fielde ae it did in selection based on merit. But private employment has, in recent years, moved almost in line. 7. Employee organisations have not limited them selves to representation of non-supervisory employees. This is true both of employee associations and AFL-CIO unions. 8. The techniques of employee-employer relations have differed in basic approach. 9. The private business process (collective bar gaining) takes place in secret meetings. The setting of standards and working conditions for public employees does, and should, take place in sessions open to all. 10. Ultimately the responsibility of government (including the personnel process) is to the people and not to any one group or special interest. (63x27) That these differences do not all exist with re spect to the classified employees of the state's school districts is clearly indicated with point four, "Selection and promotion of public employees is typically based on demonstrated merit as determined by competitive examina tions." The poll taken by CASA askedx "Are there provi sions for selection based on objective tests and other impartial means for evaluation?" The response indicated that the following condition existedx Yes No 48 234 Unified districts Elementary districts High school districts 62 79 26 67 (66x4) r i Thus, 349 out of 516 districts responding did not * I attempt to select employees on the basis of objective examinations. This fact was a major point in the all-out effort of CSEA to provide a mandatory merit system for all school employees of California in the 1963 session of the legislature. The reasons listed as justification for the measure were as follows: I. GENERAL The following quotes, while not necessarily constituting a basis for justification are, never theless, germane to the issue. They are taken from "Practice and Trends in School Administration" by Emery Stoops and Maxwell Rafferty (Ginn & Co., 1961.) Morale in most school districts is at its lowest among the classified employees group. Members of this important but neg lected segment of personnel tend to look upon themselves as the "forgotten" men and women of the school family. One significant reason for this attitude is the casual way in which their selection is made. Lagging practice in the area of selec tion of classified employees can be expected to accelerate in the future to parallel the development of certificated hiring proce dures. A growing realisation of the impor tance of these school non-teaching positions will inevitably lead to the same sort of screening techniques which have been devel oped in the area of teaching positions. Non-teaching personnel should have work ing conditions equivalent to those enjoyed by teachers. . . . It is just as important to attract and retain good bus drivers, secretaries, and custodians as it is to r i 317 maintain a good teaching personnel. In most areas of school management, classi fied employees are entitled to the same general type of advantage accruing to the teaching staff. II. PERSONNEL MANAGEMENT IN GOVERNMENT Civil service is so common in governmental agen cies, local, state and national, and is so widely accepted as thoroughly desirable, that it would seem to be totally unnecessary to "qualify" its desir ability. It is, however, important to recognize it as the system of proven worth in the field of per sonnel management of governmental agencies. This fslcl data should, then, be accorded "basic consid eration" status in your appraisal of AB 2265. A. THE FEDERAL GOVERNMENT 1) Civil service has been an integral and im portant factor in good stabilized government since the enactment of the Federal Civil Service Act of January 16, 1883. 2) On June 22, 1961, the President of the United States established a "Task Force" to develop reconmended policies for employee-management rela tions for the federal government. In reporting its findings the Task Force cited the following as one of three fundamental facts as core considerations. The merit system (civil service) is and should remain the essential basis of the personnel policy of the Government! it must not be modified or compromised. (Sources "New Bra in Employee-Management Relations" by John W. Macy, Jr., Chairman, U.S. Civil Service Commission in the Civil Service Journal, Vol. 2, No. 3, January- March 1962.) B. STATE GOVERNMENT 1) Provided civil service as a result of a 318 Constitutional Amendment adopted by the electorate in 1934, but previously afforded civil service coverage from 1913-1934 via the Civil Service Act of 1913. 2) As late as 1959 the people of the State of California adopted a Constitutional Amendment Which, in substance, provides that the state will not create new agencies which do not provide civil service positions in the agency* C. CITIES AMD COUNTIES Most cities and counties have long since recog nized the importance and value of civil service procedures and have adopted the same either by legislative action or charter provisions. D. PUBLIC SCHOOL DISTRICTS 1. CERTIFICATED PERSONNEL While teacher tenure is readily acknowledged not to be a system of personnel management, it is job security without parallel. Tenure is afforded teacher personnel in districts whose ADA is 250 or more, after a three-year probationary period. It is worthwhile to note that the legislature has, over the years, afforded even the probationary teacher a degree of job security with positive rights to hearings re dismissal or failure to re- employ. ADMINISTRATORS— Generally are accorded a four year contract (with a six months notice of termina tion at end of contract) and may have tenure as a teacher within the district. 2. CLASSIFIED SCHOOL EMPLOYEES a. 16 districts whose employee complement ex ceeds 20,000 are covered tinder civil service. These are (as of July 1, 1963)c Long Beach Unified Compton Union High School District Compton City District Compton College Hawthorne Elementary Los Angeles Unified* r i i 319 Los Angeles Junior College* Montebello Unified San Francisco Unified** Ventura Union High School District Ventura Junior College Berkeley unified Hayward union High School District San Lorenzo Unified Hayward Unified Santa Monica Unified *Los Angeles Unified and Junior College operate under a single Personnel Commission. **San Francisco unified's classified school employees, while not under school civil service, are part of the civil service system for all city and county employees of San Francisco. b. She other 1600 districts whose employee complement approximates 45-50,000 are either pro vided an annual contract (mandatory but no require ments for statement of cause for failure to re-employ or right to be heard) or, in lieu of the annual con tract, rules and regulations for a "local system of permanency." (66x1-3) Permissive civil service has been in effect in the schools of California since 1935. In the twenty-nine years since it was introduced only fourteen districts have taken advantage of the opportunity to adopt it. The reasons against adopting the merit system were well explained by Mr. Allan Grant, a school board member from Visalia, in his remarks to the personnel relations section at the 1963 annual conference of CSEA. Mr. Grant notedx The reason I bring this up is because I can say things that you'll take issue with, because I 320 am opposed to the Merit System. I will try to establish the reason that I am opposed to it, not basically as a bargaining organisation, because I'm for bargaining organizations. But I'm opposed to it because in the first place, from my viewpoint as a board member, the Merit System as proposed takes away certain prerogatives of the board. And I had some research done on this by an attorney who does some legislative work. I feel fairly secure in the knowledge that his research is correct. In the first place, the adoption of a Merit System can be beyond the control of the school board. Mhile such a system can be adopted by the governing board of the district with an ADA of 850 or more a petition of 10 per cent of the electors, in any district, will force an election on the adoption of the Merit System. The second point is, the personnel who admin ister the System are beyond the control of the school board. The System is operated by a commis sion of three members who must be— from the code— "known adherents to the principles of the Merit System." The initial three members are appointed one each by the State Superintendent of Public Instruction, the County Superintendent of Schools, and the Executive Officer of the State Personnel Board. Thereafter, the State Superintendent and the Executive Officer make the appointments; no body in the County has anything to do with that appointment. The commission appoints a personnel director who is "responsible to the comsdssion for carrying out all procedures in the administration of the classified personnel in conformity with this article and the rules of the commission." Not just subject to the board, subject to the commission. The third point is, the administration of the system is beyond the local school governing board in that the commission "shall prescribe and amend such rules as may be necessary. The rules shall be binding upon the governing board." New employees shall be selected from eligibility lists, etc., suspension, demotions, dismissals, and so on. 321 The fourth point ie, the cost of administering the system is beyond the control of the local governing board. "The conmission shall prepare an annual budget for its own office which, upon the approval of the County Superintendent of Schools shall be included by the governing board in the regular budget of the school district." These are some of the reasons that I as a school board member am opposed to 2265. And I think any board member who takes his job seriously and is elected and subject to the will of the electors, would feel the same way. I am not opposed to the bargaining position. But I think this part of it needs some change. I think this is one of the reasons it was given to an interim study com mittee. Certain changes might be necessary to leave elected officials still subject to the will of the people, and with some prerogative as to what should be done in the case of this particular bill. (7*1963) This viewpoint was rather widely held and the man datory merit plan was not passed by the legislature in 1963. In fact, the three primary labor relations bills of CSBA were all referred to interim study. Mr. Bartlett noted* It is not news to you that we were not success ful in our attempts to obtain passage of our merit civil service proposal. The proposal AB 2265 was soundly defeated. We were unable to move it from the Assembly to the Senate, and even if we had been able to move it we didn't have a chance of Senate approval. Not only were we not successful with AB 2265, but we were equally unsuccessful with 8.B. 1025, local system of permanency, and AB 3088, tenure for classified eiqployees. (6*1963) 322 One leading authority in field of public adminis tration has stated that a merit system may be established minus all of the trappings of civil service. John M. Pfiffner notesx A merit system may exist minus the usual trap pings of "civil service." It is entirely conceiv able that a rather thorough-going merit system could exist without a commission to give examina tions. It has been actually demonstrated that a merit system can exist where a discharged employee is given no legal recourse. In other words, good personnel administration is not dependent on any magic formula known as "civil service." It results, rather, from an"application of the merit system through a personnel program based on a desire to utilise the most reliable technical progress in the field. (31x230) In essence, a comprehensive and permissive merit system has been part of the Education Code of California for many years. Few districts have taken advantage of it but rather have developed practices that have worked effectively for them. The general feeling expressed at the annual conference of. CASA in San Francisco in December of 1963 seemed to indicate that most of the administrators believedt 1. If districts with the merit plan liked it, then they were entitled to use it. 2. If a district had a good personnel plan, then r " i I I no one should force It to change it. 3. A merit plan can be adopted by the board (Education Code section 13701), but it can be discontinued only by a vote of the people (Education Code section 13704). The 1963 survey of the California Association of School Administrators rather strongly stressed this atti tude when 403 respondents out of 546 indicated that they were familiar with the operation of the merit system, and 446 indicated that they preferred their own personnel policies and plans (66:3). Collective bargaining and CSBA Another fundamental difference between employer- employee relationships as practiced in private industry and as followed in the public schools of California is the right of collective bargaining with its corollaries, the right to strike and to refer deadlocks to arbitration. School boards and school administrators tradition ally have accepted the principle that government at all levels is a sovereign employer and the rights of final decision are reserved for itself (65). The trend in Cali fornia may be away from this traditional principle. Dr. 324 | Chaffey summarize* testimony given at the California Assembly Committee on Industrial Relations in 1959 by a I noted authority as follows* Dr. Bernstein, in his appearance before the California Assembly Committee on industrial Rela tions, stated that he felt most public employees wanted collective bargaining, and that collective bargaining in the public service has lagged behind private industry because of the wide acceptance of the sovereignty concept of government. But he eqphasised that, in recent years, this sovereignty concept is breaking down. There are many actions in which public bodies have taken action to accommodate collective bargaining. (50x45) The term "collective bargaining" means many things. Most of its advocates stress that what is really wanted is the right to be represented in consultations on salaries and fringe benefits. This right was granted in 1961 when the state legislature adopted Chapter 10, sections 3500 through 3509, of the Government Code. The legislation made it mandatory for the school boards to meet with individuals or representative employee organizations and discuss any phase of the employment relationships existing in the dis trict. The next step in collective bargaining is that there must be some method of enforcing it. Customarily this involves arbitration and ultimately the right to 325 I strike. The courts in the past have been adamant in their decisions that public employees, when employed by govern ment acting in its sovereign capacity, do not have the right to strike. Recent strikes by public employees have demonstrated that whether a group has the right to strike or not, decisions of the courts and past precedents are not guarantees that such a course of action will not be followed (39). The California School Employees Association has long opposed collective bargaining for school employees. Richard W. Bartlett testified in 1959 that the position of the CSEA on collective bargain ing is that we are opposed to industrial collective bargaining for public employees. This has been our position; this is our position; and I believe that this will continue to be our position. We are therefore opposed to A.B. 607 and to any amendment thereto which would still maintain the basic tenets of A.B. 607. This does not mean that we do not desire greater recognition from and ability to deal with our governing boards, but it does mean that we recognise our responsibilities to the field of education. . . . We do not believe that we have the right to impede education while furthering our vested interests. (50tl35) In 1962, during a heated portion of the annual conference, Mr. Bartlett again emphasizedx Well, I would like to clarify a couple or three things. First of all, this resolution does not say 326 that we are developing any legislation to be intro duced, It says that if it's passed here, it will continue the policy of the Association of actively and vigorously opposing any measures that would provide for collective bargaining. Now, notwith standing Nr. Webster, the law of California is that where the terms "collective bargaining" are used, it means that it carries with it the right to strike. Now, I think that this is just a con tinuance of our past policy. If you feel that we should be a union organisation with the right to strike, why, then, you want to oppose this resolu tion. On the other hand, if you feel that our form of collective representation, which is what 81 has been doing, and the rest of us have been doing, and every other chapter is representing ourselves collectively, we may end up with the same results as those who bargain collectively except that we don't carry these other things, then you will want to certainly vote for this. I want to, if I may, just take a second here to express personal feel ings with reference to this. I have reflected on many occasions across the street here, the attitude of the Association as I interpret the Board policy with reference to this. It's my understanding, or my belief, with reference to policy and your feel ings in the matter, that you certainly want to resolve your personal problems and you have indi cated this by passage of Resolution No. 6— that you want a more stabilised personnel management program. On the other hand, I believe, that you have con sistently and I hope that you are today opposed to collective bargaining as such with the right to strike. I personally don't believe that no matter how difficult our grievances may be that we have the right to deprive a single child of one second of education. I truly and honestly feel that way about it. I hope that you will pass this resolution overwhelmingly and continue our policy in strong opposition to collective bargaining with its full implications of the right to strike. (6x1962) The resolution referred to was adopted as followst 327 RESOLUTION No. 30 (Adopted) WHEREAS industrial collective bargaining as practiced in industry and commerce is not adaptable to government, and WHEREAS collective bargaining without the right to strike is meaningless and useless, and WHEREAS the membership of this Association be lieves that strikes against government are strikes against the people, and the strike is a deplorable act that should not be tolerated in any governmental entity, and WHEREAS collective bargaining is, at best, a poor substitute for proper personnel management within government, and WHEREAS the membership of this Association firmly believes that differences between school boards and their employees must be resolved for the welfare of the people as a whole and must not disrupt the education of so much as one student for one minute, and WHEREAS exhaustive study of this matter clearly indicates that collective bargaining in government is disruptive to free governmental processes and a genuine threat to a free nation, and WHEREAS this Association has rejected and vigorously opposed efforts to legalize collective bargaining; NOW THEREFORE BE IT RESOLVED that the delegates assembled at the 36th Annual Conference do adopt as a continuing policy a position of opposition to collective bargaining in government and direct that the Association's Board of Directors, officers, and personnel lend their every effort to the defeat of legislative proposals that would, if enacted, authorize collective bargaining in governmental entities in the State of California. Received by Nell Porter, Lewis G. McCall Association Secretary, on President and Chair- June 23, 1962 man of the Board Approved by the Board of Directors at its June 23, 1962 meeting for submission to the 36th Annual Conference. (6si962) It appears, then, that CSEA will stand on its long established policy of opposition to collective bargaining and the use of strikes to settle differences. It would seem that this stand imposes the responsibility for the development of sound personnel practices and professional negotiation procedures squarely upon the shoulders of local school boards and administrators. There is little evidence to indicate that administrators and boards have accepted this responsibility on a statewide basis. The area of collective negotiation thus joins the growing list of unresolved educational problems facing public education in California today. The day of failing to find answers for these problems may be at an end. As Dr. Maxwell Rafferty, State Superintendent of Public In struction, stated at the annual conference of CASA in December of 1962, "Today is the tomorrow you were warned about yesterday. It may now well be too late." An alternative to collective bargaining The history of the recent past seems to indicate a trend toward industrial type collective bargaining in the public service. Poor personnel practices have led school employee organizations to press for mandatory legis lation to correct existing defects, in the opinion of some organized groups. Is this the end of the line for out moded labor-management relations in the public schools? Have we waited too long to find answers to the multitudi nous problems that have plagued the local districts in these days of inadequate money to operate the schools? Many members of the state legislature apparently think that the educators of the state have done exactly that. Legislation enacted at the budget session of the state legislature in 1964, notably A.B. 145X, Unruh, would seem to indicate that the day of delayed school district reorganization has at last worn the patience of some law makers thin. This expressed feeling, plus the squeeze of demands for additional funds for education, has led to the introduction of sweeping legislation as an acceptable answer to the problems forcing the legislature although, perhaps, not as a final solution. It is plain, however, that regardless of the number of school districts in the state there will continue to be employees and administration, as long as any vestige of the organizational structure of today's public schools remains. It would seem also that there will be boards of education to represent the people of some given, and yet to be determined, geographical area. These future boards may have to meet the challenge of collective bargaining, in the opinion of some writers in the field of labor relations. The school employees of California were specifically granted the right to organize and collectively present their views in legislation passed in 1961. It would appear to be a justifiable conclusion that collective bargaining legislation will not fail to pass in the state legislature when some basic disagreements over its implementation are resolved by organized labor itself. The solution to the features of collective bar gaining that are unacceptable to many school administrators and school boards lies in assuming some positive leadership in the search for personnel practices that are "better than collective bargaining.1 1 These personnel practices must be reduced to writing and be firmly guaranteed. Included in these rules and regulations should be the following, as given by Nr. Fisher in his speech entitled "Better than Collective Bargaining"s r Recognition of »f^nye Organizations. Rules should be adopted Which guarantee the right of each employee to join or refrain from joining an enployee organisation. The right of * an individual enployee to petition in his own be half should be provided. Policy on Compensation and Fringe Benefits. Policies establishing salaries for classified employees at the prevailing rates for comparable work in private industry should be enacted by each school board. Rates of compensation for public employees should not act to either accelerate or depress the general wage level in the local com munity. The practice of paying less than prevail ing rates for the "privilege1 1 of working in the public service is difficult to defend and ulti mately leads to the employment of substandard personnel. Selection Based on Merit and Fitness. The selection, retention, and promotion of personnel should be based on competitive, objec tive examinations. These procedures should be firmly grounded in law and not subject to change at the whim of any local board. Grievance and Discipline. Bach employee should have the right to be heard in his own defense by a board or commission not directly responsible to the board of educa tion. This independent body should have the power to make a decision binding both upon the employee and the administration. (11) Nr. Fisher summarized his opinions on the subject in the following wordst Summary. These are my prescriptions for a program of public personnel administration which I think is "Better than Collective Bargaining." Given these policies, the public could lend little sup port to union pressures which might be brought for formal collective bargaining