CHILD WELFARE IN NEW JERSEY - MCH Library

'J . ' . /Q / .__

U. S. DEPARTMENT OF LABORJAMES J. DAVIS, Secretary

CHILDREN'S BURE,AUGPACE ABBOTT. Chbf

CHILD WELFARE IN NEW JERSEYPART I.-STATE SUPERVISION AND

PERSONNEL ADMINISTRATION

By

WILLIAM J. BLACKBURN

o

Bureau Publication No. 174

UNITED STATES

COVERNMENT PRINTING OFFICE

WASHINGTON

1927

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CONTENTS

Letter of t ransmit ta l______ Pase

r'troductioi; ---l-------_---_-_-_-:--_-_-::__-_-_- v

'lhe rrork oi-ilr;- N;;.' Jersey state oepa"tmeot- oT-r".tilrti"". l"a I

agencies_____ T

I{istorical backgrourrd of State supervision__ 7Eeginnings of public supervisio^n______ 7Counci l of c l iar i t ies and correct ions, 1gg3_1gg6________________ 7State charities aid and prison reform association, 1gg6_1914____ 7f)epartme.nt of charities and. corrections, 1g0d_191g 9

_ Itoorgarrization of 1918-the State board of control___-_____ 1oPresent sJ-steut of public supervision and control__ j2

Olganizrttion arrtl functions of the State department of insti_tut ions rrnd agencies t2

Execut ive and advisory organizat ion_ 12Funt. t ional .or .ganizat ionAt l r r r i r r is t |ar ive organizat ion_____-_____ 1i l

Pe.so''el ,f tlie state board of control and of ttre departmentof i l ,s t i tut ions ancl agencies________- 20

Polieies of tho State boarrl of control apd of the departrnent .of i l ls t i tut io l t ,s and agencies___________ 21

Ir l ter l la l l r r i ru in ist rat ion and contro l____________ ZlExter l la l r .ooperat ion. educat ion, and supervis ion_______-_ 2g

Summary anr- l recourmendat ions__________________ 8.1Reviel- of Neu' Jersey's experience in supervision___________ gitRe-sults of sevtn )etirs of cetrtral control__-____ g4I teconrm(j l ld i t t iorrs_________ 86The geueltrl lrt.oblern t_rf supervision______ 87

Cilil -service in Neq' ,Ierse'1-_______ BgThe pr.oblern of cilil -selvice_._____ lJgEar ly year. ,s of t , i l i l sery ice in Nerv Jersey_____* 4Il'he present slstern of civil service in Nerv Jersey_______ 42

l 'he conrtr r i -ss ion---- - - - - - - 42The l ie ld of c iv i t ser .v ice______ 48Nerv .fer,qc}' civil-service administratior] __________ 44

Olassi{ icat iurr of posi t ions_ 44Cor l lpensi l t i { , r r -qupervis ion uncler c iv i l serv ice______ 46Seler_'tiou of lubJic personnel____ 47Cert i f icat ion atrd apiro iutrnel i t__r______ 50Regulation and imltrovernent of ilre service_- b1.Suspension, reduct ion, and discharge-___________ EzPublicity and rcports_ bbRetirement and pension_ b6

Appenclix A.-Summar-y of the New .Iersey civil service lan,______*____ 57B.-Examples of exaruinations held autl blanks and forms used

by the Ciyil Service Commissiol of Nerv Jersey_________ 64

UI

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I,ETTER OF TRANSMITTAL

IJNrrnn Srerrs DnplnrlrnNr or L.tron,Crrrr,unnN's Bunneu,

Wasluington, Ja.nunry 15, 1997.Srn: There is transmitted herewith a report on Child Welfare in

New Jersey, Part 1-State Supervision and PersonaI Administra-tion, by William J.-Blackburn. the first of a series of studies of childrvelfare in New Jersev undertaken bv the social-service division of theChildren's Bureau ad the request of th" New Jersev State Board ofControl and the Commissioirer of Institutions anil Asencies. The.everal studies were made_by specially qualified expeits, with Mr.Itluckburn serving as coordinator for ihe'group. Ai thev are com-lrleted, reports are being submitted to the'board of control and theeommissioner of institutions and agencies and to the executives andboards of the institutions and ageilcies immediately concerned foreriti_cism and suggestions. 'Ihe agents of the Childr"en's Bureau haclat rll times the f rrll and cordial'cooperation of all these officers inrrral<ing the invest igat ion.

Resp-ectf ully subriitted.

Hon. Jemns J. Dlvrs,Becretary of Labm.

Gnece Aesorr. Chief .