agreements. Without these policies unions and associations will sooner 332 or later demand, and X predict will get, the right to bargain collectively. At first, the right will be a very modified and mild form of collective bar gaining. Eventually, however, if the historical trend continues, we will have all features of col lective bargaining in private industry. On the other hand, reasonable and formally adopted policies of progressive public personnel administration will produce both public and employee satisfaction— remove the need for endless hours of "haggling" and "bargaining," remove the need for employee political activity, and will let employees and management get on with the job of better serv icing the schools to do their job of educating our children. (11) The work contract and hand books for employees Private management and private labor have developed a basic document called a contract which sets forth the conditions under which work will be performed by labor. This document spells out in exact detail the ground-rules of the employer-employee relationship. The labor unions have emphasized the principle of "no contract, no work" for many years. Just as the need for such a document developed in private industry with the ending of face to face employer-employee relationships, so too has the need for something similar arisen in employee relationship prac tices in local school districts. One rather obvious substitute for the labor con- 333 tract is a document containing all of the personnel poli cies of the board of trustees in a local school district. Many districts not covered by a legal merit system have chosen to follow the provisions of Education Code section 13583, and they have developed rather extensive handbooks containing all of the district's personnel policies. Some research is available on the development of these hand books, notably A. Neal Galluzzo's doctoral dissertation, "The Administration of Classified Personnel in California" (52), the surveys of various school districts made by Dr. Irving Melbo and his staff (26), and the handbooks of the California Association of Public School Business Officials (64). A sound handbook containing school board policies should develop the general framework within which the personnel process takes place. Included in this handbook should be stated the board's policies in regard to the following, according to Galluzzo: 1. Position Classification (a) Job analysis (b) Job classification (c) Class specification (d) Allocation of positions (e) Administration of the classification plan 334 2. Recruitment (a) Within the organization (b) Unsolicited applicants (c) Commercial advertising (d) Educational institutions 3. Selection (a) Application procedure (b) Personal interview (c) Physical examination (d) Contacts with references (e) Examinations (f) Probationary periods 4. Promotion (a) Measurement of the qualifications of eligible candidates (b) Selection of the best candidate 5. Performance Evaluation (a) Trait rating systems (b) Substantiating evidence reports (c) Analytical check lists 6. In-Service Training 7. Induction 8. Compensation Plan 9. Fringe Benefits 10. Discipline (a) Reprimand (b) Suspension (c) Demotion (d) Dismissal 11. Grievance Procedure (a) Formal steps in the procedure (1) Channels (2) Final Disposition (52x284-342) Role of CSEA in personnel policies An analysis of the role of the California School Employees Association reveals that the following contribu tions and/or proposals for the development of sound per- sonnel policies have been made hy the associations 1. The basic personnel processes would be handled through a merit (civil service) system as pro posed in A.B. 2265 to the 1963 session of the state legislature. This proposal was an exten sion of the permissive merit system presently found in Education Code, section 13701 through section 13756. and it would have made the merit system mandatory for all school districts. Under the provisions of the code, the entire personnel procedure is spelled out in broad outline and the local board would retain pre rogatives in certain areas such as rate of compensation, certain fringe benefits, and job assignment. CSEA apparently has followed the practice of believing that since classification, recruitment, selection, promotion, induction, evaluation, and grievance procedures are all part of defined practices under a merit sys tem, its main job is promoting the all-inclusive merit system. 2. CSEA has sponsored legislation leading to many gains in the areas of fringe benefits such as paid holidays, vacations, sick leave, bereave ment leave, and retirement privileges. The association has compiled an outstanding record in its contributions to the welfare of classi fied employees in this vital area. The association has long been active in the field of in-service training programs for classified employees. CSEA has provided valuable research services to its chapters in their attempts to secure adequate and fair compensation plans at the district level. Leadership training programs for the local chapters are provided from the state office. A favorable public image of the association has been created by CSEA's stand against col lective bargaining and the right to strike. Legal counsel and advice are provided each chapter when all other avenues of legitimate grievance settlement are closed. A democratically based association of school employees Is made possible by the existence of CSEA. The association pattern makes collective negotiation feasible at the local level. Chapter Summary Employee-employer relationships have developed over a period of many years in the area of private industry. Many pieces of legislation on the part of the federal government have clarified the rights of individual employ ees and their organizations. These ares 1. The right to join an organization vhich repre sents the employee in negotiations with employers. 2. The employer must extend exclusive recognition to the organization chosen by the majority of his employees. 3. Negotiation between employers and employees is carried on through a system of collective bar gaining. 4. A written contract, signed by both employers and employee organizations, contains the con ditions under which the employees will work. 338 5. Hie right to strike remains the employees ultimate bargaining tool in collective bar gaining. These are some significant differences between the rights of governmental employees and employees in private industryt 1. The governmental employees have won the right to organize and affiliate with groups of their own choice. 2. In certain areas, notably where the government has assumed a proprietary role, the rights of collective bargaining for public employees have been established. 3. It is unlawful for public employees to strike when they are employed by government acting in its sovereign capacity. 4. The line of separation between the rights of private employees and public employees has become less clear with the passage of time. The employer-employee relationship pattern is very indistinct at the level of the local school district. Classified employees have won the right to organize and to be represented by their own representatives in negotiations with the local boards. The California School Employees Association has sponsored a considerable amount of legis lation in this field in an effort to improve the working conditions of school employees but its major goal, manda tory merit systems, was defeated again in 1963. The rights of collective bargaining and its implied methods of enforce ment, arbitration and the right to strike, are denied to classified school employees. Sound principles of labor relations for school dis tricts have been developed and a small quantity of research on the development of employer-employee relationship poli cies by local boards is available. The implementation of these principles by the local boards has been unsatisfac tory to CSEA and the results of recent questionnaires have fully justified the association's opinion in the matter. CHAPTER VIII THE QUESTIONNAIRE Need for a questionnaire It appeared that a study based solely upon the his torical growth and development of the California School Employees Association would be of limited value. An organ ization grows in strength when its problems are solved be fore they become acute. Problems grow as an organization grows and observers close to the scene often cannot "see the forest for the trees." It was thus believed that an attempt by means of a questionnaire should be made to identify any problems that could be emerging for CSEA. Preparation of the questionnaire An extensive examination was made of studies that had used a questionnaire, as well as historical research, in an effort to begin the formation of a satisfactory instrument. Every available study based on the historical development of an educational association was located. 340 341 i > studied, and any Hated problems were noted for further reference. The complete list of problems thus compiled was analyzed for appropriateness In this study and any of them that seemed to have a bearing on the attempt to discover any emerging problems of CSEA were submitted to a panel of superintendents for comments and evaluative judgments. The sixteen problems Identified by this panel became the basis for the questionnaire. A further problem arose In the determination of the sample to be polled. A conference was held with the writer's committee chairman. Dr. D. Lloyd Nelson, and it was decided to attempt a study which would compare the viewpoints, attitudes, and evaluative judgments of the superintendents and chapter presidents of every third school district in which a chapter of CSEA was located, and in addition every hundredth member on the mailing list of the association. It was assumed that by this method only persons with some knowledge of the California School Employees Association would be asked to submit an opinion. The final questionnaire was designed in such a manner that the sixteen identified possible problems could be ranked as a "major problem," "somewhat of a problem," r ~ ' ■ ■ . . . . . j 342 1 \ | or "no problem," In the opinion of the respondent. A page was left for suggested solutions to the problems ranked as I major. The respondent was further asked to encircle the numbers preceding those statements which he believed were the three greatest problems of CSEA. Nine specific ques tions relating to the strengths, weaknesses, and organiza tional structure of the association were asked on the last page. The questionnaires were printed in three colors for ease of identifications blue for superintendents, yellow for chapter presidents, and white for members. A serial number for use in identifying those persons where a follow-up would be necessary was printed in the upper right hand corner. Executive Director Richard W. Bartlett signed all questionnaires sent to chapter presidents and members while the writer sent a cover letter to each polled superintend ent. All replies were sent to the state office of CSEA in Burlingame. Two follow-ups were attempted in all cases where returns were not received. It was decided to attempt to secure a more informed opinion after the first mailing, and the sixteen past 343 presidents of the California School Employees Association were also sent questionnaires in an effort to gain more validity. The following returns were achieveds TABLE 16 DISTRIBUTION OF QUESTIONNAIRE AND RESPONSE Respondents Number Sent Out Number Returned Per Cent Returned Superintendents 118 94 80 Chapter presidents 118 77 65 Members 220 69 32 Past presidents 16 8 50 Accuracy of the returns Every possible effort was made to have this report reflect as accurately as possible the opinions of those persons best qualified to make an evaluative judgment of the strengths and weaknesses of the California School Employees Association. The returns revealed that a reason able indication could be obtained from the questionnaires returned by the superintendents, chapter presidents, and past presidents of the association. It must be emphasized that no attempt was made to tabulate the returns by geo graphical area, size of chapter, size of district, or age of the chapter since these factors were not considered an integral part of the study. Care in interpretation Those utilizing this report are urged to take note of the fact that the findings may be badly skewed because of the disparity in actual knowledge of CSEA evidenced in the returns. It should also be noted that some chapter presidents utilized the questionnaire as an expressed opinion of the majority of the members in their chapters, hence the opinions were not necessarily their own. There is reason to suspect that the opinions of more than two hundred members are reflected in the returns from the chapter presidents. This, however, should add to the value of the findings because a far greater sample was actually polled than the returns indicate. niese returns can be useful in many ways other than the initial purpose of attempting to discover strengths and weaknesses. The areas noted as major problems could easily be part of a much more detailed study than was possible in this report. Clear indications of emerging problems are evident in some areas of the association's activities and the questionnaire was believed to be of value even if these indicated areas alone were the results. Report of the Findings from Ranked Opinions All returns were broken down into percentages of respondents indicating any given opinion on the first six teen items of the questionnaire in order to gain a more meaningful interpretation. Employer-employee relationships Respondents were asked to rate the area of employer-employee relationship as to its relative impor tance as an emerging problem of the association. The returns were as shown in Table 17. From this table it is evident that slightly more than half of the superintendents saw this area as a prob lem of importance. The majority of the chapter presidents and members did not consider employer-eiqployee relation ships to be a problem of any consequence but the past presidents of the association all believed that this area posed a problem for CSEA to some degree. r - - i 346 TABLE 17 EMPLOYER-EKPLOYEE RELATIONSHIPS OF CLASSIFIED EMPLOYEES . Superin tendents Chapter Presidents Members Past Presidents Item Rating Num ber - Per cent Num- Per ber cent Num ber - Per cent Num- Per ber cent Major problem 2 2 3 4 6 9 3 37.5 Somewhat of a problem 47 50 26 34 22 32 5 62.5 No problem 43 46 46 60 41 59 0 No opinion 2 2 2 2 0 0 Suggested solutions.— Suggested solutions, In order of greatest frequency, offered by the four respondent groups were as followsx Superintendents! (1) A joint committee of CASA, CSBA, GAPSBO, and CSEA should be organized to develop sug gested guidelines for the development of sound personnel policies that would be acceptable to all. (2) School dis tricts should be consolidated in order to allow a broader base within vAiich sounder policies could be developed. Chapter presidents! (1) More attempts should be made at the local district level to include the classified employee* on the "team." (2) Greater CSEA membership would lead to greater recognition. Members x All personnel policies should give the classified employees equal rights with the certificated. Past presidentst The opinion expressed most often indicated that poor personnel practices instituted a self perpetuating cycles Poor selection leads to poor employees which leads to poor public opinion which leads to poor salaries which leads to poor morale which leads to poor administrative opinion of the value of classified employees and then the cycle begins again. A good selection of em ployees in the first place based on sound practices and procedures is the best answer. Status of classified employees The second ranked item concerned whether or not the status of classified employees, in the eyes of the public, constituted a problem of any significance for CSEA. The opinions of the respondents were as follows in Table 18. The expressed opinion of the chapter presidents and members indicates that the status of the classified employees in the eyes of the general public does not con- I stitute a problem of any magnitude as far as CSEA is con cerned. Only half of the superintendents and 62 per cent : of the past presidents of the association saw this area as a problem. It may be of significance that the majority of the past presidents indicated that this area was one of the fundamental problems facing the association but that solving some of the other problems would automatically solve this one. TABLE 18 THE STATUS OF CLASSIFIED EMPLOYEES IN THE EYES OF THE PUBLIC Superin tendents Chapter Presidents Members Past Presidents Item Rating Num- Per ber cent Num ber - Per cent Num ber - Per cent Num- Per ber cent Major problem 7 7 4 5 6 9 1 12.5 Somewhat of a problem 40 43 19 24 21 30 4 50 No problem 45 48 53 70 40 58 3 37.5 No opinion 2 2 1 1 2 3 0 Suggested solutions.— The four groups of respond ents offered the following suggested solutions to the problems involving the area of increased statuss Superintendentst (1) An emphasis should be placed on the concept of a career program for the classified school employees. (2) A method of self-improvement should be provided for the classified employees. Chapter presidentst A better public relations pro gram from the state level should be instituted. Members* A better public relations program should be instituted at all levels. Past presidents! A better public relations pro gram, designed to eliminate stereotyped classified employ ees in the public mind, should be put into effect at all levels. Salaries The evaluative judgment of the respondents as to the importance of salaries of classified employees as a problem of CSEA revealed the data shown in Table 19. The opinion of all segments of the poll indicates very clearly that the salaries of classified employees constitute a problem of major importance. Suggested solutions.— Answers suggested for solving 350 TABUS 19 SALARIES OF CLASSIFIED EMPLOYEES Superin tendents Chapter Presidents Members Past Presidents Item Num- Per Num- Per Num - Per Num- Per Rating ber cent ber cent ber cent ber cent Major problem 11 11 25 33 18 26 3 37.5 Somewhat of a problem 70 76 37 48 35 51 4 50 No problem 11 11 14 18 14 20 1 12.5 No opinion 2 2 1 1 2 3 0 this problem were heavily weighted as follows: Superintendents: (1) An all-out effort must be made by all school groups to gain more financial support from the state. (2) CSEA should find ways of gaining strength and influence without building resistance from the public, school boards, and administration. Chapter presidents: (1) The merit system should be adopted by all school districts. (2) The wage rates prevailing for comparable positions in the local area should be adopted. Members: (1) The wage rates prevailing for com- parable jobs In the local area should be adopted. (2) The 60 per cent salary law should be repealed. (3) More forceful methods of salary presentations should be made. Past presidents: The prevailing wage rates for comparable positions in the local area should be adopted. An analysis of these expressed opinions suggests that the superintendents were most concerned over finding the money to pay prevailing rates while the three segments of CSEA were more concerned over the method by which the pay rates were to be determined. In-service training The area of in-service training programs for classified employees was the fourth possible problem that the polled sample was asked to rate. The opinions were as presented in Table 20. This area represents one of the most difficult problems that CSEA and the local districts have to solve. It has been a problem throughout the history of the asso ciation and has intensified with the passage of time. Part of the problem rests with the members themselves as is evident from the fact that 40 per cent of the returns from them indicate either no problem exists or they have 352 TABLE 20 IN-SERVICE TRAINING PROGRAMS FOR CLASSIFIED EMPLOYEES Superin tendents Chapter Presidents Members Past Presidents Item Rating Num ber - Per cent Num- Per ber cent Num ber - Per cent Num- Per ber cent Major problem 26 28 19 25 15 22 7 87.5 Somewhat of a problem 54 58 26 34 26 38 1 12.5 No problem 10 10 25 32 23 33 0 No opinion 4 4 7 9 5 7 0 no opinion. In all fairness, it must be pointed out that many questionnaires returned from members had comments written in the margin sayings "What in-service training?" "No problem, we don't have any!" Suggested solutions.— The suggested solutions to this problem were many and varied. One past president sent a six-page letter which the writer of this study will cherish because of the remarkable clarity of its analysis of this area. The most numerous suggestions were as fol lows* Superintendents* (1) Twenty-seven superintendents indicated that help from the county superintendent level was badly needed for planning and developing in-service training. Not all of the twenty-seven were from small dis tricts. (2) A joint effort on programs for in-service training of classified personnel should be made by all of the educational groups. (3) A program based on the ex panded junior college and state college system should be set up. (4) Better research is needed in areas where training is needed. (5) CSEA should develop audio-visual aids, guides, manuals, and training materials. Chapter presidentss Adult education classes should be set up in the junior colleges and salary recognition should be given to classified employees completing pre scribed training programs. Memberss Training should be given for promotional purposes as well as on-the-job training. Past presidentss (1) Salary recognition should be given for training. (2) A concentrated effort should be made by the state office of the association to sponsor programs leading to self-improvement for the classified employees. Status of CSEA The status of CSEA in the eyes of other educational associations was the fifth item the evaluators were asked to rate. Their replies indicated the followings TABLE 21 STATUS OF CSEA IN THE EYES OF OTHER ASSOCIATIONS Superin tendents Chapter Presidents Members Past Presidents Item Rating Num- Per ber cent Num- Per ber cent Num ber - Per cent Num- Per ber cent Major problem 5 5 4 5 7 10 3 37.5 Somewhat of a problem 36 38 16 21 20 29 2 25 No problem 49 53 52 68 35 51 3 37.5 No opinion 4 4 5 6 7 10 0 This was not seen as a problem of consequence by any of the polled groups. The superintendents tended to indicate that CSEA was pushing too hard for effective relationships with other associations. Suggested solutions.— The respondents offered the following suggestions: Superintendents: (1) Educate— do not push. (2) Educational groups should work together with the com mon goal of educating children as the main purpose. Memberss Greater cooperation with other educa tional groups should be practiced. Past presidents: An all-out effort should be made at the state and local level to educate the various groups to the fundamental purposes of CSEA. Communications within CSEA Item number six concerned the area of communica tions between the state office of CSEA and the local chapters. The polled sample on the importance of this area as a problem of the association revealed the follow ing! TABLE 22 COMMUNICATIONS BETWEEN THE STATE OFFICE AND THE LOCAL CHAPTERS Superin tendents Chapter Presidents Members Past Presidents Item Rating Num ber - Per cent Num ber • Per cent Num- Per ber cent Num- Per ber cent Major problem 2 2 6 8 4 6 0 Somewhat of a problem 20 21 22 29 14 20 2 25 No problem 56 61 49 63 46 67 5 62.5 No opinion 16 16 0 5 7 1 12.5 This problem area of many educational groups was not believed to be so in the case of CSEA, mainly because of the fine magazine published monthly by the association. It is noteworthy that the vast majority of the respondents indicated that no problems existed in communications. Suggested solutions.— The only suggested solutions were as followss Chapter presidentss (1) More professional help is needed in the field. (2) More copies of bulletins should be sent to local chapters. Memberss (1) There should be periodic meetings of the chapter presidents on a regional basis. (2) The needs of the small chapter must always be kept in mind. Method of self-improvement The respondents were asked in item seven to indi cate their opinions on the importance to CSEA of a method of self-improvement for employees of small and isolated districts. Their responses were as shown in Table 23. A large majority of the respondents believed that this was an item of major concern. Suggested solutions.— There were more suggested solutions to this than to any other problem. These sugges- 357 TABLE 23 METHOD OF SELF-IMPROVEMENT FOR EMPLOYEES OF SMALL AND ISOLATED DISTRICTS Superin- Chapter Past tendents Presidents Members Presidents Item Num- Per Num- Per Num- Per Num- Per Rating ber cent ber cent ber cent ber cent Major problem 30 33 23 30 12 17 6 75 Somewhat of a problem 47 50 20 26 25 37 2 25 No problem 9 9 25 32 19 28 0 No opinion 8 8 9 12 13 18 0 tions, in rank order of frequency, were as follows* Superintendents* (1) In-service training programs should be organized by county school superintendents with competent itinerant instructors employed to teach the courses. (2) Regional in-service training courses should be sponsored by CSEA with itinerant instructors. (3) There should be a trained staff from CSEA to service these isolated districts. (4) Increased audio-visual services, manuals, and guides should be made available by CSEA. Chapter presidents* (1) Training should be organ ized on a regional basis. (2) More county-level leader- •hip in the program is needed. Memberas Job standards should be determined and courses developed to teach these standards. Past presidentss (1) Educate the county superin tendents to the importance of the role they should play in the solution to this problem. (2) Local chapter- administration planning is a necessity if this problem is ever to be solved. Need for increased membership Item eight asked the respondents to rate the need for increased membership and more local chapters as a potential problem of CSEA. The survey revealed the fol lowing (see Table 24). This problem was seen as relatively more of an area in need of a solution by the chapter presidents, members, and past presidents than by the superintendents. Suggested solutions.— Some answers to this problem offered by those who believed it was a major area of con cern were as followsi Superintendentss (1) There should be improved relations between CSEA and local administration. (2) r 359 TABLE 24 NEED FOR INCREASED MEMBERSHIP AND MORE LOCAL CHAPTERS Superin- Chapter Past tendents Presidents Members Presidents Item Rating Num- Per ber cent Num- Per ber cent Num- Per ber cent Num ber - Per cent Major problem 18 20 20 26 19 28 4 50 Somewhat of a problem 44 47 30 39 28 40 3 37.5 No problem 20 21 22 28 19 28 1 12.5 No opinion 12 12 5 7 3 4 0 Better programs should be developed by better trained leadership. (3) CSEA should make a greater public rela tions effort. Chapter presidents! (1) Training programs should be set up for local officers. (2) A better recruitment program could be followed with administrative support. (3) Better meetings and programs would lead to greater active membership. Memberss (1) More program helps should be made available to the local chapters by the state association. (2) Better relationships with local administrators would lead to more support and more members. Past presidentst The California School Employee should have suggested meeting plans and programs included as a monthly feature. The legislative program The sample was asked to indicate opinions as to the possibility of the legislative program of CSEA being a problem. The returns were as follows* TABLE 25 THE LEGISLATIVE PROGRAH OF CSEA Superin tendents Chapter Presidents Members Past Presidents „ Item Rating Num* ber - Per cent Num- Per ber cent Num ber - Per cent Num- Per ber cent Major problem 12 12 6 8 5 9 3 37.5 Somewhat of a problem 40 44 18 23 19 28 0 No problem 36 38 46 60 33 48 4 50 No opinion 6 6 7 9 12 17 1 12.5 The greatest number of questionnaires returned indicated that this area was one of the strongest features 361 of the California School Employees Association, at least as far as the members and officers were concerned. She superintendents did not see it quite this way. Suggested solution.— The suggestions pointed out • the following opinions * Superintendents* All suggestions received re flected the apparent lack of concern on the part of CSEA for the welfare of education as a whole. It was expressed seventeen times that a cooperative effort should be made to solve felt problems first before going to the legisla ture. Chapter presidents: Superintendents should be better informed concerning the proposed legislative pro gram of CSEA. Members: Legislative bulletins should be worded so lay people can understand them. Past presidents: An all-out campaign should be waged for increased benefits for the classified employees. The public relations program The respondents were asked in item ten to indicate their opinion on the possibility of the public relations program of CSEA being a problem. The following opinions were expressed* TABLE 26 THE PUBLIC RELATIONS PROGRAM OF CSEA Superin tendents Chapter Presidents Members Past Presidents Item Rating Num ber - Per cent Num ber - Per cent Num* Per ber cent Num- Per ber cent Major problem 7 7 8 10 5 7 1 12.5 Somewhat of a problem 42 47 19 25 20 29 5 62.5 No problem 37 40 43 56 35 51 2 25 No opinion 6 6 7 9 9 13 0 This rated opinion again reflected the fact that members and officers did not see it as a major problem while a somewhat greater proportion of the superintendents did. This might have been expected since superintendents are somewhat closer to this vital area every day of their working lives. Suggested solutions.— Suggestions were relatively few and included the followings Superintendentss A strong, vital association public relations program should be interpreted effectively to the public and the staff. Members t A better job should be done by the local reporters. Past presidents* Better press releases should be sent out of Burlingame. Unionization The following results were obtained when the possibility of the unionization of classified eiqployees was rated by the respondents as to its degree of impor tance as a potential problem for CSEAs TABLE 27 THE UNIONIZATION OF CLASSIFIED EMPLOYEES Superin- Chapter Past tendents Presidents Members Presidents Item Rating Num ber - Per cent Num ber - Per cent Num- Per ber cent Num ber - Per cent Major problem 22 24 12 16 14 20 4 50 Somewhat of a problem 35 37 17 22 21 31 3 37.5 No problem 24 26 39 51 27 39 1 12.5 No opinion 13 13 9 11 7 10 0 I 1 i 364 I This opinion reflects more concern over the prob lem by superintendents and past presidents than by the members and chapter presidents. Suggested solutions.— The suggested solutions re flected some very good thinking on the problem, as follows * Superintendentst (1) Cooperative committees of all educational groups should be formed to "lift up" the classified employees. (2) Better and more effective meetings of CSEA should be held at the chapter level. (3) Better trained officers are needed at the chapter level. (4) Stronger area representatives are needed. (Perhaps they meant regional representatives.) Chapter presidentss (1) The mandatory merit sys tem would solve this problem. (2) Better district rela tionships are needed. Members: (1) Greater district help is needed in promoting CSEA, equal to what is done for CTA. (2) Better district relationships must be developed. Past presidents: (1) The classified employees must be educated to the advantages offered by CSEA. (2) The methodology of CSEA in recognizing the unique position of the public schools should be a point of major emphasis. !'....... . • ' - "i I 365 i | Method of employee ■election Respondents were asked to rate the method of selec tion of classified employees by the local districts as a possible problem for CSEA. The returns indicated the fol lowings TABLE 28 THE METHOD OF SELECTION OF CLASSIFIED EMPLOYEES BY LOCAL DISTRICTS Superin tendents Chapter Presidents Members Past Presidents Item Rating Num ber - Per cent Num ber - Per cent Num- Per ber cent Num- Per ber cent Major problem 6 6 11 14 12 17 3 37.5 Somewhat of a problem 42 45 21 27 23 34 4 50 No problem 44 47 41 53 32 46 1 12.5 No opinion 2 2 4 6 2 3 0 Suggested solutions. — Although this item was rated as a problem by many of the respondents, the suggested solutions were all the sames A merit system where selec tion is based on an individual's merit. The only other solution offered was by one past president who suggested r" .......... t 366 I i | holding clinics for superintendents. Classification of positions The evaluative judgment of the polled saiqple on whether or not the classification of positions by the local districts posed a problem for CSEA revealed the followings TABLE 29 THE CLASSIFICATION OF POSITIONS BY LOCAL DISTRICTS Superin tendents Chapter Presidents Members Past Presidents Item Rating Num- Per ber cent Num- Per ber cent Num ber - Per cent Num- Per ber cent Major problem 7 8 24 31 16 23 2 25 Somewhat of a problem 50 53 22 29 22 31 4 50 No problem 33 35 28 36 27 40 2 25 No opinion 4 4 3 4 4 6 0 The majority of the respondents indicated that this area was one of great concern although it was well down on the list of major problems indicated by superin tendents . Suggested solutions. — Only two forms of suggested solutions to this problem were given in all cases where an opinion was rendered* (1) A merit system should be insti tuted, and (2) Districts should be reorganized. Internal organization of CSEA The polled sample was ashed to rate the possible importance of the internal organization of CSEA as a prob lem area. The returns were as follows* TABLE 30 THE INTERNAL ORGANIZATION OF CSEA Superin tendents Chapter Presidents Members Past Presidents Item Rating Num ber - Per cent Num ber - Per cent Num- Per ber cent Num- Per ber cent Major problem 0 0 2 3 1 1 0 Somewhat of a problem 24 26 12 16 12 17 2 25 No problem 52 54 52 67 42 62 6 75 No opinion 18 20 11 14 14 20 0 Virtually no one saw this as an area of major con cern and very few saw it even as a minor problem. A larger proportion of respondents indicated no opinion than on any | of the other items, perhaps because of a lack of knowledge i ! as to how CSBA actually is organized. No suggestions were offered in regard to this area. Method of self-discipline The need for a method of self-discipline on the part of classified employees to accompany the granting of permanency was the item rated next by the respondents. The opinions of the respondents were as follows: TABLE 31 NEED FOR A METHOD OF SELF-DISCIPLINE ON THE PART OF CLASSIFIED EMPLOYEES TO ACCOMPANY PERMANENCY Superin tendents Chapter Presidents Members Past Presidents Item Rating Num ber - Per cent Num ber - Per cent Num ber - Per cent Num- Per ber cent Major problem 16 17 11 14 7 10 2 25 Somewhat of a problem 52 54 25 32 21 30 5 62.5 No problem 18 20 29 38 26 38 1 12.5 No opinion 8 9 12 16 15 22 0 The need for methods of self-discipline on the part of local members has been noted by many organizations as a 369 |really difficult problem to solve. It is perhaps signifi- 1 cant that the members of CSEA responding to this question naire did not see it as an area of concern or else they did not understand it. More than half of the other three groups did see it as at least somewhat of a problem. Suggested solutions.— Solutions suggested by the respondents were as follows: Superintendents: (1) There should be more self- involvement of classified personnel in their own problems. (2) An understanding of the fact that privilege automatic ally assumes responsibility should be made clear to the classified enployees. (3) A major educational effort must be made to train CSEA leadership at the local level. (4) Employees must be willing to help trim their own "dead wood." Chapter presidents: An educational program should be developed that would make sense to the membership. Past presidents: The solution offered was the reverse of the solution to item one. Better selection leads to better pay and this cycle then perpetuates itself and there are no problems. Financial program Xs a financial program inadequate to meet the needs of further extension of field services a problem for CSEA? The opinions of the respondents indicated the followings TABLE 32 A FINANCIAL PROGRAM INADEQUATE TO MEET THE NEEDS OF FURTHER DEVELOPMENT Superin tendents Chapter Presidents Members Past Presidents Item Rating Num ber - Per cent Num ber • Per cent Num ber - Per cent Num- Per ber cent Major problems 6 7 7 9 7 10 5 62.5 Somewhat of a problem 37 39 25 33 20 29 3 37.5 No problem 30 32 32 42 24 35 0 No opinion 21 22 13 16 18 26 0 This area reflected a great amount of uncertainty. Only the past presidents saw it as an area of great concern while the members and chapter presidents appeared to have no desire to come to grips with it. Perhaps the superin tendents did not know what the dues structure was because almost one-fourth of them did not offer any opinion. I — - - - -....I i : | 371 j Suggested solutions.— The following suggestions were made* Superintendents* Improve services, leadership, programs, and more classified employees will join. Chapter presidentst (1) Raise dues. (Twelve indicated this.) (2) Do not raise dues. (Ten indicated ; this.) Past presidents* (1) The dues should he raised. (2) Improve services and more classified employees will join so dues will not have to be raised. The most serious problems of CSEA, A tabulation was made of all items considered to be one of the three biggest problems of CSEA in the opinion of each part of the polled sample. These items were then ranked in order of frequency as listed by each of the four types of respondents. The following table indicates the rank order of the most serious problems of CSEA in the ! opinion of each segment of the samples (See Table 33) This table indicates that the most serious problems seen by the respondents lie in the field of self-improve ment, salaries, membership, unionization, membership, and a method,ofself-discipline. it is interesting to note 372 o u o _ s s TABLE 33 THE MOST SERIOUS PROBLEMS OF CSEA AS RANKED BY INDICATED SAMPLE ti • r » 1 I a a 4J •rl ti M 0 S.? 9 0 CO + > 0 S U 0 0 *d -P *H A 0 0 a! a n 0 •0 •H ■P a n 0 & & 7 In-Service Training 1 4 6 2 4 In-Service Training 2 3 4 1 11 Unions 3 8 5 5 15 Self-Discipline 4 6 - - 3 Salaries 5 2 1 3 8 Membership 6 5 2 4 9 Legislative Program 7 - - - 13 Position Classification 8 1 3 - 16 Inadequate Finances - 7 - - that the nuniber one and number two problem as seen by the past presidents and the superintendents is In the area of self-improvement While the members see salaries as the biggest problem. Evaluation of the California School Employees Association 373 Nine specific questions designed to explore the specific strengths and weaknesses of CSEA were asked of the polled sample. The following results were obtained from the returned questionnaires* Question 17.--What do you feel has been CSEA's outstanding contribution to the welfare of the classified employees of California's public schools? Responses were received as follows, with the fre quency of response shown in parentheses: Superintendents: (1) The strong legislative pro gram gained many benefits for the classified employees (forty-one). (2) CSEA provided an organization by means of which the classified employees could raise their status (thirty). (3) The organization enabled classified em ployees to improve their working conditions at the local level (five). Chapter presidents: (1) The legislative program gained many fringe benefits for the classified enployees (sixty-four). (2) Salaries were increased because of the organization of employees (three). Members: (1) The strong legislative program of CSEA, especially since 1959 (twenty-four). (2) Salaries were increased because of the organization of the classi fied employees (seven). (3) The insurance program of CSEA has put low cost insurance within reach of all em ployees (five). Past presidents! (1) The legislative program of CSEA secured many benefits for the classified employees (six). (2) The association raised the status of the classified employees (two). It is evident that the agressive legislative pro gram of CSEA has inyaressed all segments of the polled sample, especially since 1959. Virtually everyone polled answered this question and about three-fourths of the total response indicated that it was in this field that the California School Employees Association had made its great est contribution. Question 18.— What do you feel has been CSEA's outstanding contribution to the welfare of public education in California? The following replies to this question are listed in rank order by type of respondent. Superintendents: (1) The association gave status to the classified enyployees (twenty-six). (2) The support given to the over-all educational program by CSEA (fifteen). (3) The organisation makes a professional approach to labor-management problems possible (twelve). Chapter presidents! (1) Upgrading of the stand ards of classified employees made a better all-around educational program possible (eighteen). (2) The various scholarships awarded each year (sixteen). (3) Closer administration-employee relationships are made possible (eleven). Memberss (1) A better educational program is possible because of the upgrading of classified personnel (eighteen). (2) The various scholarships awarded each year (three). Past presidents: The standards of classified em ployees were raised and this helped the entire educational program (eight). The polled sample appeared to believe strongly that the greatest contribution to the welfare of education in California made by CSEA was its influence in upgrading the status of the classified employees. Children come into daily contact with all segments of the classified service and very obviously this part of the "team" has a profound influence on the total educational program of the school. Question 19. — What change or changes would you recommend in CSEA's operational procedure? The replies to this question indicated that not many of the polled sample really understood the operational procedure of CSEA. In fact, there are strong indications that far too many of the sample did not understand or have an opinion on the over-all makeup of the association as far as its organization, policies, operational structure, and major activities are concerned. Perhaps a moving picture should be made which could be used at chapter meet ings, school board meetings, and community gatherings which would acquaint the general membership and public with these phases of the organization's activities. The ranked replies were as followss Superintendents! (1) There must be greater co operation with local administrators (nine). (2) A better public relations program is badly needed (six). (3) CSEA must cease attempting to eliminate local districts via mandatory legislation (six). Chapter presidents! (1) .The state office and the local chapter should be brought closer together (fourteen). 377 j I (2) More field services are needed (twelve). Memberst The state office and the local chapter should be brought closer together (sixteen). Past presidentst There should be greater educa tional programs for members on the over-all program of CSEA (eight). The unanimous opinion of the eight past presidents that replied indicates that articles in The California School Employee are not enough to do the job of educating the membership. The operational procedure of CSEA is actually very democratic and represents one of the associa tion1 s finest contributions, in the opinion of the writer. This fact must be made known to administrators, boards, and members. Question 20.— What change or changes would you recommend in CSEA's organizational structure? The organizational structure of CSEA has been constantly revised to allow for increased service and growth. A lot of publicity has been given to the latest organizational table (see Illustration 3). The returns from the questionnaire again indicated a certain amount of vagueness on the part of the respondents. ; Superintendentss (1) Stronger area representation I is needed (eleven). (2) Chapters should be organized on a departmental basis (eight). Presidentss The state office and the local chapter should be brought closer together (twelve). Memberss (1) The local chapter needs more bar gaining power (six). (2) The local chapter needs more help (six). Past presidents: (1) CSEA should have an educa tional leader as a paid employee (six). (2) An effort must be made to find ideas on ways to improve local chap ters (two). Once again the need of the local chapters for help in meeting the felt needs of the classified employees on the local district level is very apparent. The age-old argument as to whether dues should be increased to provide these badly needed services or if the provision of these i ; services will bring in enough new members so a dues in crease is not needed is still a paramount question. By implication, then, the organizational pattern of CSEA * should be changed only slightly to allow for more field representatives and a paid educational leader. 379 Question 21.— What change or changes would you recommend in CSEA's policies? The answers to this question again indicate that the basic policies under which CSEA operates (excluding the legislative program) are not too well understood by either administrators or members polled. The ranked answers are as follows: Superintendents* (1) CSEA should consider the over-all effects on the schools before sponsoring legisla tion (ten). (2) There should be more cooperation between CSEA and the other educational organizations (nine). (3) Improved communications between CSEA and local school administrators is badly needed (ten). Chapter presidents* (1) There must be closer ties between the state office and the local chapters (ten). (2) The term of office of chapter officers should coincide with the school year (four). Members: The local chapter needs more help from the state office (fourteen). Past presidents* There should be a continued all- out legislative program for such things as merit systems and retraining programs (eight). 380 i It appears that the superintendents would like to have a more cooperative approach to the problems of the i i classified employees, and this approach should help elimi nate the impact of mandatory legislation upon the over-all program of the schools. The officers and members again make it clear that their immediate concern lies in the area of more help from the state office. Question 22.— What change or changes would you recommend in CSEA*s major activities? The following opinions were given as recommenda tions for changes in the CSEA major activities! Superintendents! (1) A greater educational effort should be made to acquaint membership with the over-all purpose of CSEA (ten). (2) More consideration should be given to the over-all effects on education before legisla tion is proposed (ten). (3) The promotion of cooperation at all levels should be followed (six). Chapter presidents! (1) A greater push for in- service training programs carrying salary recognition should be made (fifteen). (2) More help on salary prob lems is needed at the local level (twelve). Members! A greater legislative push should be made for mandatory civil service (fourteen). Past presidentss (1) An all-out drive for better in-service training should be made (four). (2) Increased legislative pressure for a mandatory merit system must be made (two). The sharp cleavage in the opinions of administra tors and classified employees is very evident in this ques tion. The superintendents emphasized the need for coop eration in legislative efforts while the officers and mem bers advocated an all-out legislative program. This dif ference of opinion does not lend itself to an easy solu tion. Question 23.--What do you believe to be CSEA's strongest points? The answers to this question could easily be a summary of the evaluation of the California School Employ ees Association. The respondents indicated that CSEA's strongest points were as followss Superintendents! (1) It increased the cohesive ness of classified school employees (sixteen). (2) Its legislative program has been very good (fourteen). (3) The executive director of CSEA, Mr. Richard Bartlett (six). Chapter presidentsx (1) The association's legis lative program (forty). (2) It provided an association for the classified employees (eight). Membersx (1) The association's legislative pro gram (thirteen). (2) It provided an association for classified employees (eight). Past presidentsx (1) The association's legisla tive program (four). (2) The democratic organization of CSEA (two). (3) Improved relationships with local admin istrators (two). One wonders if CSEA may not be in the position of having "all its eggs in one basket/1 the legislative pro gram, as the questionnaire results are carefully examined. Question 24.— In your opinion, what are CSEA's weakest points? The responses to this question were many and varied. Some strong words were used in the description of CSEA's weak points, especially by the administrators. The opinions are summarized as followst Superintendentsx (1) The legislative program is too demanding (thirteen). (2) The association needs more members to be effective (thirteen). (3) The members are i 383 I too often prone to Mlet George do it" (eight). (4) There is a lack of grass roots participation in policy formation ! I I (eight). (5) The association has "tunnel vision," it can see only the rights of the classified employees (eight). Chapter presidentss (1) The organisation needs more participating members (ten). (2) Communications with : local chapters need improvement (ten). (3) More work is needed with local boards and administrators (six). Memberss (1) The organization needs more partic ipating members (fourteen). (2) Communications with the local chapter need improvement; the magazine is not enough (six). (3) Closer contacts between the state and local are needed (six). Past presidentss (1) Greater participating mem bership is needed (four). (2) Better communications are needed between the state and local (four). The expressed opinions about felt weaknesses again ; reflect the attitude by administrators that CSEA has be- i : come too militant and demanding, while the officers and members tend to see weaknesses mainly in the area of a need for greater membership in order to make their desires more clearly known. 