CHILD WELFARE IN NEW JERSEYPART I._STAT[ SUPIRVISNN AND PERSONNET ADMINISTRATION

INTRODUCTION

._ Beeause of its,geo.graphical location and its historical development

-\e.y.JeISSy has held, from colonial t imes, a position of economie andpol i t ica l importance out of a l l proport ion to i ts area and ponulat ion.It controls the l ines of dilect commrrnication between rhltaaetptriarrnd New. Yor-k;-its suburban districts give homes to unnumb'eredmetropol i tan workers l i ts farms supply food for these c i t ies: and i tsmines. quarr ies, mi l ls , anr l fac ior ie i furn ish raw mater ia ls and agleat .dir-ersity of .manufactured products to the world's mar.kets.I he trrecl crtv famrly may enjoy its clear glacial lakes and its coolInounla in val leys. or- i ts long_and del ighi fu l seacoast , which hasbegomg the summer pla.yground of the East.

\Yithin a land a.ei of Snly 2,514 square miles l{ew Jersey possessesa 'ariety of resources found in few great states. rn th6 horthernmountains it has rich zinc and iron mines, marble and granitecluarries, ancl prosperous dairy farms. The roliine hills farthei southstrppor t product ive o lchards.- T l rese grade into an.-area of r ich seneral1rr 'm lanr ls and th is aga. in in to. a-{er t i le f ru i t and t ruck " region.

luld q"d clav products from this district have given the stat"e itsleaderslrp in ceramics. Ton'ard the southern s6acoast stretches agreat p ine bel t . a land of cranberry bogs, of wi ld . sandv p ine barrens-lnd of sa l t marshes. Numerous in lets and bnys supplv iarse ouant i jt ies of^ovsters-and clams an,l permit profitable_fishirig.' rh-e pbpula-tlon ot New_Jersey represents a varietv of elements well sri ited topl 'ogressrve development in^eeonomie. pol i t ica l . and soeia l f ie lds._ r ng orrgrnal popu tatron of .bjast J erse.y \\ 'as extremelv heierogeneous.In what is norv Bergen Counly the Dutch were pietlomini'nt. fnEssex and Middlesex co.nt ies,"Puri tan r- .* B"gr l"a.^ ' i r"- w.*H rr r en solqlJ' conn...constitrrted a ma jori ty of th e-p.,pula ti on.

-- tr,.y

lr'o.sht n'i_th them the democratic politic;l institirtibn of the townnret'ting, Quakers and Baptists frbm Rhocle rsland settled Mon-p-lrrrr t l r Corrnty. and Seott ish' immigrants poprr lated the reeion arouncll'ertlr^.\mbov in }l.lddlesex county. Minv Germans scttlecl around^\e\\ ' rJ lnnswrck. ' l 'hrs eomposi le nature of the populat ion doubt lessgoe.r ir long wav toward,aceounting for its turbulbnf politicai history.

lhr, 1.ropu^lation of West Jersey was more homogeneolls. There..ere. i l , l t 'u ' swedes. but the mass of the populat ion r f i re middle-classr,r)glr : l r rren. at hrst marnly Qrrakers-. - As eompared with East Jersey,\\-est .Jersev enjoyed a peirceful and harmoni6us existen;i

"

_, 1.'Ianner.

-I-ldrvin p. : The province of NewLn i lc rs i t l ' . \e rv lo rk , 1908,

Jersey, 1664-1738, pp. 25-29. Columbia

1


2 . \ - . J . CHILD WELFARE-STATE SUPERVISIoN AND CIVIIJ SERYICE

The passing .r 'ears har-e n'rought great changes but har-c ne'elentireh' obliterated these re,gional difflrences. To-day northeastern\en- Jerse-v remains a land" of diverse population,

"io"n ru" Xut"

\-ork Citr-next door. It has not lost ali trace of its pioneer stocl<s

nor its traditional political tendencies. The central and southernpart of the Ftate- largely retains the conservative English and euakerinfluenccs that charactcrized the peaeeful past. with the urori'th ofthe industr ial c i t ies of Trenton

-and Camden and the br i iv manu-

facturing towns along the Delaware B,iver between them, ho"wever, a

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Population persoUare rni l 'e

F= roo to 250

NEW JENSEYA'ALE-frAfUfE AIL'S

I INTRODUCTION 3

conside.able foleign element has been added to the population oftl)rs drstrret. Irven more recently some of. these p_e6pl-es. notablyrtalians, Pglep, and Jews, .have-"reft theaities un'd ri."oin" .-uiltarmers and fruit growers in colonies scatlered throughout centralancl southern New Jersey. Much of the farm rabor"there also isItalian, although the Ne[ro holds animportant prace in thir *ork.r: ven the prne belt has not escaped the progressive chanses of the$ry: Seashore resorts are pushing it bacF from the coast, immigrantIlltl l1s. ?re .cteanng,out targe tracts for .vineyards or orchards,tne. btate s hrghway department is penetrating its depths with ex-cellent_ motor roads, and the educational aut[orities are replacinothe rsolated rural schools with weJl-equipped consolidated schbols.