384 Question 25.— Has CSEA made satisfactory progress in the realisation of its objectives during the time you have observed it or been associated with it? To this question the following answers were receiveds Respondents Yes No No Opinion Superintendents 70 3 21 Chapter presidents 62 3 12 Members 51 4 14 Past presidents 8 0 0 It can thus be seen that the overwhelming number of respondents believed that CSEA has made satisfactory progress in the realization of its objectives. Chapter Summary An attempt was made to secure an evaluation of the total program of the California School Employees Associa tion by means of a questionnaire sent to every third chapter president, the superintendent of the district in which the chapter is located, the sixteen living past presidents of the association, and every hundredth member on the mailing list. The returns from the questionnaire indicated that i 385 problem areas existed for CSEA in the fields of (1) in- ! service training and self-improvement of classified person-: nel, (2) the impact of affiliated labor unions, (3) a method of self-discipline for classified employees, (4) salaries of classified employees, (5) inadequate finances by the state association to provide the services and pro gram necessary for further growth and development. The association's strongest areas were indicated as (1) its legislative program, (2) providing an associa tion for classified school employees, (3) its executive director, Richard Bartlett, (4) the democratic organisation of the association. CSEA's weaknesses were seen differently by the superintendents than by the officers and members. The superintendents tended to believe that the association has ; developed "tunnel vision" and can see educational problems only as far as classified employees are concerned. They expressed that a much more cooperative attitude is needed on the part of the association in order that public educa tion can solve its problems at the local level without legislative mandate which eliminates local control. 386 The officers and members, on the other hand, saw the biggest weaknesses of the California School Employees I Association in the need for increased membership in order I to make its legislative effort more effective. CHAPTER IX t SUMMARY, CONCLUSIONS, AND RECOMMENDATIONS Summary Purpose of the study The purpose of this study was to trace the history,: growth, organizational changes, goals, and accomplishments of the California School Employees Association from its inception to the present time (1964). No systematic record i of this nature had ever been made of this association al though a history was maintained at various times. Answers were sought to the following questionss 1. What were the basic purposes of the California School Employees Association in the beginning? 2. How have these purposes changed over the years? 3. To what extent have these goals been met? 4. What are the significant features of its organ ization as revealed by its past record? 5. What is the extent and character of its 387 388 membership? .1 6. What has CSEA done to upgrade the status of i the classified employees of the California public schools? 7. What has been the trend of the legislative program pursued by CSEA? 8. What achievements has CSEA made in the field of employer-employee relationships? 9. What is the pattern of the internal organiza tion of CSEA? 10. What are the basic features of its present program? 11. What are its underlying policies? 12. What are the strong points of CSEA and its possible weaknesses? 13. What are the major problems facing the asso ciation? 14. What can be done about solving these problems? The procedure This study was based on data collected from primary and secondary sources as well as a questionnaire sent to a sample of superintendents, chapter presidents, members, andi 389 i past presidents of the association. Primary sources in- j i eluded the records, minutes, correspondence, and documents i i ! ! of the California School Employees Association; all issues t ’ i i ! of The California School Employee; the proceedings of the ; { ! annual conferences; copies of the constitution and by-laws I of the association; minutes of meetings of the board of i ; directors, standing committees, special committees, and : annual business meetings; the educational program of the j ’ annual conferences; the official reports of the executive ; director, president, treasurer, secretary, and controller of the association; the historian's reports; interviews i ; with officials of the association; and the Education Code of the state of California. Secondary sources of data used in this study in- i eluded professional literature dealing with personnel administration in the public schools, professional litera ture dealing with employer-employee relationships; and professional literature concerned with classified employees in the public service. A questionnaire was devised in order to explore the strengths and possible weaknesses of the California School Employees Association as seen by superintendents of local districts, chapter presidents, members, and past presidents! of the association. This study was organised into nine chapters. Chapter I introduced the study; presented the statement of its purpose, delimitation, scope, and value; and indi cated the sources of the data. Chapter II presented a chronologically developed history of the growth and devel opment of the association, its organizational changes, an analysis of the association's changing objectives, and its financial records. Chapter III covered the publications program of the California School Employees Association. In Chapter IV the annual conferences were examined in detail since the association has used this delegate assembly as its policy-making body. Chapter V covered the efforts of CSEA in its attempts to upgrade the status of the classi fied employees of the California public schools through i organized in-service training. Chapter VI traced the legislative program of CSEA through the years from 1927 to 1963. Chapter VII traced the development of employer- employee relations in private industry, public service on a national scale, and the role of CSEA in this important area in the state as far as classified school employees are 391 ; i concerned. In Chapter VIII the results of the question- j I naire were used in an effort to determine the viewpoints, ! attitudes, and evaluative judgments of a sample of super- ! intendents, chapter presidents, members, and past presi dents of the association. The summary, conclusions, and recommendations are presented in Chapter IX. Summary of findings The results of this study reveal that the Califor nia School Employees Association has achieved an impressive' ' ■ • i ; record of goal attainment, but it still has many problems i to solve in order to continue its effective leadership of the classified school employees of California. The follow- ; ing paragraphs were developed in order to form conclusions and make final recommendations. Achievement of basic purposes.— The basic purposes for which CSEA was formed have been achieved to a great degree. The retirement plan for the classified school employees of California is outstanding and especially so , since the State Employees Retirement Fund was integrated with Old Age Survivor and Disability Insurance. The growth in membership from the nine original members in August of 1927 to the 24,800 dues paying members in February of 1964 i 392 indicates that the acceptance of the association by the classified school employees of the state as their repre sentative organisation has been largely achieved. The increase in the budget receipts from $394.84 in 1927-28 to $277,654.69 in 1962-63 reveals growth in a forcible way. The establishment of a system of education for the classi fied school employees that would place them on the same level as comparable employees in private industry has been achieved in sane districts but has not yet been established i on a statewide basis. Added aims and purposes.— The original purposes of the association have served the interests of the organiza tion well with the passage of time. Other aims and pur poses have been added to the original goals as followst to promote the efficiency and raise the standards of service for all classified school employees within the state of California; to afford opportunity for the investigation and interchange of ideas upon subjects pertaining to the pro gressive development of the public school system and/or other educational institutions; to institute and promote such legislation, state and local, as may be for the best interests of the schools or the members of this organiza- |tion. ! ; Achievement of the added aims and purposes. — The i i added alma and purposes of the California School Employees | Association have not yet been achieved in many instances. ! Early legislative success in the area of fringe benefits, employee recognition, and job protection was accomplished but increased opposition to proposals for a mandatory merit system and mandated tenure resulted in defeats in 1963. The questionnaire results indicated some mixed feelings on the part of administrators relative to the area of friendly ; cooperation with school boards and administrators. The I program to promote the efficiency and raise the standards i of service for all classified school employees within the state has been successful in some areas, but the question- i naire results indicate that further work is needed in this i area. Significant features of the organization of CSEA.— i The organization of the California School Employees Asso ciation has been based democratically from the beginning. i ; Conference delegates representing the total membership i | serve to develop basic policy which is then put into the hands of the board of directors for implementation. The association president coordinates the work of the standing committees and works in a line relationship with the execu tive director who, in turn, is responsible for the service functions of the association as well as the operation of the business office. Salaried field representatives work with forty-two regional representatives in representing the association to the chapters in each region and to provide these chapter units with aid, assistance, and leadership as needed. The state is divided into six areas with area directors elected by the chapters in each area in order to provide for geographical representation on the board of directors. Extent and character of member ship.— Over 24,000 classified employees representing all classifications of school employees now belong to CSEA. These classifications include cafeteria, maintenance, operations, gardeners, transportation, classified administrators, and office per sonnel. Over 360 local chapters of the association are chartered throughout the state. Publications program.— The association has devel oped a fine monthly magazine which has served to inform members on current educational and legislative problems. I . ............................... 395 i Many significant features devoted to the work of the asso- I ;elation have raised the level of membership understanding of the program of the state association. Sections devoted to news about the local chapters have kept alive a sense of being a part of the large association by the local chap ters. The annual salary survey has served as a guide in salary negotiations on the local level. The legislative program.--The association has been extremely active in the field of legislation affecting the ; status and welfare of classified employees in the public schools of California. Important legislative contributions : to the welfare of classified school employees have been made in the areas of retirement, leaves, job conditions, job protection, employer-employee relationships, and employee rights following school district reorganisation. Strong support has been given in opposition to legislation deemed to be harmful to the best interests of education in the state as a whole. Cooperation with other groups.— CSEA has attempted consistently to cooperate with other educational groups in the state. Its offices in Burlingame, in close proximity to the California Teachers Association, the California 396 I i i 1 Association of School Administrators, the California Elemen- i : tary School Administrators, and the California Association of Secondary School Administrators, have enabled a greater , degree of understanding than would have been the case otherwise. It is also a member of a coordinating council composed of the California State Employees Association, the California School Employees Association, and the League of County and City Employees. The leaders and members of CSEA| have worked closely with the State Department of Education and with the state legislature. Efforts to upgrade the status of classified enyaloyeeS'. — An education committee of CSEA has sought con sistently to provide suggestions and methods by means of which the status of the classified employees could be raised. This program has been planned to fit local needs or to be used as guidelines for programs on a regional level. This program represents an area of bright future promise to the association as more districts adopt a merit system or district reorganisation makes possible an im proved program for some small and isolated districts in the state. The annual conference.— The annual conference 397 serves both as a delegate assembly and a method of leader- ! ship training for CSEA. The attendance has increased steadily reaching a high point of 680 voting delegates on hand at the thirty-seventh conference in 1963. The pro grams have been well planned and have shown steady improve ment in the educational portions. The caliber of the speakers, panel leaders, and discussants has reflected the ; increased stature of the association. Professional leadership.— The professional leader ship of the association is a recent development. An execu- i tive director who remained longer than a brief period did not appear until Nr. Richard Bartlett was employed in 1957. This dedicated, energetic, and forceful leader perhaps has i raised the level of attainment and development more than has any other single factor in the association's history. He has worked diligently to further the aims of the asso ciation and yet has had the foresight to see that an organization of the type represented by CSEA must at all times consider the interests of the schools, the governing boards, the classified employees, the taxpayers, the administrators, and the teachers in the cooperative team effort necessary for the educational program to move for- 398 ward. i Strengths of CSEA.— The historical records reveal that strengths of the California School Employees Associa tion lie in the following areass (1) membership growth, (2) democratic organization, (3) professional leadership, (4) legislative achievement, (5) membership insurance pro gram development, (6) services to members, (7) a profes sional educational association for classified employees, and (8) a professional organization to serve as a repre sentative group in employer-employee group relations. Possible emerging problems of CSEA.— The question- j ! naire indicated that the following problems may be emerging: in CSEA1 s developmental historys (1) membership partici pation, (2) a method of professional self-improvement in small districts, (3) adequate salaries based on prevailing rates for comparable work in private industry, (4) the impact of affiliated labor unions, (5) adequate finances to provide necessary field services and improved communica tion to the local chapters, and (6) a public relations program designed to improve cooperation, or at least under standing, at the local district administrative and board level. 399 Achievements in the field of employer-employee group relations.— Major gains in this £ield were made in legislation that required all districts to adopt either (1) the merit system, (2) a local system of permanency, or (3) annual contracts for classified employees. This legis lation required compilation of job descriptions for all classified employees with a specific job title and a hand book for issuance to each employee incorporating the school district's classified personnel policies, rules, and regulations. Further legislation established the right of each employee to be represented by an organization in rela tionships with the local administration and school boards. Conclusions The California School Employees Association has made steady growth in membership and achievement, particu larly since 1959. Further growth is possible and, as a matter of fact, it is a must with an association of this type. The organization must remain dynamic and push for ward on new frontiers if it is to continue to recruit the classified school employees of California. CSEA is in a highly competitive market and it is virtually forced to 400 continue along its emerging pathway toward attempting to secure greater benefits for its membership. Administration and local boards increasingly will learn either to get along with an association whose methodology is based on solving problems at the local level in a cooperative manner or face more drastic forms of group action. Employer-employee relationships.— Regardless of the type of school district that emerges in the state of Cali fornia, there will continue to be classified employees in an increasing number. These employees will demand salaries at least comparable to those paid for similar positions in private industry. They will expect job rights and fringe benefits comparable to those found in the private sector of the economy. Management, as exemplified by administra tion and school boards, will be forced to exert positive, structured leadership in the field of advanced labor rela tions. Problems will have to be solved in advance rather than be held for legislative enactment that follows the pattern of eroding local control. A program of carefully developed policies relating to sound personnel practices is "better than collective bargaining," and this program is available to all local districts that care to follow it. 401 I i L«qlil»tion.— The association has established sound! working relations in Sacramento and has compiled a good j record of legislative enactment of sponsored legislation, j The fact that much of this legislation could have been i adopted at the local level without CSEA having to resort to appeals for mandatory legislation is rather tragic. The sponsored legislation is developed by a standing committee of the association and is approved by the delegates at the annual conference. Widespread information to members on legislation to be proposed is obtained through the pages of The Journal plus special bulletins sent to each chapter for discussion. The local chapters may also submit pro posals for consideration as sponsored legislation. This work of the association has been of great value to the classified employees of California's schools. Organisation.— The organizational structure of the California School Employees Association is based on the local chapter, composed of and governed by its own member ship. The local chapter is part of a region which is com posed of several chapters in a geographical area, and a regional representative is available to assist and repre sent the component chapters. These regions are grouped j 402 further into areae which have an opportunity to elect area ! l ! I directors on a geographical basis to represent the chapters: in that area on the board of directors of the state asso ciation. The state association office is staffed by salaried personnel who assist, service, inform, and pro- i fessionally represent the association, its areas, its regions, and its chapters. Conferences.— The annual conference of CSEA has been one of its greatest strengths from the date of the association's inception. A voting strength of 680 dele gates points to the fact that this body may soon become unwieldy due to sheer nunibers. An answer that will balance effectively the numbers in large chapters and the need for representation of small chapters may soon have to be found. Publications and research.— The publications pro gram of CSEA has been an outstanding strength for many years due to devoted editors of the monthly magazine exert ing service far beyond the call of duty. The magazine is undergoing continuous improvement in its format and content in order to keep pace with the growth of the association. It reveals that much of the association's research has been devoted to salary studies and legislative data at this 403 point in its history. Administration and leadership.— The California School Employees Association was able to secure a sound leader at the right time When it employed Richard W. Bart lett. The combination of Nr. Bartlett, Miss Dorothy Donahoe, chairman of the Assembly Education Committee, and a sociological period in which the state legislature was willing to enact sweeping legislation for the benefit of classified school employees turned out to be a milestone in the development of CSEA. Leadership at the local level has been felt to be somewhat of a problem but this could be solved by an effective leadership training program. Cooperation. — CSEA* s program is based on the prem ise that cooperation with all segments of education is essential. The maintenance of offices in Burlingame so as to be in close contact with many educational organizations was dictated by that primary purpose. This cooperative effort appears to have weakened somewhat in later years as the rights of classified employees of the schools have been pushed more vigorously by the association and local admin istrators in some instances have felt the increased finan cial pressures to pay for them. I Pnitv of members. — Despite the outstanding advances! i of CSEA, there remains the problem of recruitment of mem- I | her ship. The heterogeneous makeup of the classified serv- I ice seems partially responsible for the lack of complete ! unity on the part of classified employees. Jackman's study! clearly reveals that the problems of the classified em- i ployeea are viewed differently by office employees, custo dians, and maintenance personnel (54). Perhaps a depart mental structure for local chapters might bring about more unity in the association. i Recommendations A cooperative committee should be set up of members of the California Association of School Administrators, the California Association of Public School Business Officials,; the California School Boards Association, and the Califor nia School Employees Association. This committee should attempt to develop a guideline for sound personnel rela tions Which would be acceptable to all of the component organisations. The results of this study should receive statewide distribution. A program of leadership development and training at the local level might be instituted by areas. Newly I elected chapter presidents could be given a training session in the aims, history, and program of CSEA, effec tive chapter meetings, and methods of representation for chapter members. A dues increase to provide for increased field services and an improved public relations program should be considered by the membership. Greater opposition to legislation which calls for increased expenditures by local i districts can be expected in the future and only by in creased strength of membership and the creation of a favor able public image can future legislation meet with the i success experienced in the past. I The state association office in Burlingame has many advantages due to the proximity of other educational groups. There are, however, some advantages to be gained by moving to Sacramento. An association such as CSEA will doubtlessly continue to maintain a strong legislative pro gram and a location in the state capitol would be of value. Money would be saved since travel to and from Burlingame could be eliminated and, more important, time would also be saved. The tins may be near When the association will wish i to consider the possibility of maintaining offices in each j of the areas. These offices could serve as a headquarters for salaried field representatives and provide a source of i accessible information, assistance to local chapters, and greater services to local chapters. In-service training programs should remain one of the association's primary goals. The spread of the junior college system in the state of California makes adult education classes possible on a widespread geographic scale. These classes should be designed not only for on- the-job training but also as preparation for promotional examinations. Courses of study were developed for some classifications by the Frank Wiggins Trade School and could serve as a guide for classes designed to meet to day's changed conditions. Administrators could be shown the advantages of this type of in-service training and make allowances for educational growth on salary schedules. County school superintendents in the sparsely populated counties of the state should be encouraged to make use of these, or similar, courses of study and provide in-service training for the classified personnel by the utilization of itinerant instructors from their own staff. The association might wish to consider the possi bility of providing improved services to local chapters, advanced research studies on current problems, and quali fied training instructors through the employment of retired superintendents or business managers on a consultant basis. No richer pool of qualified personnel exists today than these highly shilled men. The editor of The California School Employee could consider the possibility of reserving a page of the maga zine for the purpose of a suggested "chapter meeting of the month" theme. These themes could be pointed toward employee group representation, methods of compiling salary data in the local area for comparable job classification, proposed legislation, the formation of professional rela tions committees, and many other topics of current inter est. A list of audio-visual aids available from commercial establishments could also be added to the suggested plan if the meeting were such that this type of medium would be appropriate. The need for further research in the field of classified employees in the schools of California is very 408 ' i i evident. Each of the defined "major problems" noted in Chapter VIZI of this paper could serve as a base for fur- j l ther investigation. Studies could be made of the merit | system, its legal status, cost, and current objections to i its adoption in most school districts in the state. Col- i | lective bargaining in the public service with an emphasis j | on the public schools is another area in great need of j ; detailed study. A service which CSEA might wish to extend to its membership is a credit union. The success of the Califor- i i nia Teachers Association Credit Union could be duplicated i i , ; by CSEA. A purchasing service operated in conjunction i with the credit union would also seem to have many benefits; 1 to offer to classified employees of California's public i ; schools. Many people in the field of public education might wish to disagree with some, or all, of these conclusions ; and recommendations. In the writer's.opinion, however, the California School Employees Association would be im proved by the adoption of the listed recommendations. I I BIBLIOGRAPHY I BIBLIOGRAPHY Primary Materials A. File Records Correspondence filed in the state office of the Cali fornia School Employees Association. Minutes of meetings of standing committees, board of directors, annual business meetings, and special committees of CSEA from 1927 to 1963. The association's constitutions and by-laws of 1927, 1934, 1956, and 1963. The School Employees Journal. Vols. I to VII, issued by the California School Employees Association. The California School Employee. Vols. VII to XXXIII, issued by the California School Employees Asso ciation. Annual conference proceedings of the California School Employees Association from 1927 to 1963. Educational programs of the annual conferences of the California School Employees Association from 1949 to 1963. Reports of the executive secretary, treasurer, secre tary, and executive director of the California School Employees Association from 1927 to 1963. Historian's reports of the California School Employees Association from 1915 to 1951. (Mimeographed copy on file at the state office in Burlingame.) 411 10. 11. 12. 13. 14. 15. 16. 17. 18. "The Marit System Provisions of tha Education Coda." Spaach givan lay Robert Fishar, Personnel Director of tha Los Angelas City Schools, December 5, 1963, at tha annual conference of the California Asso ciation of School Administrators. "Batter than Collective Bargaining." Spaach given by Robart Fisher, Personnel Director of tha Los Angelas City Schools, November 5, 1963, to the Personnel Section of ASPO, Denver, Colorado. Secondary Materials B. Books Civil Service Assembly of the United States and Canada. Employee Relations in the Public Service. Chicago* Civil Service Assembly, 1942. . Employee Training in the Public Service. Chicago* Civil Service Assembly, 1941. . Placement and Probation in the Public Service. Chicago* Civil Service Assembly, 1946. . Position Classification in the Public Service. Chicago* Civil Service Assembly, 1941. Cloud, Roy W. Education in California. Stanford University* Stanford University Press, 1952. Cross, Ira B. a nl«fcorv of the Labor Movement in California. Berkeley* University of California Press, 1935. Daugherty, Carroll R. Labor Problems in As>erican Industry. Fifth edition. New York* Houghton Mifflin Company, 1941. 412 t 19. Dubin, Robert. Human Relatione In Adm*"***^*1 **^ The Sociology of Organisation. New York* Prentice-Ball, Inc., 1960. 20. Education Code. State of California. Sacramento, California* State Printing Office, 1929-1961. 21. Bngelhardt, Fred. Public School Orcaniaation and Artmf nietratlon. New York* Ginn and Company, 1931. 22. Godine, Norton Robert. The Labor Problem in the Public Service. Cambridge, Massachusetts* Harvard University Press, 1951. 23. Koos, Leonard V. The Questionnaire in Education. New Yorks The MacMillan Company, 1928. 24. Linn, Henry H. School Business Administration. New Yorks The Ronald Press Company, 1956. 25. Linn, Henry H., L. C. Helm, and K. P. Grabarkiewicz. The School Custodians1 Housekeeping Handbook. New Yorks Teachers College, Columbia University, 1948. 26. Melbo, Irving R., et al. Report of the Survey. Barstow Union High School District. June 1, 1961. 27. Metcalf) Henry C. Collective Bargaining for Today and Tomorrow. New Yorks Harper and Brothers, 1937. 28. Mort, Paul R., and Donald H. Ross. Principles of School Administration. New Yorks McGraw-Hill Book Company, Inc. 29. Polling, Henry. American Labor. Chicago* The University of Chicago Press, 1960. 30. Peterson, Florence. American Labor Unions. New Yorks Harper and Brothers, 1945. 413 31. Ffiffner, John M. Public Administration. New Yorks The Ronald Preea Company, 1946. 32. Reeder, Ward 0. The Fundamentals of Public School Admlnlatratlon. New Yorks NacNlllan Company, 1941. 33. Spero, Sterling D. Government ae Employer. New Yorks Ramsen Press, 1948. 34. Stoops, Emery, and M. L. Rafferty, Jr. Practices and Trends In School Administration. New Yorks Ginn and Company, 1961. 35. Vlles, N. E. The Custodian at Work. New Yorks The University Publishing Company, 1941. 36. Waite, William W. Personnel Administration. New Yorks The Ronald Press Company, 1952. 37. Weber, Clarence. Personnel Problems of School Admin istration. New Yorks McGraw-Hill Series in Education, 1954. 38. Yoder, Dale, H. G. Heneman, Jr., John G. Turnbull, and C. Harold Stone. Handbook of Personnel Management and Public Relations. New Yorks McGraw-Hill Book Company, Inc., 1958. 39. Ziskind, David. One Thousand Strikes of Government Employees. New Yorks Columbia University Press, 1940. C. Periodical Articles 40. Bliss, Sidney M. "How to Inaugurate In-Service Training of Non-Teaching Personnel," American School Board Journal. 120x41-42 (March, 1950). 41. Bruce, William C. "Improving the Non-Teaching Staff," American School Board Journal. 102s54-55 (JUne, 1941). 414 42. Clifford, J. M. H Non-Teaching Services Can Be Improved,N The Nation'a Schools. 36x47-48 (October, 1945). 43. Flashert, Richard. "What the Bueineea Manager Should Know about Cafeteria Operations," The Nation *s Schools. 54x80-86 (December, 1954). 44. Kleckner, Joseph R. "The Selection and Training of School Janitor Personnel," American School Board Journal. 99x29-30 (October, 1939). 45. Sessions, B. B. "In-Service Training of Custodians," American School and University. 11x386-89 (1950). 46. Viles, N. E. "Custodial Training Programs," American School Board Journal. 117x15-17 (August, 1948). D. Unpublished Materials 47. Barbour, Julius Ervin. "The Selection and Instruction of Public School Custodians in Selected School Districts." Unpublished Doctor's dissertation, Michigan State College, Lansing, 1954. 48. Bowman, Leonard L. "History of the California Teachers Association." Unpublished Doctor's dissertation, Stanford University, 1943. 49. Campen, Palmer 6. "The Selection, Administration, and Content of Health Insurance Plans for Public School District Personnel."* Unpublished Doctor's dissertation, University of Southern California, Los Angeles, 1961. 50. Chaffey, George P. "Labor Relations in Classified Employment in Public Education in California." unpublished Doctor's dissertation, University of California, Berkeley, 1963. I t J I 51. Forney, Max LaRue. "The California Congresa of Parenta and Teachera, Inc., to 1961." Unpublished Doctor's dissertation. University of Southern California, Los Angeles, 1962. 52. Gallusso, A. Neil. "The Administration of Classified Personnel in California." Unpublished Doctor's dissertation, University of Southern California, Los Angeles, 1955. 53. Gillingham, Robert C. "The California Teachers Asso ciation, Its Development, Structure, and Program." unpublished Doctor's dissertation, University of Southern California, Los Angeles, 1949. 54. Jackman, Taylor T. "The In-Service Training of Classified Employees in Elementary Schools in Southern California." Unpublished Doctor's dissertation, university of Southern California, Los Angeles, 1959. t 1 55. King, Lloyd H. "Trends in Janitor-Engineer Personnel Practice in Public Schools." Unpublished Doctor's dissertation, Colorado State College of Education, i Greeley, 1949. 56. nyers, N. Dixon. "The California School Boards Association." Unpublished Doctor's dissertation, University of California at Los Angeles, 1954. 57. Preece, Thomas. "The Selection, Training, and Evalu ation of School Bus Drivers in California." Un published Doctor's dissertation. University of Southern California, Los Angeles, 1961. 58. Roelfs, Robert Max. "Job Classification of Non- Certificated Positions in Large City School Sys tems." Unpublished Doctor's dissertation, University of Colorado, Boulder, 1951. 59. Samuels, Charles T. "A History of the Growth and Development of the California Association of School Administrators." Unpublished Doctor's disserta- i ! 416 I l ! tion, University of Southern California* Ioi ! Angeles* 1962. ' 60. Thompson* Byron E. "A History of the California | Association of Public School Business Officials." Unpublished Doctor's dissertation* university of Southern California, Los Angeles, 1955. E. Pamphlets and Monographs I 61. Bmployer-^^plovee Relations. California Teachers Association. Burlingame* California* 1960. 62. Executive Order 10988. January 17* 1962. "Employee- Management Cooperation in the Public Service." 63. Formal of Representation for California Public Employees. California State Employees Association, Sacramento, California* September* 1960. i 64. Personnel Procedures Manual for Classified Employees. California Association of Public School Business Officials, Inglewood, California* 1958. I 65. qtaMtlmonv Before the California Assembly Committee on Industrial Relations. Los Angeles* California* October 29 and 30* 1959. 66. The Case for AB 2265. California School Employees Association, Burlingame* California* 1963. 67. The Budget. 1963-1964. California School Employees Association* Burlingame, California* 1963. | 68. School Administration in Californla« A Pattern for the Future. California Commission on Public School Administration through the California Association of School Administrators* Pasadena* California* 1956. APPENDIXES APPENDIX A LETTER TO THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION HESPERIA SCHOOL DISTRICT ADMINISTRATION O F F IC E - 9400 " I" A V E N U E H E S P E R I A , CALIFORNIA JO SHU A C I R C L E S C H O O L „ J U N IF E R S C H O O L 10140I K S H 1 M S T M E T AUG UST 30, 1962 9400 “ I" A V E N U E IMNONI. CM S-M47 IBCPNOMi CM W 777 SICHARD C. BARTLETT, EXECUTIVE DIRECTOR CALIFORNIA SCHOOL EHPLOYEE*S ASSOCIATION 1705 HUNCHISON DRIVE BURL INCANE, CALIFORNIA OEAR NR. BARTLETT: I WOULD LIKE TO ASK FOR YOUR CONSENT AND C009ERATI0N IN A RR090SED OOCTORAL DISSERTATION TO BE WRITTEN AT THE UNIVERSITY OF SOUTHERN CALIFORNIA. THE TITLE WOULD BE nA HISTORY OF THE CALIFORNIA SCHOOL EHPLOYEE*S ASSOCIATION. THE RUR90SE OF THE STUDY WOULD BE TO TRACE THE HISTORY, GROWTH, AND EX9ANSI0N OF THE C.S.E.A. FRON ITS INCERTION TO THE RRESENT TINE. NY FLAN WOULD BE TO 00 ALL THE POSSIBLE RESEARCH HERE DURING THE YEAR AND THEN SPEND A NONTH IN BURL INSANE NEXT SUNNER, WITH YOUR COOPERATION* LOCATING PEOPLE, RECORDS, ETC. TO 419 DEAR MR. BARTLETT: I MOULD LIKE TO ASK FOR YOUR CONSENT AND COOPERATION IN A PROPOSED OOCTORAL DISSERTATION TO BE WRITTEN AT THE UNIVERSITY OF SOUTHERN CALIFORNIA. THE TITLE WOULD BE nA HISTORY OF THE CALIFORNIA SCHOOL EMPLOYEE*S ASSOCIATION*. THE PURPOSE OF THE STUDY WOULD BE TO TRACE THE HISTORY, GROWTH, AND EXPANSION OF THE C.S.E.A. FROM ITS INCEPTION TO THE PRESENT TIME. MY PLAN WOULD BE TO DO ALL THE POSSIBLE RESEARCH HERE OUR INC THE YEAR AND THEN SPEND A MONTH IN BURLINGAME NEXT SUMMER, WITH YOUR COOPERATION, LOCATING PEOPLE, RECORDS, ETC. TO COMPLETE THE STUDY. IN THE EVENT THAT NO ONE ELSE HAS THOUGHT OF THIS TOPIC WOULO YOU CONSENT TO ITS BEING MADE? HOST SINCERELY, HOMARO A. CARMICHAEL DISTRICT SUPERINTENDENT hac/na APPENDIX B LETTER FROM THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION f l L t l i f n r t m r S c h o o l I t a t n l i n t t t t ’ A M O t o d n m m u m o m m m m D m H H y i CAUPOMA October 4, 1962 Nr. Howard A. Carmichael District Superintendent Hesperia School District 9400 "I" Avenue Hesperiat California Dear Nr. Carmichael: As indicated in my letter of September 13f your request fee our consent and cooperation in a proposed doctoral dissertation to be written on "A History of the California School Employees Associa tion" was presented to the Association's Board of Directors at its meeting on September 29. Ifce Board approved the project. He will no doubt be hearing from you shortly re your plans for the necessary research. Sincerely, 421 IlUp* CAB JMIW* 9**00 "I" Avenue HMpwia, California Daar Mr. Carat chaa It As indicatad in ay lattar of September 13, your request far our consant and cooparation in a proposad doctoral dissertation to ba written on "A History of tha California School Employees Associa tion" teas prasantad to tha Association's Board of Directors at its aeeting on Saptaabar 29. Tha Board approved tha project. We will no doubt ba hearing froa you shortly re your plans for tha necessary research. Sincerely, CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION Richard C. Bartlet Executive Director cc: L. McCall r k o c i k c q OCT 8-1902 m S T 421 APPENDIX C LETTER FROM DR. D. LLOYD NELSON TO THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION AND ITS REPLY UNIVERSITY OF SOUTHERN CALIFORNIA university park LON ANOXIAS 7 , CALIFORNIA •CHOOL OF EDUCATION JUNE 28, 1963 NICHARD C. DARTLETT EXECUTIVE DIRECTOR CALIFORNIA SCHOOL EMPLOYEE'S ASSOCIATION 1705 MURCHISON DRIVE SURLINGAME* CALIFORNIA DEAR MR. BARTLETT: I HAVE OBSERVEO THE GROWTH ANO DEVELOPMENT OF THE C.S.E.A. FOR MANY YEARS AND IT HAS GIVEN ME A GREAT DEAL OF PERSONAL PLEASURE TO OBSERVE THE LEADERSHIP EVIDENCED BY YOUR ASSOCIATION IN ITS STRUGGLE FOR THE BETTER MENT OF THE CLASSIFIED EMPLOYEES OF THE CALIFORNIA SCHOOLS. IT WAS THUS A SOURCE OF SATISFACTION TO ME TO HAVE HOWARD A. CARMICHAEL* A DOCTORAL CANDIDATE AT U.S.C., EXPRESS AN INTEREST IN MAKING A 8TU0Y OF THE G.S.E.A. THE SCHOOL OF EDUCATION AT THE UNIVERSITY OF SOUTHERN CALIFORNIA IS STRONGLY IN FAVOR OF A STUDY OF THE TYPE PROPOSEO BY HR. CARMICHAEL AND WILL DEEPLY APPRECIATE ANY ASSISTANCE THAT YOU CAN GIVE HIM AS HE ATTEMPTS TO RENDER A PROFESSIONAL SERVICE TO YOUR ASSOCIATION AS WELL AS TO COMPLETE HIS DOCTORAL PROGRAM. THE CONTENTS OF THE PROPOSED STUDY WOULD INVOLVE AN ATTEMPT TO OISCOVER THE STRENGTHS OF C.S.E.A. AS WELL AS AREAS IN NEEO OF IMPROVEMENT AS JUDGED BY CHAPTER PRESIDENTS* ADMINISTRATORS ANO MEMBERS. ANY LETTERS f t ft* ft«*» vuiin CifiMiTURE AND WITH YOUR FULL KNOWLEOGE. IT 423 CALIFORNIA IS STRONGLY IN FAVOR OF A STUDY OF THE TYRE PROPOSED SY HR. CARHICHAEL AND MILL DEERLY ARRRECIATE ANY ASSISTANCE THAT YOU CAN SIVE NIH AS NE ATTEHRTS TO RENDER A PROFESSIONAL SERVICE TO YOUR ASSOCIATION AS MELL AS TO COHRLETE HIS DOCTORAL RROSRAH. THE CONTENTS OF THE PROPOSED STUDY MOULD INVOLVE AN ATTEMPT TO OISCOVER THE STRENGTHS OF C.S.E.A. AS HELL AS AREAS IN NEEO OF IHRNOVENENT AS JUDGED SY CHARTER PRESIDENTS, ADHINISTRATORS ANO HEHBEtS. ANY LETTERS SENT OUT MOULD SE OVER YOUR SIGNATURE AND MITH YOUR FULL KNOMLEOCE. IT IS THE FEELING OF MR. CARMICHAEL'S COMMITTEE THAT SUITABLE CHARTERS ON THE CHRONOLOGICAL HISTORY OF THE C.S.E.A., ITS PUBLICATIONS, CONVENTIONS, MEETINGS, LEGISLATIVE PROGRAM, IN-SERVICE TRAINING ANO PROFESSIONAL DEVELOPMENT COULO BE MRITTEN FROM A STUDY OF RECORDS AND THE LITERATURE, BUT IN ORDER TO MAKE A PROFESSIONAL STUDY OF VALUE IT MOULD BE MELL TO HAVE THE VIEMS OF AT LEAST TMO SEGMENTS OF THE SCHOOL EMPLOYEES AND POSSIBLY THREE. ONCE AGAIN, I PERSONALLY MILL BE MOST GRATEFUL FOR YOUR COOPERATION AND MILL ENDEAVOR TO RETURN THE FAVOR MHENEVER A SITUATION ARISES IN MHICH I CAN BE OF SERVICE. SINCERELY, 0. LLOYD NELSON PROFESSOR, EDUCATIONAL ADMINISTRATION 423 1 RECEIVED (Ealifantia ^ d p r o l ^ m p l o g E E s ’ ^ s a o r f a t t t m Jul- 18 M W U 1 70S MURCHISON DRIVE Hmm: OXM 7-1*0 IUUINOAME. CALIFORNIA \3~jLJ I f m mmmt OXS*4 7-1400 July 9, 1963 Dr, D, Lloyd Kelson Professor, Educational Adninistration ‘ University of Southern California University Park Los Angels* 7, California Re: Doctoral Study by H, A, Camlchael -■ Vour Lottor oV Juno/ga, Isra Dear Dr, Nelson: * You stay be assured wo will cooporate in every possible i^ner in further- iQ| Hr; CafcaiObael's doctoral study of tho Asa Ho were cxtrcaoly-'pl'OSsed to learn that Mr, Canaichael h3^\hoson CSEA as the subject for his study'and,, as you knot^fn^ftrevioualy pA^ed to hla our cooperation. Our willingness to comHraihS^D not an entirely unselfish one, since we hope to learn much froey^robject^e study of the Association, its -history, strength and weakness,, Ue are hopeful his study wil! culadoctorate and, slnultant-' ously, provide us with an opportunity toSvifiw sono of the ‘ ‘ trees" we have probably overlooked because ydCbei$~\so vwySclos# to the "forest," Again, we will extend our/every courtesy and assistance in the study. 424 OilQ| BUKU WO UU[]« IU IWiii 1UUVU 41-wa its history, strength and weakness. Ue are hopeful his study will' culaina’ ously, provide us with an opportunity probably overlooked because Again, wo will extend our RCJJ/tfrw Mr; Carmichael teiivj v* ■ , C*. doctorate and, sinultane-’ sono of the "trees" we have lose to the "forest*" and assistance in the study* erely, LIFORNIA SCHOOL EMPLOYEES ASSOCIATION Richard C* Bartlett Executive Director I uc ' *t APPENDIX D LETTER OF TRANSMITTAL FOR QUESTIONNAIRE TO SUPERINTENDENTS HESPERIA SCHOOL DISTRICT ADMINISTRATION O F F IC E — 9400 “ I" A V E N U E tCSFERIA, CALIFORNIA JOSHUA CI R C L E SCHOOL JUNIFER SCHOOL 10140 E IG H T H S T R E E T 9400 “ I" A V E N U E imoNfc cm DECEMBER 10, 1963 iwmoNfc« OEAR FELLCW ADMINISTRATOR: I AM ATTEMPTING TO COMPLETE MY DOCTORAL STUDY CN nTHE GROWTH, DEVELOPMENT AND EMERGING PROBLEMS OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION^1. THIS STUOY IS BEING SPONSOREO BY THE C.S.E.A. ANO IS BEING WRITTEN UNOER THE DIRECTION OF OR. D. LLOYO NELSON OF THE UNIVERSITY OF SOUTHERN CALIFORNIA. AN IMPORTANT PART OF THE STUDY IS DEVOTED TO THE LOCATION OF THOSE AREAS IN WHICH THE C.S.E.A. MAY FACE PROBLEMS. WOULO YOU OR YOUR DESIGNATED REPRESENTATIVE PLEASE FILL OUT THE ENCLOSED QUESTIONNAIRE ANO RETURN IT IN THE ENCLOSEO SELF ADDRESSEO AND STAMPED ENVELOPE. THE PRESIOENT OF YOUR LOCAL C.S.E.A. CHAPTER HAS ALSO BEEN SENT A QUESTIONNAIRE SIMILAR TO 426 OEAR FELLCW ADMINISTRATOR: I AM ATTEMPTING TO COMPLETE MY DOCTORAL STUDY CN "THE GROWTH, DEVELOPMENT AND EMERGING PROBLEMS OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION11. THIS STUOY IS BEING SPONSOREO BY THE C.S.E.A. ANO IS BEING WRITTEN UNOER THE DIRECTION OF OR. D. LLOYO NELSON OF THE UNIVERSITY OF SOUTHERN CALIFORNIA. AN IMPORTANT PART OF THE STUDY IS DEVOTEO TO THE LOCATION OF THOSE AREAS IN WHICH THE C.S.E.A. MAY FACE PROBLEMS. WOULD YOU OR YOUR DESIGNATED REPRESENTATIVE PLEASE FILL OUT THE ENCLOSED QUESTIONNAIRE ANO RETURN IT IN THE ENCLOSEO SELF ADDRESSEO AND STAMPEO ENVELOPE. THE PRESIOENT OF YOUR LOCAL C.S.E.A. CHAPTER HAS ALSO BEEN SENT A QUESTIONNAIRE SIMILAR TO THE ONE YOU HAVE RECEIVED. ADDITIONALLY, A CROSS SECTIONAL SAMPLE OF THE ENTIRE C.S.E.A. MEMBERSHIP HAS BEEN IDENTIFIED AND QUESTIONNAIRES HAVE BEEN MAILED TO THE SAMPLE. IT IS MY HOPE THAT A THREE TAILtD COMPARISON OF OPINIONS CAN BE MADE THROUGH THIS METHOD. YOUR KIND HELP AND COOPERATION WILL BE APPRECIATED VERY MUCH. SINCERELY, HOWARD A. 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W ^ - A ^ V - V ^ S V : / ■ ' ::,->.vv- , C - - v i v t i v ■ i i \ Y l \ h t f ! ?pl\ S > * i p I i ^ T . i i ■ ■ ■ J * i r ' ■ ■> • ;. * Tsm ' " , '.' . ! ; ■ ,-., » ■ *'f.‘. "'. V -■ • . -v1 T « • " . " p " > v s r " ‘ — - -: ~ ~ ~ w ' ^ S I R B | B H H p g B i a p ^ p S s i » ^ ^ ■ ‘ W ”,! * ”" I 'p ji'U 1 ? * * ,* v V * V-; ~‘ - ' . • ‘ ' • ' • ' ••••••■•• • 'Av^L^v V ' > - ^ - - ' , r % ' • • ’ ‘ - ' J ^ • ' - t ' ^ r / - . . - - ‘ ' f ( V - . , . . , . 1« C .» **.A .*« m ajor a e tlv ltia s t ' ! ‘ ' ^ I l i a i —i?*rW itfjjti ' * * « W .1 . A. * • I t n f i t pmimtmt MMMi A ‘ * TUM la tha n U i w ii M o f lt a » - , , ^ V W » lW W * P 1 ' ! » « « « » * ■ - ■ V r \ ■ .. ^ £ K * ' W ‘ t;YI.;\ ■ ‘ ■ :,.-x> >i\ X i ^ : - r n t rm*+*m Maja^SNa^lni.nuhiin^ofK M N f i j h t e a * i i m a > < i w ■\l >; tUv i > e r . c i ior iht\ MS*. » f a > » ■ * # « « ■ « 4 f a A f t ' > f a l f a ^ i ‘ j l ' i i ^ i f a f f c 7 • : - . a i - . 1 j ; - < . : > < v e i b ; 1.(ty f a % , . J > ' f a > | > i .*- • f a j f a f a - . f a A X i M v'.iv; t : ■ i ■ |> r^ C - s Y * . » , , <5 f a . . t i ; r C - ’ Y v ; » - * ■ > . ■ ’ i - v ! v 1C *- • ; * . t t t ' * ' i y . i > - . ■ * i . ' , :, ' *VA^-t-»: j m - < A & * p ! j : r 5> ;* • * ■ • '• £ \ i ' ';r'v. • • * APPENDIX 6 QUESTIONNAIRE SENT TO MEMBERS Or A . lv - ■ ? 0 » < V J : ’ 3 - : ? „ - * ' ^ , sola;: t i j s i c f c r a * ! ■ - ■ ; : / . - i ' i i a m ' f - A ~rJiLi’ .ct't‘i > . ■ ? t ' C ? £q e&tf y i ; • H ' l ; j * t o ( ) ( > ( ; i ) r : i z . l I r>>A>m4f«Vi ■ - ’ 1 E q k d s . ' / r > i 3 > . - . j i i \ - 1 c ; . , , : : s - ' T 9 V o . * q j r . ' f i ; i * • • * * . ' , X •*.r. * & : i .ji«; ,*l.'cz;-l 5I.ir,:. to...h - ? • i».; V A l b : . uri: : . . , ',iv;^ij.'i!\;»:i ■ ; • . • t; , .*>c.-fnirv iv ; . s > X > ; : j 1 - t . ' ■ . ■ ; . ■ / ' ■ ■ : ■ , • Is « i n7 . V t.'i . j t w . i . M O x?>.!. .5-a; • 3 •.£i-.:'V.:|~aila. io .. . . . . . . . . . . . . . . , : ' M . d t . r . • ! ■ - ' ■ : ■ a- > ’ <9 . * • ■ ! ; ; * : w 'c . i .•r.j'O t ;e;> ; ' ? :• / i r Irv. *i, :\ , . • * * ■ * . » . I - * < 4 - Dear ■ ' . t .i t The C .8 .I.A . la asking a study o f Its o v e r-a ll p n g ras in i bfcganl- n ation . ' As p a rt o f th is ' study atfela^ptlOt ta. which aay bo a ris in g In any o f the anas, pt c la s s lfls d saployee re la tlo n - ' ^ * , i * . i ~ i . \ no • * . ' . ‘ i ■ „ ■ : ■ ■ > ■ r r n f i f t W v - j t : ships In Which vs a n V ita lly c o M m w i^ I# la our hops W ¥ o c a te any o f thsss possible problem and to f , t o .Vthfej-.jUi' anicy ".. .U-'s i.o j '• case p ossible. { Tour cooperation In f l l i i ^ cut th is questionnaire i t .Jfow r e a rlie s t . convenience and returning I t lh the enclosed,self-addresaep envelope w ill be g re a tly appreciated. You m y rest, assured th a t jo u r a n s v e rs v lll be(J. treated as s tr ic tly co n fid en tial and w ill la no way be id e n tifie d W ith . In d iv id u a l schopls pr^persons In ttkfp re se n ta tio n o f th is •tu ty * / ' * ; ! v : ' v -S,- ?tmm-:— tk , 0i th a fa lia o ia c ■ « r a » |N b l< i i i fa r aa tha C a llf- « li omwmm4i Major Saaoahat o f V o U s i l M J J g U i L Faohlaa ! • V m o y liy r aaployaa ralatlooahlpa in tha H a trlo ta o fC a llfo ra la aa fa r aa elaaalflodaaployoaa ara eoaearaad. ( ) ( ) < ) 2 . Tha atataa o f tha alaaalflo d aaployaaa o f tha pdhlio aehoola o f Califosafta la tha oyaa o f tha lqp p tb lie . ( ) ( ) ( ) 3. Tho aalarloa o f elaaalflad aaployaaa la C a lifo rn ia achool d la trtc ta . ( ) ( ) ( > 4 . Tha lopaorrlca training program fo r alaaalflo d aaployooa aalatalaad la < > < ) 1 1 ( } 6.”' fflHi' b t i t i w o tha C.SlI.A i i» r is * u « H s s m a s . * a s * a s a s s * . „ •, ”■ '* C ) : 5 ( ) < ) , <> <) ( ) aad laolatad d ia trle ta . . " T V ’ i * V ( ) i ■ ' • I . " l i . ( ) ( ) * * * * * 1 « , , , , < ) < ) ( ) Zljv ; > () ' 10. ! Tha ’ fu tile xo latloo a: prograi ‘of tha VS"* r: -• ! i , * • <•) U * S p l S w ^ * * ^ * f achool c^aaalflad ( ) 12* Tho aathOd o f aoloctlon of claao iflad aaployaaa byUooal d la trtc ta . v ( ) Xxi\\ v ^ * A s - ' v . J f c ) . \ , - • \ «o • ! : * v >A.» I ' * 14* Tho la ta ra a l orgaolaatloa of tho C .8.E.A . ( ) 15* Tho oood fo r tho dauolopaaat o f o aathod. o f a a lf-d lo e lp lla a on tho port o f locol ehoptora to aeeaapaay tho xuapooalblllty o f pomonancy. ( ) 16. A fla a a a ia l propraa laadoqwota to aoot tho oood o o f forthor axtaaalon of flo ld aovrteaa* ( ) ( ) fi ( > ( ) < ) ( > ( ) ( ) ( ) ( ) < ) ( ) ( ) ( ) ( ) < > ( ) Ida Flaaaa oaelrcla tho a a h a t la fcoat o f thooo atataaoata th at you eoaaldar of th i CiStltA* s a w m & m e £ $ s < « . «TooiMl! oixoip a :.xJ rj:o/; c'.w {a a-i:>7r.f«Tir.i bsi fFs.;i o r]? “ o olei/V.