The grea-t variety in economic, sociar, historicai. a"J--pltiti.utresources ot the state has been reflected in an equal diversitv of-:.^t,"t

!."ple1q an{ opporrunitie... . In many lines-;i .;.i;t-;;i{"*,sucn as ecrucatron, health. the administratioh of charitable and corjrectronal rnstitutions, public and private research, provision for thefeeble-minded and iniane, and^ variour .ututud tia.,

-1i.' i l.r."y

*,1* =_!9o19{place. In a.few r.e;pects it, p"u.ii*.iu'r' i, poor_relrer admrnrstratron, have fallen behind its ideals. Th'e state maybe thought of, in fact, as a great social laboratory.--j_n"^*uglo^-pllying-map. (see p. 2) indicat"es how widely onep?rt oI tne State drflers from another in densit_y of popuiation.'Ihus, it.may be seen that rhough Hudson-C"r"6-;";"{#i+,oei.rpopuratron a squale mile,_several counties, such as Sussix. Hunter_Il?1, 9_.-.n, ancl ('ape May, average less'than 100 a sqriare mile.rne concentratron rn most of the northeastern counties is muchgreater- than the avernges indicate, owing to th*i; i;;;u J"uu. ofuninhabitable tide mrr"llr and, sparJy F.tiLJ^--";;i;;-""rr"y..'fhe following figures indicate trre steadv tt;;a of pil;i;i i;; io*a"durban and away-from rural districtsr "

Cless of population

UrbanRural- \3m,fi2

554,50770. 629.4

2,537,167

r, 907, 2r0629, 957

rm.0

Per centdistribu-

tron

78.421.6

lnln

The table following shows the imporLanceNew Jersey and the Iarge percentag'e of itsuroan occupetrons:

of industrial workpopulation engaged


Tenr,n l.-Urban, anil ,ural, pryulati)om in Neu) Jerse\, 1900, 1910. 1gg0,

I Fourteenth census of the united states, 1920, vol. rrl, popuration, p. 6a6. washing ton, rgyz.

4 \. J. cHrLD wELFARE-STATE supERvrsroN AND cryr, sERvrcE

T.rerr 2.-Occupations of perso,ns 70 of age anil, ouer, bg seo, New Jerseyt,

Occupation group

aears1920'

Per contdistri-bution

100.0

. 7Agriculture, forestry, and animal husbandry_ -__Ext,raction of mineEls- - - -- - - -- -.Manufacturing and mechanical industries _____Tmnsportaiion- -Tmd;: - - -:- - - -- - - - - - - - - - - - - - -- - -- - - - - - - - - - -- - - -Public service (not elsewhere clasifl ed) -- - - - - - - -Pro fess iona l serv ice- - - - - - - . . . -Domestic and personal service- -C le r ica l occupat ions- - - - - - - - - -

c)37. 82 . 26 . 9. t

21. I2L.7

59,2003,922

516, 750104,616t24,2L334,25741, 91342,33487, 458

61, 1533,935

628,5751 i 1 , 1 1 5144, 59334,62470, 119

104, 913151,626

5 . 8. ' 1

50. I10. 312.23 . 44. 14 . 28 . 6

1, 95313

111,8256,499

20,380

28,20662, 57964, 168

1 Fourte€nth Census of the United States, 1920, Vol. IV, Population-Occupations, pp. 92-108. Wash-ington, 1923.

2 Less than one-tenth ol 1 per cent.

The Children's Bureau consented to undertake a survey o{ certainphases of child $'elfare in New Jelsey beeause it presented au op-porlunity to studv several important aspects of special care for?amilies"and children such as characteri2e both uiban and ruraldistricts and both highl5' industrialized and varied agricultural re-gions of the eastern siab6ard. The request for this stucly came fromthe New Jersey State Board of Contiol and the Cominissioner ofInstitutions and Agencies, who believed that the State .ivas nakingunusual progress in some lines of social encleavor but realizecl thatthe program was not developing in perfect symmetry. 'Ihese Stateagenciei wished to have their own irork and that bf related localpubl ic and pr ivate agencies checked up b) ' an rrnbiased aut lror i ty,Teel ing that 'only byiuch a frank studv 6f both strong an. l weakpoints could they diseover the basic facts on which to der-ilop a well-balanced program for the future.

Limitations in both^ persom_el and time prevented the study,sincluding the entire State. l'he State board of control select-edEssex, Mercer, Monmouth. and BurlinEton Counties as representa-tive of the various regions in the StaTe and at the .a*.^ ti-e a.readily accessible from either Trenton or Newark. Hacl it beenpossible to include one of the northwestern mountain counties thestutly rvould have included all the tvpes of districts in the State.The "four counties chosen represent ftie great metropoliian districtof the north, the seashore plavgrounds,'the central^industrial dis-trict, and-the fertile farming, firiit, and truck region and a section ofthe pine belt.