- S u « M fd S o lu tio n ! To M a io r P ro b l— * o rl3 o . . ! n o !- i / : J ■ '' . ’v t o o 1 '\ . . ,;'d e a r i i * . i ; - j o v t > i i , b . ‘ f o . ! . 1 * ‘Roirii? rvlidurj 30 or i‘ i Jsv Sii.toqo . a * . 1 . ’ 1 7 / b'loiiapoyyj •> < il'*u o ' x c o f t H E t U / re asnr./io oruiw ,1?'. Vi'AV' M . Whot do lO k ^ a l k M l M i C J i l i L ! i . o « tit« d ta | co n trib u tio n to tho w olforo o f p d b lie education In C o lifo rn lo f 19* f t t t change o r dhongeo would y o u ta c — and In C .S .K .A ,*a operational 2 0 i'V lu t t h a K l o rd M 8 |M lo o ld yourocaoM ad in C .S .K .A .'s orgodcotlonol e tro e tu ra f 21i Whet ehongo o r dhongea would you rueownond In C iS ,B ,A ,'a p o lle le a f 22, Whot change o r dhongea would you roco— ml in G.S.B,A«*o major o e tlv ltlo o T 29. Whot do you belleyp to bo C«8a I«A»*o otrougoot p o ln taf 24. In your opinion, whot oro C .S .K .A .'a woOkoot p ointof 25« Boo tho C«S«B.A. w odo ao tiafo cto ry progrooo in tho sooliootlon o f lto O bjottlro o during th e tla a you haveobaorved i t or been oaeoelotad w ith i t t Signature "(O p tio n a l) School D la trie t APPENDIX H LETTER OF TRANSMITTAL FOR QUESTIONNAIRE SENT TO PAST PRESIDENTS OF CSEA HESPERI A SC H O O L DI STRI CT A D A t f N I S T R A T tO N « # K * — #400 “ I" AVINUI HW««IA, C A U P O Q N IA JOHUA C H O I O C H O O i JUNIPM S C H O O L I #140 mOtm tJWKJ _ JANUARY 14, 1964 0400 **l" AVMUI DEAR PAST PRESI0ENT: MY DOCTORAL STUDY ON THE "GROWTH, 0EVEI.OPMENT, AND EMERGING PROBLEMS OP THE CALI PORN IA SCHOOL EMPLOYEES ASSOCIATION" REQUIRES THAT A SURVEY BE MADE OP THE OPINIONS OP VARIOUS GROUPS ON WHAT THEY PEEL ARE THE STRONG AND WEAK POINTS OP THE PRESENT ORGANIZATION* MY READING HAS STEADILY INCREASEO MY RESPECT PCR THOSE OP YOU WHO DEVOTED SO MANY HOURS IN THE DEVELOPMENT OP YOUR ASSOCIATION ANO I KNOW THAT YOUR ANSWERS TO-THIS QUESTIONNAIRE WOULD BE INVALUABLE. WOULO YOU CAREPULLY ANSWER THE QUESTIONNAIRE ANO RETURN IT IN THE ENCLOSED, SELP-ADDRESSEO ANO STAMPED ENVELOPE? SINCE THERE AREN* T VERY MANY PAST-PRESIDENTS STILL WITH US, IT IS VERY IMPORTANT THAT EACH OP YOU RETURN IT. IT WOULO PLEASE ME GREATLY TO HAVE THE OPPORTUNITY TO TALK TO EACH OP YOU PERSONALLY WHEN MY STUDY IS COMPLETES, SO IP YOU SHOULD BE IN THE HESPERIA AREA, PLEASE PEEL MOST WELCOME TO STOP AND VISIT. SINCERELY, HOWARD A. CARMICHAEL DISTRICT SUPERINTENDENT hac/na APPENDIX I LETTER OF TRANSMITTAL FOR FOLLOW-UP QUESTIONNAIRE TO SUPERINTENDENTS HESPERI A SC H O O L DI STRI CT A om m nm noN a m — m o o * i" a v m w H W U A , C A U W M I A " S K i S S S S R 01 is, 1964 { ™ “ *S£S DEAR FELLOW AOMINISTRATORt A QUESTIONNAIRE OESISNED TO CARL ORE THE FOMIRILITY OF EMERCINS FROOLEMO IN TNE STRUCTURE OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION WAS RECENTLY SENT TO YOU. WE HAVE NOT RECEIVED YOUR REFLY AS YET ASS WONOER IF FERNAFS IT NtOMT NAVE SEEN NISFLACED. WE ARE ENCLOSINS ANOTHER QUESTIONNAIRE ANO HOFE VERY MUCH THAT TIME TO QOMFLETE IT. WE RECOSNISE THAT, FARTS OF THE QUESTIONNAIRE NAY COVER AREAS IN WHICH YOU HAVE NO OFINION. IN THESE INSTANCES YOU ARE URCEO TO LEAVE THE QUESTIONS UNANSWERED, TNE VALUE OF .THE INSTRUMENT WILL ONLY BE AS SOON AS THE IMAOINATIVE ANO THOUSHTFUL REFLIES, SO I HOFE VERY MUCH THAT YOU WILL TARE A FEW MOMENTS ANO OOMFLETE IT. SINCERELY, HOWARO A. CARNIONAEL DISTRICT SUPERINTENDENT hac/na APPENDIX J LETTER OF TRANSMITTAL FOR FOLLOW-UP QUESTIONNAIRE TO MEMBERS Telephone: OXford M 9 I 0 If no answer: OXford 7-1400 1 70S MURCHISON DRIVE BURLINGAME, CALIFORNIA Doer Hsmbar: A questionnaire designed to explore the possibility of aamrglng problems In tho etructure of the California School leployoea Aaeoclotion woo recently cent to you. Ho hove not received your reply ee yet and wonder If perhepe It night hove boon nleploced. Ho ore eneloelng another questionnaire and hope very ouch that you will take tho necessary tine to canplote It. Ho recognise that ports of the questionnaire nay cover areas In which you have no. opinion. In those Instances you are urged to leave the questions unanswered. The value of the Instrunent will only be as good as tha Imaginative and thoughtful replies, so I hope very ouch that you will take a few moments and coaplete it. California School employees Association RCB/i Sncl. APPENDIX K MINUTES OF THE FIRST MEETING OF THE CALIFORNIA PUBLIC SCHOOL CUSTODIANS ASSOCIATION COPY r MINUTES O £ t h e i CALIFORNIA PUBLIC SCHOOL CUSTODIANS1 ASSOCIATION i j Oakland, Calif. August 9, 1927. I THE DELEGATES assembled at the Technical High School on the above date for the purpose of forming the California Public j ! School Custodians' Association. The meeting was called to order by Mr. L. Twoaxe. The following were presentx Mr. Twoaxe, Mr. Aldrich, Mr. West, Mr. Hall, Mr. Watchers, Mr. Schwartz, Mr. Swift, Mrs. Bradley and Mr. Gove. It was regularly moved by Mr. Schwartz, seconded by Mr. Hall, and carried, that Mr. Swift be elected Chair man of the meeting. Mr. Swift then took the chair and conducted the meeting. It was regularly moved, by Mr. Twoaxe, seconded by ;Mr. Schwartz, and carried, that the Constitution and By- : Laws be read for approval and adoption. The Constitution and By-Laws was read for approval. Bach Article and Section was taken up separately j and discussed, and on a motion being regularly made, ; seconded, and carried, each and every Article and Section j of the Constitution and By-Laws was adopted separately. It was regularly moved by Mr. Aldrich, seconded by Mr. West, and carried, that this Association have a set of ; Officers, consisting of the followingx President, Vice- | President, Treasurer and Secretary. The Chairman then declared that nomination of j Officers was in order. The following Officers were regularly nominated, j to witx President, Mr. L. Twoaxe; Vice-President, Mr. J. ! C. Swift; Treasurer, Mr. R. Hodge; Secretary, Mr. S. J. j Hagerman. As it was getting late in the night, it was regu- I larly moved by Mr. Gove, seconded by Mr. Aldrich, and 440 441 carried, thara being only one Officer nominated for each office, that the Officers be elected by acclaimation. The Chairman then declared the following Officers jduly alecteds President, Mr. L. Twoaxe; Vice-President, I Mr. J. C. Swift; Treasurer, Mr. R. Bodge; Secretary, Mr. | S. J. Hagerman. It was regularly moved by Mr. Schwarts, seconded j by Mr. West, and carried, that the Association adopt a | State Membership Card, to be selected by the President. I Ho further business appearing, it was regularly ! moved by Mr. West, seconded by Mr. Ball, and carried, that this Association adjourn until the next meeting called by the Secretary. (Signed) Samuel J. Hagerman, Secretary. COPY (Note; The Constitution and By-Laws adopted at this meet ing appeared as a part of these minutes and are presented in Appendix L.) APPENDIX L COPY OF FIRST CONSTITUTION AND BY-LANS COPY CONSTITUTION of the California Public School Custodians1 Association Adopted August 9, 1927, First Annual Conference Oakland, California ! ARTICLE I. Name and Object. SECTION 1. The name of this organization shall be the California Public School Custodians' Association, j SECTION 2. Its object shall be to unite all California ! Public School Custodians into one Association as a means ! of securing a Retirement System for aged and disabled ! custodians and all other benefits for the good and welfare ; ! of all public school custodians within the State of Cal- i ifornia. | ARTICLE II. Membership. SECTION 1. Any regularly employed custodian in any Public ! School in the State of California shall be eligible to membership on the payment of the established dues. ARTICLE III. Officers, Executive and other Committees. SECTION 1. The following Officers shall be elected at each Annual Conference for the year ensuing c President, First Vice-President, Secretary and Treasurer. Hiese Officers shall, with the ex-President most recently in office, together with five other members | to be appointed annually by the President, constitute the I Executive Committee. The Chairman of the Executive j Committee shall be the ex-President of the Association. No person shall be elected President for more than | two successive terms. t SECTION 2. An unlimited number of Second Vice-Presidents | shall be annually appointed by the President by and with the advice and consent of the Executive Committee. I SECTION 3. The following Committees shall be annually j appointed by the President for the year ensuing, and shall ! consist of five members eacht 1. Legislation. 2. Publicity. 443 3. Auditing. ' 4. Such special Committees on othar mattara aa tha Aaaociation may from tima to time apacifically author - isa. Tha President stay appoint between aaaaiona of tha Aaaociation auch apacial Comsdttees with auch nuaibar of members aa ha any think necessary* but tha powara of such Committees shall and at tha closa of tha naxt aasaion of tha Association. SECTION 4. A majority of tha mambars of any Committee prasant at a Conference shall constitute a quorum of such Committaa* but a majority of all manibara of a Committee ahall ba necessary to constitute a quorum at any meeting not held during a session of tha Association. SECTION 5. Tha President of tha Association shall have tha right to attend tha meetings of all Committees, and tha Chairman of each Committee shall advise the President of tha time and place of meetings and shall communicate to him tha results thereof. SECTION 6. An Advisory Board shall be annually appointed by tha President for the year ensuing, such Board to con sist of two members. ARTICLE IV. Duties of Mambars. SECTION 1. It shall be tha duty of the members for each i Countyt (a) To arrange before each Annual Conference for ! the attendance of at least one Delegate from their County j at such Conference. (b) To organize their Count/ Association by | designating a President, Vice-President, Secretary, | Treasurer, and such Committees as may be necessary, and to ! notify tha Secretary of tha Association immediately upon tha organization of tha County Association. (c) To assist and promote such similar organiza- tion in adjoining Counties. | ARTICLE V. Annual Conference. I SECTION 1. Meetings of the Association shall be held I annually at such time and place as shall be selected by | the Executive Committee. Those members present at each session of such Conference shall constitute a quorum. ARTICU VI. By-Laws. SECTION 1. By-Laws may be adopted, repealed or amended at any Annual Conference by a majority of the Members 445 i present and voting at any saaaion following that at which ! tha propoaad amendment haa baan rafarrad to tha Executive Committee, providing auch amendment racaiva at laaat a ■ajority vota. ARTICLE VII. Amendments. SECTION 1. Any Artlcla of thia Conatitution nay ba altered or amended at any Annual Conference by a majority of tha Members praaant and voting at any aaaaion following that at which tha propoaad amendment haa baan rafarrad to tha Bxacutiva Cou&ittee, provided auch amendment racaiva at laaat a majority vota; provided, that tha propoaad amend ment ahall have baan preaented and read before an open meeting of tha Aaaociation at laaat one day before the vota ia taken thereon, or ahall have been printed on tha official program for the Annual Conference. i i B Y - L A W S of the I California Public School Custodians1 Aaaociation CALLING TO ORDER. SBCTXON 1. Tha Annual Conference ahall be called to order by the President, or, in hia absence, by tha First Vice- President, or, in the absence of both the President and the First Vice-President, by the Secretary of the Associa tion. ROOL GALL. SECTION 2. The Secretary shall call the roll of members by Counties and shall then report. OFFICERS. SECTION 3. The Conference ahall, by a direct vote, elect a President, a First Vice-President, a Secretary and a Treasurer, who ahall serve as auch for one year or until | their successors are elected. | Tha terms of office of all officers elected at each |Annual Conference shall conmsnce with their election. I A vacancy in any office occurring during an inter- ! val between Conferences shall be filled by the Executive I Committee. ; DUTIES OF OFFICERS. PRESIDENT. 446 BECKON 4. Tha President shall preside at all meetings of the Association. Bo shall, as soon as may be after his election and whenever possible before adjournment of the Conference, appoint the various Committees, standing or special, required by the Constitution or directed to be appointed by the Conference, except as herein otherwise provided or ordered by the vote of the Conference. FIRST VXCB-PRSSXOnT. SECTION 5. The First Vice-President shall, during the absence or disability of the President, possess all the powers and perform all the duties of the President in his stead. SECOND VICE-PRESIDENTS. SECTION 6. The Second Vice-Presidents shall direct the work of the Association in their respective parts of the State. TREASURER. SECTION 7. The Treasurer shall receive all the funds of the Association and shall keep and disburse the same under the direction of the President. He shall give bond with a surety company as surety for the faithful performance of his duties, in such form and in such amount as may be | from time to time required by the Executive Committee, and ! such bond shall be deposited with the President for safe- | keeping. The premium on such bond shall be paid by the | Association. He shall keep, or cause to be kept, regular ! books and full accounts showing all the receipts and dis- | bursements, which books and accounts shall be open at all ; times to the inspection of the President. He shall report i at each Annual Conference as to the financial condition | of the Treasury, with a detailed statement of receipts and | disbursements. All of the funds of the Association shall be kept in the name of the Association in such depository : as shall be designated by the Executive Committee; such funds shall be disbursed by the Treasurer by checks signed I by him, every voucher having endorsed upon it the approval ! of the President. The fiscal year of the Association shall extend : from July 1 to June 30 of the year following, inclusive, | and the annual report of the Treasurer to the Conference | shall be of moneys received and disbursed between those dates. Not less than thirty days previous to each annual Conference the Treasurer shall deliver his annual report 447 with his books and vouchors and a certificate from the depository in which the funds of the Association are deposited, showing the amount to the credit of the Asso ciation, to the President of the Association, and upon his | order to the Auditing Coomittee to audit the same, and the ! report of such Committee, together with the Treasurer's ! report and other paper relating thereto shall, at the I option of the Association, be laid before it by the Presi- | dent on behalf of the Treasurer. | SECRETARY. ! SECTION 8. The Secretary shall keep a record of the pro- | ceedings of the Conference and an accurate roll of the | officers and delegates of the Association with the dates of the attendance of each delegate. He shall issue notices j of all meetings of the Association, in such form as ahall j be approved by the Executive Committee} and shall notify ! the members of all Committees of their selection and i appointment} he shall conduct the correspondence of the j Association} report to the Executive Committee prior to the j Annual Conference a summary of his transactions during the | year} and he shall perform such other duties as may be ! required of him by the Conference, the President or the i Executive Committee. All printing done in behalf of the Association ; shall be supervised by the Secretary under the direction i of the Executive Committee. He shall have the custody of ! the books and papers of the Association. His books and j papers shall at all times be open to the inspection of the ' President, and he shall receive such compensation or allow- i ance for expenses as shall be ordered by the Conference, i ASSISTANT SECRETARY. SECTION 9. The President may appoint an Assistant Secre tary to assist the Secretary in the performance of his i duties, and to act for him in his absence, with such com- | pensation and allowance for expenses as shall be ordered i by the Conference. ' COMHTTEES. ; SECTION 10. Special meetings of any committee shall be : held at such times and places as the Chairman thereof may I appoint, and reasonable notice thereof shall be given to each meiikber. ! ORDER OP BUSINESS. : SECTION 11. At each session of the Conference the order 448 of tho businaoo ahall bo aa follows, unless otherwise ordered by the Conferences 1. Call of the Roll. 2. Reading of the Minutes of the last session. 3. Address of the President. 4. Report of the Treasurer. 5. Report of the Secretary. 6. Report of the Executive Committee. 1 7. Report of the standing Committees in the order !named in Article 111, Section 3, of the Constitution. 8. Reports of special Committees. 9. Unfinished business. | 10. Hew business. I MOTIONS AND RESOLUTIONS. i SECTION 12. (a) Motions and resolutions shall on request ! of the Chair be reduced to writing and be referred at once | to the appropriate Committee, unless otherwise directed by | a majority vote of the members present. (b) When a question is under debate, no : motion shall be received butt 1. To adjourn. 2. To take a recess. 3. To lay on the table. 4. To postpone to a certain day. 5. To commit. 6. To amend. 7. To postpone indefinitely. (c) When a recess is taken during the pendency i of any question, the consideration of such question shall be resumed upon the reassembling of the Conference unless otherwise determined. (d) A motion to adjourn shall always be in order; | such motion and a motion to lay on the table shall be | decided without debate. A motion for recess pending the | consideration of other business shall not be debatable, i PARLIAMENTARY PROCEDURE. | SECTION 13. In all matter of procedure not otherwise I covered by the Constitution and the By-Laws, Robert's | Rules of Order, Revised, shall govern. REPORTS OF COMMITTEES. | SECTION 14. Each Committee shall report annually its i recommendations; what progress has been made within itB province; and the difficulties encountered. It shall be 449 the duty of tho Chairman of each Comnittoo to conmunicato | with tho moaiboro of hio Committoo with roforonco to ito i work within thirty days aftor tho adjournment of tho Annual! Conference, and to report to tho Secretary of the Aseocia- | tion within an additional thirty days a synopsis of the | probable action of hio Committee. It shall be the duty of ! the Secretary to call the attention of the Chairman of each Committee to . this rule a reasonable time before such action is required, or in case of any default. A reasonable time before each Annual Conference ' of the Association, the Secretary shall communicate with I the Chairman of each Committee with a view to securing a i statement of the work of such Committee since the preceding | Annual Conference. ! All reports of Committees shall be in writing, i EXECUTIVE COMMITTEE. I SECTION 15. The Executive Committee shall meet on the day | preceding each Annual Conference, at the place where the I same is to be held, at such an hour as the Chairman shall | appoint. It shall also meet on such other date or dates, i and at such place and hour, as may be designated by the ! Chairman for a special meeting of such Committee. If, at any Annual Conference of the Association, j any member of the Committee shall be absent, the vacancy [ may be filled by the members of the Committee present. It shall be the duty of the Executive Committee ! to make all arrangements for the Annual Conference of the ; Association; to provide for a stenographic report of the | proceedings and to attend to such other matters as may be I from time to time referred to the Committee by the Associa- I tion. LEGISLATION COMMITTEE. SECTION 16. It shall be the duty of the Legislation Com- | mittee to endeavor to secure the introduction into and passage by the Legislature of the State of California of an Act providing for a Retirement System for all Public School Custodians within the State of California; and to take such other or further steps as may be advisable or necessary to bring about the passage of such an Act. The i President and Secretary shall be kept informed continu- | ously of the activities of this Committee, j DUTJf OF MEMBERS. I SECTION 17. It shall be the duty of the members of the Association to sndaavor to procure the enactment by the Legislature of the State of California of the Act referred to in the next preceding section; and to do all within their power within their several Counties to further such legislation; and the Secretary shall furnish them with copies of each and every recommendation and a copy of the Act recommended When there shall be such an Act. AWHDHWT8. SECTION 18. Any proposed Amendments to the Constitution or the By-Laws shall be communicated to the Secretary at least thirty days before the Annual Conference. PRSSXDBNT AND FIRST VICE-PRESIDENT. SECTION 19. The President and First Vice-President shall be chosen from different parts of the State, one from the ; North and one from the South. i i ***** * * * * COPY APPENDIX M COPY OF THE CONSTITUTION AND BY-LAWS OF THE CALIFORNIA SCHOOL EMPLOYEES ASSOCIATION AS REVISED IN 1963 COPY CALIFORNIA SCHOOL EMPLOYEE'S ASSOCIATION CONSTITUTION ARTICLE I NAME AND OBJECTS Section 1. The name of this Association shall be | California School Employees' Association, i Section 2. The objects of this Association shall bet | To promote the efficiency and raise the standards [ of service of all classified school employees within the I State of California; | To afford opportunity for the investigation and interchange of ideas upon subjects pertaining to the pro gressive development of the public school system and/or other educational institutions; 1 1 To initiate and promote such legislation, state | and local, as may be for the best interests of the schools I and/or the members of this organization; To establish a spirit of friendly cooperation with the state and local boards of education; and To promote generally the welfare of the members of : this organization. ARTICLE II MEMBERSHIP 452 453 Section 1. T3TPE8 OF MEMBERSHIP. There shall be two types of membership in the Association Which shall be as follows* (a) Individual— (1) Any person regularly employed j in or honorably retired from any public school system or I other educational institution in the State of California, | or in any office of a county superintendent of schools of | any county in the State of California shall be eligible to i active membership on the payment of the regular established dues. (2) A county Superintendent of Schools with the approval of the County Board of Education. The dues of such membership shall be as prescribed in Article VII, Section 7 of the Bylaws. ! (b) Institutional— (1) Any school or governing 1 board of any school or schools, on their behalf, a part of | the public school system of the State of California or j other educational institutions in the State of California, | is eligible for an institutional membership upon payment | of the dues established for institutional memberships. Section 2. CHAPTER MEMBERSHIP. (a) Members of the Association must also be mem- ; bers of an affiliated chapter except as provided in | Section 3. All members of chapters must also be members ■ of the State Association. A person must be a dues paying ; member of the affiliated chapter in his district of | employment. (b) If a person is eligible for membership in the Association but his employment status is subject to fre quent district-of-eqployment changes he shall be a member of the chapter closest to his legal residence. Section 3. MEMBERS-AT-LARGE. (a) Any person meeting the requirements of Section 1(a) for membership employed in a district not ; having an affiliated chapter may become a member-at-large : upon payment of one year's per capita dues in advance. If a chapter is subsequently formed in the person's dis- 1 1 I 454 trict of employment, he shall become a member of the chapter but shall be exempt from payment of chapter dues until the end of the month for which his dues as a member- at-large have been prepaid. ! (b) Any person awarded an Association life member ship who has retired or is employed in a district not hav ing an affiliated chapter shall be a member-at-large. i Section 4. ASSOCIATION LIFE MEMBERSHIP. A life membership may be granted to any member by a two-thirds vote of the delegates at any annual conference, which shall carry with it a voice and vote at any conference and shall exempt the holder from paying the per capita dues to this | Association, but not the regular chapter dues. ARTICLE III AFFILIATED CHAPTERS Section 1. GENERAL. Any organization of classi- | fied school employees may become affiliated with this I Association upon complying with the requirements contained in the Constitution and Bylaws of this Association. i Section 2. DESIGNATION. All affiliated organiza- ! tions shall be designated as chapters of the California I School Employees' Association. Section 3. CHAPTER YEAR— ELECTION OF OFFICERS. The chapter and fiscal year of every chapter affiliated with this Association shall extend from January 1 to December 31 of each calendar year. Officer personnel shall i be elected not later than December 31 and assume their duties on January 1 following. Installation of officers shall be held not later than January 31. Section 4. CHARTER— ISSUANCE AND CONTINUANCE. Each organization, upon affiliation with this Association, ! shall be issued a charter signed by the President and ; Secretary. It shall retain its charter as long as it fully complies with the provisions of this Constitution and Bylaw and has at least five (5) members in good stand Ing with this Association except that the Board of Direc tors may revoke any charter if it finds that continuance of a chartered chapter is detrimental to the Association. I Section 5. REPORTS REQUIRED. I (a) Each affiliated chapter must, when affiliat ing, send to the Association office a list of names and I addresses of its officers and members, together with all ! other information required by the Association, and shall j thereafter notify the Association of all changes of its ; officers. (b) Each affiliated chapter shall send every ! month to the Association information as may be required by ; it; such report to accompany the monthly transmission of funds. Section 6. DUAL CHAPTERS— SAME DISTRICT. In any | school district where a chapter or chapters exist, no new ! chapter shall be chartered by the Association until the | existing chapter or chapters and the Board of Directors i shall have been notified and approval has been granted. section 7. AUDITING OF TREASURER'S RECORDS AND BONDING. (a) The Association's Board of Directors shall I cause a blanket bond to be negotiated which shall provide for the bonding of all chapter treasurers. The basic bond shall be in the amount of at least $1,000.00, but chapters i may elect greater coverage upon payment of the appropriate i premium. The bond shall be a position bond so that the I position of the chapter treasurer shall be protected irre- | spective of personnel changes throughout the coverage \ period. (b) The blanket bond shall extend coverage from ; January 1 to December 31 of each year. The Association | shall bill the chapter unit for the appropriate premium not later than November 30 of each year, and the chapter shall remit the premium upon receipt of the billing. 456 (c) Bach chapter unit shall cause the hooks and records of its treasurer to be audited at least once each year. Such books and records must be audited at the time a change is made in treasurer personnel irrespective of any previous audit. Hie audit may be made by an auditing 1 committee of the chapter appointed by the chapter president | and/or in accordance with the chapter constitution and by- ! laws; or the audit may be made by a qualified firm or person outside the chapter membership. ARTICLE IV ASSOCIATION OFFICERS AND THEIR ELECTION Section 1. OFFICERS ELECTED AT CONFERENCE. Officers to be elected by the delegates to Annual Confer ence t (a) The following officers shall, by direct vote, i be elected for the year ensuing the annual conference, and shall be classified employees of the California public | school system or other educational institutions, and mem bers in good standing of California School Employees' Association President 1st Vice President 2nd Vice President Secretary (b) The election of officers shall be conducted as the last order of business on the second day of the annual conference. All nominations for elective offices to be filled at conferences shall be made and closed during | the first day's business meeting of a general session. Their tenure of office shall begin at the conclusion of i said conference and continue through the next succeeding ; annual conference, or until their successors are elected or appointed. (c) The President and 1st Vice President or any other elected officer shall be selected for nomination by 457 their qualifications regardless of the location of their employment. Section 2. ELECTION OF AREA. DIRECTORS. (a) There shall be six (6) Area Directors in this Association to be elected by the chapters within their respective area. These elected officers (Directors) shall represent the chapters within the Areas as followst (1) Area A shall include all chapters in Butte, Colusa, Del Norte, Glenn, Humboldt, Lake, Lassen, Mendo cino, Modoc, Nevada, Placer, Plumas, Shasta, Sierra, Siskiyou, Sutter, Tehama, Trinity, and Yuba Counties; (2) Area B shall include all chapters in Alameda, Alpine, Amador, Calaveras, Contra Costa, El Dorado, Marin, Napa, Sacramento, San Francisco, San Joaquin, Solano, Sonoma, Tuolumne, and Yolo Counties; (3) Area C shall include all chapters in Fresno, Inyo, Kern, Kings, Madera, Mariposa, Merced, Mono, Stani slaus, and Tulare Counties; (4) Area D shall include all chapters in Monterey, San Benito, San Luis Obispo, San Mateo, Santa Barbara, Santa Clara, Santa Cruz, and Ventura Counties; (5) Area E shall include all chapters in Los Angeles County; and (6) Area F shall include all chapters in Imperial, Orange, Riverside, San Bernardino, and San Diego Counties. (b) The Directors from Areas A, C, and E shall be elected for a two (2) year term on odd numbered years. The Directors from Areas B, D, and F shall be elected for a two (2) year term on even numbered years. (c) Bach candidate for an Area Directorship musts (1) Be a classified employee of the California Public school system or other educational institution and 458 remain so employed during his term of office. (2) Be a member in good standing of a chapter | within the respective area. i i (3) rile a letter of intent to run for such office j with the Association Secretary not later than January 15. J The letter of intent directed to the Association Secretary | must be postmarked not later than midnight January 10 of | the year in vdiich the election is to be held. (d) The Secretary shall then cause a ballot to be | prepared containing all the names of the eligible candi- ! dates. A copy of the official ballot shall then be for- ! warded to each chapter within each respective Area post- ! marked not later than midnight February 15 of the year in j which the election is to be held. i (e) Immediately upon receipt of said ballot the ! chapter President shall establish the date, place and time J of the meeting at which the chapter membership will vote upon their Area Directorship. The meeting will be scheduled for a date between receipt of the ballot and | April 15. (f) Bach chapter shall be entitled to one (1) vote ! which shall be determined by a plurality of the qualified j membership present and voting at the meeting established I by the chapter President in accordance with subsection (e) | above. (g) The ballot shall then be completed and certi fied by the signature of the chapter Secretary and forward ed to the Association Secretary postmarked not later than ! midnight April 15 of the election year. (h) The Association Secretary shall then tabulate the ballots and certify the candidate with a plurality of i the valid ballots cast, as the elected Area Director. The j certification, together with the ballots, shall be for warded to the Association President who shall notify all j candidates of the result of the election and shall cause the matter to be placed on the agenda of the next regular ■ or special, meeting of the Board of Directors. 459 | (i) In the event of a tie between two or more I candidate* the Association Secretary shall notify the | President that a tie exists, without disclosing the names I of the tied candidates, and the President shall place the j matter on the agenda of the next regular or special meet- | ing of the Board of Directors. (j) The Board, at its next meeting, shall first { audit any ballots declared invalid by the Secretary, and : shall sustain or reverse the invalidation. It shall then audit all ballots, tabulate the ballots and certify the j successful candidate. Results will be published in the | Association's official publication as soon thereafter as | possible. I (k) Successful candidates will take office at the conclusion of the next annual conference. (1) Audited ballots will be filed in the Associa- | tion's headquarters for a period of not less than two (2) j years and shall be open to inspection of any member of the | ! Association in accordance with Article VIII, Section 2 of | the Constitution. | (m) Letter of Intent to File for Area Director. (1) The letter of intent shall be in a form ap proved by the Board of Directors which shall insure that : the required information does not grant any advantage to i any candidate. The letter of intent form shall be repro- ; duced in the December issue of the Association's official ; publication and at least two (2) copies shall be forwarded to each chapter. (2) Failure on the part of any intended candidate < . to completely execute the "Latter of Intent" will be cause j to disquality the intended candidate. However, if suffi- j cient time permits the Secretary shall return the letter : of intent to the intended candidate citing this section and directing that the letter of intent be completed and returned, postmarked not later than midnight January 10. Disqualified candidates will be immediately notified by the Secretary of the disqualification and reasons therefor. 460 The Secretary shall also notify the Board of Directors of disqualifications and reason therefor at its next meeting. ; Section 3. TIE VOTES IN ELECTIONS. Where a tie vote exists in the election of officers the following shall governs i (a) Area Director. The Secretary shall immediate ly notify all concerned chapter presidents and candidates and shall provide each chapter president with a new ballot listing only the tied candidates. The chapter president shall then call a special chapter meeting to again cast its ballot and the rules governing the run-off shall be the same as for the original election except the ballot shall be returned to the Secretary not later than June IS. If a tie exists at the conclusion of the run-off, the election shall be determined by lot between the then tied candidates as may be prescribed by the Board of Directors at its next meeting. (b) Other Officers. If a candidate does not re ceive a plurality vote, the delegates to the conference shall continue to ballot from those candidates having re ceived the highest number of votes until one of the tied candidates has obtained a plurality vote. Section 4. FILLING OF VACANCIES. A vacancy in any office, except that of President occurring between con ferences or Area elections, shall be filled by the Board of Directors. Any such vacancy shall be filled only for the remainder of the term in which the vacancy occurs, ex cept that an Area Directorship vacancy that occurs where the unexpired term is greater than a year, the Board of Directors shall call for a special election within thirty (30) days after such vacancy occurs. Section 5. RECALL OF AREA DIRECTOR. A majority of chapters within an Area may petition the President to hold a special election for the recall of the Area Director and election of a successor. Said petition shall include the name or names of candidates to succeed said Area Director. Upon receipt of the petition the President shall call for a special election to be held in this Area not 461 less than thirty (30) days nor mora than sixty (60) days aftsr rscsipt of the petition. Chapters shall have one (1) vote per charter and a two-thirds majority vote by said chapters shall be required for a recall of the Area Direc tor and a plurality vote for election of the successor. ARTICLE V BOARD AND COMMITTEES Board of Directors Section 1. BOARD OP DIRECTORS— COMPOSITION. The ten (10) elective officers, designated in Article IV, and the junior past president shall constitute the Associa tion's Board of Directors. The Association President shall be the chairman of the Board of Directors. Section 2. MEETINGS OF BOARD OP DIRECTORS. The Board shall meet at the call of the chairman or at such times and places designated by it. Every member of the Board shall be notified of any contemplated meeting. The Board shall meet at least once each year, and 75% of the members thereof shall constitute a quorum. Section 3. BOARD AGENDA. The chairman of the Board shall direct that matters for Board consideration be submitted by a certain date. Any data received after the specified date may, at the chairman's discretion, be deferred for later consideration. Section 4. OPEN MEETINGS. All meetings of the Board of Directors shall be open to the membership but the Board may consider items in closed session if the chair rules them to be confidential, the disclosure of which is detrimental to the welfare of the Association and its membership. Committees Section 5. STANDING COMMITTEES. The following standing committees shall be appointed in accordance with 462 Article I, Section 1(b) of the Bylaw*s Scholarship, Legislative, Merit System, insurance, Education, Organise- | tion. Retirement, Research, Transportation, Safety, Edi torial and Advertising, and Conference General Chairman, j The President, at his discretion, may designate additional j standing committees. The committees shall consist of a , chairman and such number of additional msmibers as approved ; : by the Board of Directors. The committees shall serve, at | the pleasure of the President, from appointment to the | next succeeding conference. Bach committee chairman shall i advise the President and Executive Director of the time ; and place of meetings of his committee and shall at the | President's request report the results thereof. Section 6. CONFERENCE COMMITTEES. At the opening session of each annual conference the President shall announce the appointment of a Parliamentarian and the following committees who shall serve only to the conclusion of the conferences Credentials,. Auditing, Resolutions, ! Constitution, Courtesy, Budget, Nominating, and such other special committees as are needed. Section 7. COMMITTEE QUORUM. A majority of the members of any committee shall constitute a quorum. ARTICLE VI MEETINGS Section 1. ANNUAL CONFERENCE. The regular meeting of the Association, to be known as the annual conference, shall be held annually at such time and place as shall be selected by the delegates in conference assembled, or by the Board of Directors when so directed by the delegates. Section 2. SPECIAL CONFERENCES. Special confer- | ences may be called only by a two-thirds vote of the Board j of Directors. ARTICLE VII r 463 i amendments to the constitution and bylaws I i ; Amendments to the Constitution and/or Bylaws, after; ! being properly certified to the annual conference in | accordance with Article II, Sections 17 and 18, and Article! : V, Sections 6 and 7 of the Bylaws, shall require for j adoption a two-thirds vote of qualified delegates present ! at the session. ARTICLE VIII ASSOCIATION EMPLOYEES Section 1. GENERAL. Employment, dismissal, sala ries , expenses, vacation allowance, sick leave, etc., for employees of the Association not specifically designated in the Constitution or Bylaws shall be affixed by the Board of Directors upon recommendation of the Executive Director. Section 2. EXECUTIVE DIRECTOR. (a) The Executive Director shall be general man- ; ager of the California School Employees' Association under the direction of the President with the advice and consent of the Board of Directors. He shall devote his entire time to Association business. The Executive Director shall be present at all meetings of the Board of Directors and the annual conference. He shall establish a headquarters office subject to the approval of the Board of Directors, and such office shall at all times be open to inspection by members. (b) HO shall collect Association funds when so authorised by the Board of Directors and transmit them to the Controller. (c) He shall present to the annual conference a complete report of the work done during the year and a resume of the work that should be done during the ensuing year. He shall also present to the annual conference a budget of probable expenses for the ensuing year. He shall n - ■ - ....] 464 perform all such othar duties relating to the office of general manager. (d) He shall give such bond as may be required j by the Board of Directors, said bond to be deposited with the Secretary for safe-keeping. The premium on such bond shall be paid by the Association. (e) The Executive Director shall receive a salary set by the Board of Directors and paid monthly. He shall also be paid his actual legitimate travel and subsistence expense while away from home on Association business. The Executive Director shall be entitled to one and one-fourth working days' vacation with pay for each month of service from the date of his appointment to the next annual con ference and during each succeeding fiscal period. The dates of such vacation shall be approved by the Board of Directors. (f) The term of office of the Executive Director shall be from the date of his appointment by the Board of Directors to the date of the appointment of his successor, unless he shall be recalled as provided for in Article X, Section 5 of the Bylaws, or released for lack of funds, : in which case his term of office shall expire on the date of recall or release. ARTICLE XX ASSOCIATION FISCAL YEAR The fiscal year of the Association shall extend from JUne 1 to Hay 31 of the year following, inclusive. COPY r i i COPY BYLMfS ARTICLE I DUTIES OF OFFICERS Section 1. PRESIDENT. (a) All meetings of the Association shall be called to order and presided over by the President or, in : his absence, by the 1st Vice President, or in the absence ; of both the President and 1st Vice President, by the 2nd Vice President, or in the absence of all previously named, by the Secretary of the Association. (b) The President shall as soon as possible after ! his election, and with the advice and assistance of the ; other elected officers, appoint the various committee chairmen suggested by the Constitution or ordered by vote of the conference, except as herein otherwise provided. He shall be chairman of the Board of Directors and a member ex officio of all other committees. He shall have the power and it shall be his duty to appoint such additional committees as may be necessary. (c) The President shall, with the advice of the Board of Directors, supervise the work of the Executive Director. (d) The President shall arrange the order of business for the annual conference in accordance with Article V, Section 4 of the Bylaws, and shall perform such other duties as normally pertain to the office of presi dent. (e) The President shall have the power to appoint an assistant to any officer Whenever in his opinion such an assistant has become necessary. 465 (f) The President shall receive not to exceed | twenty-five dollars (25.00) per month as incidental expen- j ses in addition to such expenses as are allowed under I Article IX of the Bylaws. ! Section 2. 1st VICE PRESIDENT. The 1st Vice ; President shall, during the absence or disability of the | President, possess all the powers and perform the duties of the President in his stead. Be shall, by direction of i the President, assist in the promotion of any or all phases of the Association program. Section 3. 2nd VICE PRESIDENT. The 2nd Vice President shall, during the absence or disability of the President and 1st Vice President, possess all the powers and perform the duties of the President in his stead. He shall, by direction of the President, assist in the promo tion of any or all phases of the Association program. Section 4. SECRETARY. (a) The Secretary shall keep a record of proceed ings of the annual conference, of all meetings of the Board of Directors, and an accurate roll of the officers. He ! shall notify the members of the Board of Directors of time and place of meetings, and shall notify committee chairmen and all secretaries of affiliated chapters of the date, time and place of all conferences of the Association. (b) The Secretary shall receive a salary of one hundred and eighty dollars ($180.00) per annum, payable fifteen dollars ($15.00) monthly, and such expenses as are allowed under Article IX of the Bylaws. Section 5. BOARD OF DIRECTORS. (a) General. The Board of Directors shall meet : in accordance with Article V, Section 2 of the Constitu tion, and shall attend to such matters as may be referred to it. It shall be responsible to the membership for con duct of program in accordance with the Constitution and Bylaws and policy established by the annual conference. It shall develop the activities of the Association in a |manner consistent with sound business practice and economy. | The Board assembled in regular or special session may, by |a two-thirds vote, recall any elected officer (except Area j Directors) or the Executive Director of this Association j for inefficiency, disability, neglect of duty, or unsatis factory conduct, provided it shall first give the officer I involved an impartial hearing and trial by the Board so ! assembled. (b) Establishment of Registration Fees, of Directors shall establish registration fees in I amounts and for such Association-sponsored events believes to be appropriate. ARTICLE II DUTIES OF COMMITTEES Section 1. GENERAL. It shall be the duty of each committee chairman to coordinate the activities of his 1 committee with the program of other committees and the Association through the Executive Director. Each committee chairman shall, through the medium of the official publi cation or correspondence, keep the membership informed on , the activities of his committee and the progress being made. Section 2. EDUCATION COMMITTEE. It shall be the duty of the Education Committee to study the educational needs of all classified school employees, and, seeking the cooperation of the State Department of Education and other educational agencies and associations, to establish ; courses of study, leading to higher standards of efficiency in the school service. Section 3. LEGISLATIVE COMMITTEE. It shall be the duty of the Legislative Committee to study the legislative needs of the Association or local chapters, and to initiate and promote such legislative measures as may be for the best interest of the school system or the members of the Association, provided the Board of Directors shall approve such measures. This committee shall also study proposed The Board such as it legislation which affects the schools or members of the Association and, under the direction of the President, shall exert its influence toward the defeat of any such proposals which, if passed, would affect either or both j adversely. Section 4. MERIT SYSTEM COMHTTEE. It shall be I the duty of the Merit System Committee to keep actively j in touch with merit system laws, and to assist affiliated j chapters in securing benefits of merit system provisions : under sections of the Education Code as they may be applied ; to school employees in positions not requiring certifies- ; tion qualifications. Section S. INSURANCE COMMITTEE. It shall be the , duty of the Insurance Conmittee to familiarize itself with | all of the insurance programs offered by this Association ! and to assist chapters with all of the insurance provi- : sions offered by the Association. Section 6 . ORGANIZATION COMMITTEE. It shall be ; the duty of the Organization Cosmittee to interest eligi ble school employees in forming local affiliated chapters of the Association, and to assist them in becoming so organized. Section 7. RETIREMENT COMMITTEE. It shall be the duty of the Retirement Committee to be currently informed on retirement laws and to assist affiliated chapters in matters related to retirement. Section 8. RESEARCH COMMITTEE. It shall be the duty of the Research Committee to maintain a wage and salary survey of the classified employees of the school districts within the State of California, and to make other related surveys or studies pertaining to classified em ployees of schools of the State of California. The wage and salary survey shall be completed and be made available to the affiliated chapters by the first day of March of each year. Section 9. EDITORIAL AND ADVERTISING COMMITTEE. It shall be the duty of this committee to develop and rtcooMnd to the Board of Oiractora editorial, advertising, and production policy governing the official publication of the Association and such other similar publications as may be authorised by the Board of Directors. It shall also recommend advertising policy relative to esdiibitors at conferences and like projects. The committee shall, with the assistance of the Editor, prepare an annual report of activities and a suggested estimated budget for the ensuing year, to be submitted to the Executive Director and the Budget Committee. Section 10. TRANSPORTATION COIMXTTEE. The duties of the Transportation Committee shall be outlined by the President on appointment. Section 11. SAFETY DIRECTOR. The duties of the Safety Director shall be outlined by the President on appointment. Section 12. CONFERENCE GENERAL CHAIRMAN. He shall; be responsible for ascertaining the requirements tftiich are necessary to effectively carry on the annual conference. He shall be responsible for coordinating the activities of ! all conference committees, except those appointed by the President. Be shall appoint the local arrangements chair man, plus the following committee chairment exhibitors, press relations, registration, and sergeant-at-arms. All business pertaining to the annual conference shall be directed to the general chairman. He shall work effec tively with the executive director. He shall be the offi cial and direct representative of the president. He shall submit to the Board of Directors at its meetings progress reports relative to the annual conference. He shall also submit to the Board of Directors for its approval prior to actual commitment all contracts tftiich obligate this Association. Section 13. SCBOXARSHXP COMMITTEE. It shall be the duty of the Scholarship Committee to develop criteria for the awarding of scholarships and recommend same to the Board of Directors. The Board of Directors shall estab lish scholarships, the amount of each, and designate the name for each. The Scholarship Committee shall cause 470 adequate publicity to ba givan to the manbarahip to encour age applications. The Committee shall screen the applica tions and award the scholarships based upon the approved criteria. Section 14. ADDITIONAL DUTIES. Committees shall ! perform such other duties as may be directed by the Board | of Directors and/or President. Conference Committees Section 15. CREDENTIALS COMMITTEE. It shall be | the duty of the Credentials Committee to examine the cre- | dentials of each delegate, and to compile a report of mem- ! bers authorized to be seated as delegates, such report to | be turned over to the Secretary upon its acceptance by | the conference. Section 16. AUDITING COMMITTEE. It shall be the ; duty of the Auditing Committee to receive and audit the I annual reports and the books of the Controller and to re- I port its findings and recommendations to the conference. 1 Section 17. RESOLUTIONS COMMITTEE. It shall be ! the duty of the Resolutions Committee to receive and study all resolutions presented for consideration of the confer ence, and to present its report of all resolutions together with its recommendations to the conference. This com- | mittee shall refer any resolutions affecting the constitu- | tion to the Constitution Committee, and shall consider that committee's opinion before making its recommendation to ; the conference. Section 18. CONSTITUTION COMMITTEE. It shall be j the duty of the Constitution Committee to confer with and : advise any committee or member regarding the effect any ] proposed resolution would have upon the Constitution. It { shall be its special duty to receive and study any resolu- | tion referred to it by the Resolutions Committee, and to advise that committee as to the effect the resolution would have upon the Constitution. ARTICLE III REGIONAL REPRESENTATIVES Section 1. APPOINTMENT. The office of Regional Representative ie established and will serve under a staff- line organisation approved by the Board of Directors. The President shall appoint the Regional Representatives and they shall serve at his pleasure. Section 2. TRAINING. Regional Representatives will be provided at least one annual training session to insure that standard practices are adhered to throughout the state. Section 3. REGIONAL COUNCIL MEETINGS. Regional Representatives will hold at least four (4) Regional Council meetings (unless approval of President is obtained for less), at which the elected officers of all chapters within the Region will be encouraged to participate but these meetings will be open to all members of the Associa tion. Other duties of the Regional Representatives will be as outlined by the Executive Director and approved by the Board of Directors. ARTICLE IV RECORDS AND REPORTS Section 1. RECORDS. Each officer, committee chairman, and appointee shall keep copies of all corre spondence received and sent and at the close of his term shall turn them over to his successor. Materials not of permanent value will be destroyed. However, copies of all correspondence are to be referred to the Association's headquarters for file or disposition. Section 2. ANNUAL REPORTS. The annual reports of all officers and those required to render reports shall be submitted on the fiscal year basis at the conference fol lowing the close of the fiscal year. ARTICLE V I ANNUAL AND SPECIAL CONFERENCES Meetings Section 1. ANNUAL COMFERENCE. Ail annual confer- ! ences shell be planned and supervised by the Board of ! Directors or a committee appointed for that purpose, such | planning and supervision to include sale of exhibitors1 booths, the business and educational programs, and all i matters pertaining to the conference. Section 2. AUTHORIZED CONFERENCE VOTING STRENGTH. | Each affiliated chapter in good standing with this Associa- ! tion shall be entitled to representation at the annual or | special conference on the basis of one delegate for its j charter and one additional delegate for each fifty members | or fraction thereof. No member shall be a delegate for I any chapter other than the one to which he pays per capita i dues. All chapter delegates, together with members of the | Board of Directors, Life Members, Chairmen of Standing j Committees as authorized in Article V, Section 5 of the | Constitution, and Regional Representatives, shall const j tute the voting strength of the conference, providing that each such delegate or member shall upon registration pay I the required registration fee, and shall present his cre- I dentials and exhibit his paid-up card or life membership I card as evidence of good standing, except that members of : the Board of Directors, Chairmen of Standing Committees, ; and Regional Representatives shall be exempt from payment | of the registration fee. All others attending shall pay the required registration fee, except that vendors and 1 guests of the Association as authorized by the President | are exempt from registration fees. Section 3. CONFERENCE QUORUM. A two-thirds j majority of registered delegates present in meeting shall constitute a quorum at any conference. Section 4. ORDER OF BUSINESS. At the annual con ference the first order of business shall be to announce the appointment of consaittees named in Article V, Section 6 473 of the Constitution and such other committees as the President may deem necessary. The President shall arrange the order of all other business* except that the election of officers shall be as provided for in Article IV, Section 1 of the Constitution. (a) The order of business at an annual conference may be changed by a two-thirds vote of the delegates assembled. Section 5. ORDER OF BUSINESS, SPECIAL CONFERENCE. At any special conference the entire order of business shall be arranged by the President. Section 6 . RESOLUTIONS CHANGING CONSTITUTION AND BYLMTS. All resolutions intent on changing the Constitu tion and Bylaws except those mentioned in Article VII, Section 11 of the Bylaws, must be in the hands of the Secretary not less than sixty (60) days prior to each annual or special conference.. The Secretary shall cause said resolutions to be published in the issue of the offi cial publication preceding the conference. Section 7. OTHER RESOLUTIONS. (a) All resolutions pertaining to other matters must be presented to the Secretary, who shall cause them to be presented to the delegates assembled in sufficient time for discussion and disposition before adjournment. (b) No resolution will be accepted at the Confer ence unless in writing and approved by the chapter whose delegate submits it, and if submitted after the first business session has been called to order shall be pre sented only by those authorised to voice and vote. Such resolutions, if not subject to immediate consideration of the delegates assembled, shall be referred at once by the President to the appropriate committee for study and report, and shall be presented to the delegates in time for action before adjournment. Section 8. REGISTRATION FEES. The Board of Direc tors shall establish, by policy, the registration fees for delegate*, guaata and othara attending the Association's annual or apacial confaraneaa. ARTICLE VI PARLIAMENTARY AUTHORITY In all mattara of procedure not other wise covered by the Conatitution and Bylaws, "Roberta' Rules of Order, Revised," shall govern. ARTICLE VII DUES AND ASSESSMENTS Section 1. ANNUAL PER CAPITA DUES. (a) The per capita dues of this Association shall be twelve dollars ($12.00) annually, and shall be collected on at least a monthly basis in advance by the treasurers of affiliated chapters from their members and forwarded to the Controller of the Association on such forms as may be prescribed. (b) Chapter treasurers receiving per capita dues from members annually, in advance, or for more than the required one month in advance shall forward such monies with their next remittance report. (c) Collection of per capita dues from members on payroll deduction may be made on a current basis. (d) All monies collected and payable to the Asso ciation will be remitted not later than the due date of the next remittance report. Section 2. ANNUAL DUES EXCEPTION. If a member is employed on a four (4) hour or less per day basis by the employing entity, his membership record shall be so noted and the per capita dues of such a member is fifty per cent (50%) of that required by Section 1. A member must pay 475 his par capita duas annually in advanca to taka advantage of this Section. All other members, irrespective of hours | or months worked, shall pay the per capita dues established; | by Section 1• Section 3. EXPULSION AND REINSTATEMENT. Any mem- j bar allowing his arrearages for per capita dues to run over | the fifteenth day of the fourth month shall thereby be ex- [ palled from membership. A member who has been so expelled ! shall be reinstated upon the payment of at least three months per capita dues in advance and in addition thereto, the sum of three dollars ($3.00), one dollar ($1.00) of which shall be retained by the chapter and two dollars j ($2.00) of which shall be paid to the Association. Section 4. REINSTATEMENT IN NEW CHAPTER. A member who becomes delinquent in one Association chapter must | become reinstated before he shall be permitted to transfer : his membership to any other chapter of this Association. No provision to the contrary in any chapter constitution ! and bylaws shall alter or supersede the provisions for j reinstatement. ! : | Section 5. ISSUANCE OF WITHDRAWAL CARD. A member ; who terminates membership in the Association, other than by | expulsion or resignation, shall be entitled to and shall ! be issued a withdrawal card. Presentation of a withdrawal card precludes payment of reinstatement fees or an initia- ; tion fee when establishing new membership. | Section 6. ASSESSMENTS. There shall be no assess ments in this Association, except by three-fourths vote j of the chapters, voting on the basis of conference delegate : strength. Section 7. INSTITUTIONAL MEMBERSHIPS. Institu- | tional memberships for schools or school districts and county superintendent membership fees are as follows« SCHOOLS OR SCHOOL DISTRICTS I t > A.D.A. Annual Fee i 1 - 5,000.......$25.00 5,001 -10,000..... 35.00 10.001 -20,000..... 45.00 20.001 - over..... 50.00 COUNTY SUPERINTENDENTS OF SCHOOLS $25.00 per annum Section 8 . INITIATION FEE. When making applica- ' tion for individual membership, the applicant shall pay the; ! Association chapter, in addition to at least three months I per capita dues, an initiation fee of one dollar and fifty ; cents ($1.50), one-half of which will be paid to the Asso ciation. I ; j Section 9. DELINQUENT CHAPTERS. Any affiliated jchapter shall be deemed delinquent when such chapter has, ; for 90 days, failed to forward to the Association Controll er all funds due the Association. Such chapter shall be j deprived of all rights and privileges as an affiliated chapter and its charter shall be suspended until such de linquency has been paid, and the charter shall be returned i to the Association headquarters if such delinquency has not | been met within four (4) months. j Section 10. WAIVER OF INITIATION FEE. Any local organisation complying with the rules and requirements of the Association, and which has been organised in its own locality for more than six months, may become affiliated : with the Association upon the payment of the per capita dues only. Any new members added subsequent to affiliation shall be required to pay the regular initiation fee in addition to the per capita dues and chapter dues. Section 11. REVISION OF ANNUAL DUES. The per capita dues of this Association can be revised at the annual conference only, and resolutions concerning revi sion must be printed in the official publication for two consecutive months insedlately preceding the conference. Section 12. OFFICIAL PUBLICATION. Every member in good standing is entitled to receive a copy of each issue of the Association's official publication, which shall be published at least ten (10) times annually, j October-July, inclusive. ARTICLE VIII DEPOSIT OF FUNDS, INVESTMENTS AND BUDGETARY CONTROL Section 1. NAME OF FUND. All monies in the gen- fund of this Association shall be deposited in the of the California School Employees' Association. Section 2. BUDGET PREPARATION RESPONSIBILITY. (a) The Executive Director shall prepare an annual I budget which shall be subject to review by the Board of I Directors and the Budget Committee and presented to the ! delegates at each annual conference for approval. (b) Each budget shall contain itemized estimated i receipts and expenditures and shall indicate the amount to | be set aside for working capital, reserve capital and a ! reserve fund. Sectioi} 3. INVESTED FUNDS. Monies in the reserve fund shall be invested in the name of the California School Employees* Association by direction of the Board of Direc- ! tors in insured banks, building and loan companies, govern- i mant bonds, or such other investments that the Board con- 1 aiders to be productive and secure. Section 4. REGULATION OF EXPENDITURES. The approved budget shall regulate the expenditures of the ! Association. Any expenditures in excess of those approved : in the budget must be approved by the Board of Directors except that expenditures need not be approved which will ! not cause the major account to exceed the amount budgeted i for that account. i eral ! name i i Section 5. CONTROL OF FUNDS. (a) Ail funds of ths Association shall be re ceived and entered upon the records of the Controller Which! records shall be kept under the direction of the Executive , Director and the President. Regular books and full i accounts showing all Association receipts and disburse ments shall be maintained and shall be open at all times to the inspection of the President or his agent. A report as to the financial condition of the Association with a i detailed statement of receipts and disbursements for the preceding fiscal year shall be rendered at each annual con ference. A quarterly report on a form approved by the Board of Directors shall be sent to each chapter and one to each member of the Board of Directors. (b) Upon delivery of supplies for Which a charge ; is to be made to officers and affiliated chapters, a state ment for same shall be rendered. I (c) All funds of the Association shall be kept in : the name of the Association in such depository as may be ! approved by the Board of Directors and shall be disbursed | by the Controller, by check only, signed by himself and the | President or 1st or 2nd Vice President. The Controller ! shall give bond in such amount as may be required by the I Board of Directors, and such bond shall be deposited with i the Secretary for safekeeping. The premium on such bond ! shall be paid by the Association. ARTICLE IX EXPENSES OF OFFICERS AND COMMITTEE CHAIRMEN Section 1. MI LEASE AND PER DIEM. (a) The elected officers, committees, other officers, and persons designated by the President shall be paid a per diem allowance, to be established annually at the annual conference, whenever they shall be required or authorised by the President to travel on Association busi ness, and in addition thereto, mileage, at a rate to be 479 established annually at the annual conference, as traveling! expense for such transportation as deemed necessary by the i President. (b) Zt shall be the duty of the Board of Directors to recoasMnd to the annual conference the per diem and mileage rates to be established for the ensuing year. Section 2. EXPENSE CLAIMS. All claims for expen ses shall be submitted on the approved expense claim form and payment of all claims shall be from the general fund of the Association. ARTICLE X STANDARD SUPPLIES Section 1. SUPPLIES, COST. Standard stationery, Association emblems, and such other supplies as the Board of Directors may authorise shall be prepared and furnished to affiliated chapters at a cost established by the Board of Directors. Section 2. SUPPLIES, NO COST. Standard supplies, such as membership cards, application blanks, copies of the Constitution and By lavra, and supplies as may be authorised by the Board of Directors shall be prepared by the Association and furnished to affiliated chapters with out cost. COPY COPY STANDING RULES (Resolutions adopted lay delegates to the annual i conferences except those Which amend the Constitution and ; Bylaws and those which are not long-standing in their | nature. See "Robert's Rules of Order Revised,M p. 268.) { A. AWARDS FOR SERVICE TO THE ASSOCIATION 1. Life Membership A life membership is recognized as an award to members who have given outstanding service to the Association, and an appropriate membership card presented. A roster of life members, containing names of members having been so honored by the Associa tion, shall be published each year in the annual conference issue of the official publication. The names of life members shall be retained on the mailing list of the official publication. The names of persons who are being considered for an award of a life membership shall be sub mitted to the Board of Directors at least 24 hours prior to the taking up of new business by the annual conference. 2. Honor Roll An honor roll is established to reward persons having given valuable service to the Association. All members of the honor roll shall be given a voice in the annual conference, but only those on the honor roll who may be currently serving on the Board of Directors or as delegates to the annual conference shall be given a vote in said conference. % 480 481 The honor roll shall be published once each year in the annual conference issue of the official publication of the Association. The names of persons who are being considered for nomination to a place on the honor roll shall be submitted in writing to the Board of Direc tors at the Board meeting preceding the annual conference. EMPLOYEE MEMBERSHIP 1. Any person Who holds a membership in this Association, and becomes an employee of the Association, shall forfeit such membership as long as he remains an employee of the Associa tion. 2. Any person who is on the honor roll of this Association and becomes an employee of the Association shall have his voice privilege suspended as long as he remains an employee of the Association. 3. Any person who holds a life membership in this Association and who becomes an employee of this Association shall have his voice and vote suspended as long as he remains an employee of this Association. CANDIDATES FOR STATE OFFICE 1. This rule shall apply to all candidates for any elective office in the Association which is subject to ballot by the delegates to any annual or special conference. 2. The President and Conference Chairman shall schedule conference events to allow each candidate, When there is more than one candi date nominated for an office, equal opportunity to address the delegates in an effort to gain their support for his candidacy. 482 3. Bach candidate shall be allowed not more than ten minutes to outline his qualifications. An additional ten minutes shall be allowed each candidate to answer questions from the floor. 4. Speaking time shall be so arranged as to allow maximum possible time between the close of nominations and election of officers in order that delegates may discuss the candidates. D. CHAIRMAN, TRANSPORTATION COMMITTEE The President shall only appoint as Chairman, Transportation Committee, a member of the Associa tion who is regularly employed in the transporta tion field of the California public school system or other educational institution. CP** APPENDIX N PAST PRESIDENTS OP THE CALIFORNIA SCHOOL EMPLOYEES' ASSOCIATION CHRONOLOGICAL TABLE OF PRESIDENTS OF CSEA ! i i Year President Cltv of Residence 1928-29 Lawrence Twoaxe Oakland 1929-30 John C. Swift Los Angeles 1930-31 John C. Swift Los Angeles 1931-32 George J. Luhrsen Tracy 1932-33 George J. Luhrsen Tracy 1933-34 George J. Luhrsen Tracy 1934-35 George J. Luhrsen Tracy 1935-36 Edward A. Haire Hollywood 1936-37 Edward A. Haire Hollywood 1937-38 Al K. Evans Berkeley 1938-39 Al K. Evans Berkeley 1939-40 William P. Francis Los Angeles 1940-41 William P. Francis Los Angeles 1941-42 Frank Thomas Berkeley 1942-43 Frank Thomas Berkeley 1943-44 L. C. Sutliff Taft 1944-45 L. C. Sutliff Taft 1945-46 L. C. Sutliff Taft 1946-47 Robert Trimlett Hollywood 1947-48 Robert Trimlett Hollywood 1948-49 Otto Palumbo Richmond 1949-50 Richard Watts Long Beach 1950-51 Lloyd Hoyt Antioch 1951-52 M. L. Brazil Ventura 1952-53 Robert L. Wales Alameda 1953-54 Fred H. O'Brien Long Beach 1954-55 Lloyd W. Hitchman Campbell 1955-56 Charles J. Kramer Monrovia 1956-57 Samuel Anthes, Jr. Richmond 1957-58 William Zinn Long Beach 1958-59 Clarence Lawrence San Lorenzo 1959-60 Harold Prough Visalia 1960-61 Harold Prough Visalia 1961-62 Lewis J. McCall Merced 1962-63 Lewis J. McCall Merced 1963-64 Clinton Mortenson ‘Long Beach 484

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Asset Metadata

Creator Carmichael, Howard Allen (author)

Core Title The Growth, Development, And Emerging Problems Of The California School Employees Association

Degree Doctor of Education

Degree Program Education

Publisher University of Southern California (original), University of Southern California. Libraries (digital)

Tag education, administration,OAI-PMH Harvest

Language English

Contributor Digitized by ProQuest (provenance)

Advisor Nelson, D. Lloyd (committee chair), Muelder, Wallace R. (committee member), Perry, Raymond C. (committee member)

Permanent Link (DOI) https://doi.org/10.25549/usctheses-c18-355239

Unique identifier UC11358951

Identifier 6501279.pdf (filename),usctheses-c18-355239 (legacy record id)

Legacy Identifier 6501279.pdf

Dmrecord 355239

Document Type Dissertation

Rights Carmichael, Howard Allen

Type texts

Source University of Southern California (contributing entity), University of Southern California Dissertations and Theses (collection)

Access Conditions The author retains rights to his/her dissertation, thesis or other graduate work according to U.S. copyright law. Electronic access is being provided by the USC Libraries in agreement with the au...

Repository Name University of Southern California Digital Library

Repository Location USC Digital Library, University of Southern California, University Park Campus, Los Angeles, California 90089, USA