The study was limited on one hand to general aspects of social ad-ministration and on the other to detailed surve-vs of the State'sserviee to dependent and del inquent chi ldren. A br ief study ofprivate institutional _and agencf care for dependent childr.en"andfamilies was included. Under fhe first headirje survevs rver.e madeof the organization and administration of the New Jersev State De-partment of _rnstitutions and Agencies. public-personnel idminis{ ra-tion, poor-relief administration, arrd coitmunify organization. Un-

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INTRODUCfION

der the second heailing detailed field studies were made of the work

" i i f i . Stut. 's agency 1-gr the cale of dependent chi l l ren and widorset l

-otir.t=, una ofit. ' 'h*titrtions- and agehcies tor the care of delinq-trent

"hil,l..n. It was not feasible to include on the surYey staff an

;; ; ; ; 'a i " . tuJv t1e publ ie and p' ivate t 'are for feeble-minded

"[ i t , t ' .n, in rvhich f ie ld Nerv Jersel i has made notable contr ibut ions,

in,l tt,. ' l.fore this field rvas covered only b-1' a statistical t*t.YV'At tlie same time that tlie social-service division of the uhrldren's

n,i."u" *u. making these studies the industrial division was making

"n .rt tr.ite study-of conditions among working childlen, iimited

ehief lv to the industr ial c i t ies of the northern part of the State'^. f . I foundat ion for. the special stut l ies the reiords of the inst i tut ions

onr.l ut{.n.i.s for a fir'e-,'eai period, from April 1..1920, to March 31,ii,l;, iu.r. consulted to "ohtaiir figures on all commitments of childrenuna"i fS vears of age from Essei, Ifercer, Monmouth, a-nd BurlingtonCountiesito the St'ate board of children's- guardians, the State homefor bovs. the state home for girls, the state reformatory- for men,the St"at6 reformatory for women.'the State institution for feeble-niittal *o-en, the tho State colonies for feeble-minded males,,andffi l""i"i"g school at Vineland. (Although the, training , schoolut, Vio"tu"f, is under private manaliement if provides -cale at Statc. io." i" ior a large number of the' trainable fype o{ de_fect ive.boys.r f-" i t t r . i th& f igutes, summarized and"compared. furnishedi:ui"rBf" iirformation'on which to base plans {or the rest of thesurvey."

A ."".ies of detailed case studies was made to determine the extent

"na f.i"a oi cooperation existing among.social agencies. both.public

;;J ;;l;"t;. to'check the results of their woik, and to furnishillustiations' for the repolts.

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THE woRK oF rHE NEw rr**lrt srATE DE*ART-MENT OF INSTITIIIIONS AND AGEI\CIES

HISToRTcAL BACKGRouND oF srATE supnnvisroxBEGINNINGS OF PUBLIC SUPERVISION

_ As early as 1866 public interest in social rvelfare in New .TerseyIed to the-appointment of a sanitarv comrnission instructed to securefacts about conditions in charitabl'e institutions, means of prevent-ing pauperism, and methods of treating insanity. A simil^ar com-mission was appointed in 1874. Neither of theie commissions suc-ceeded -in getting its recommendations enacted into larv. Ilowever,when the State board of health was created in 1877 it was chareed'with the oversight of health conditions in public institutions a'ndexercised a degree of sanitary supervision bver them for severalyears. Experience in the limitations of its work led the board toadvocate the creation of a body with more general supervisorypowers.

COUNCIL OF CIIARITIES AND CORRECTIONS, 1883-1886

By an act of March 23, 1883,1 an nnsalaried council of Statecharities and corrections, consisting of six pelsons and the gover.norex officio, wa.s ereated. I'he members rvere duly appointed by thegovernor and confirmed by the senate, the council bi,inq organizedon May 20, 1884. The council lvas directed to secure inforlnationas to what State, county, township, and city charitable and correc-tional institutions there lvere, to get from these institutions regularreports covering the.age. s_ex. nationality, marital status, orpha-nage,costs, and sundry related fucts about their inmates, and to sirpcr.rjisetheir work in certain .\yays. It was not provided, ho.rver-ef, rvitlreither funds or authority adequate to its task. Response from theinstitutions varied f_rom -complete cooperation to eqnally completeindifference. Though it found much that rvas sood the councif alsomet so r,ngch oppoiition to its efforts to impiove bad conditionsthat its third annual report (1886) contains the following statement:" Experience teaehes that recommendations of this kind- are lookedupon by those controlling the institution as an unwarrantable inter-ference." The council was abolished in 1886, although the orisinailaw apparently was not repealecl before 1896.t

STATE CHARITIES AID AND PRISON REFORM ASSOCIATION,1886-1918

Even before the trial of a State council to supervise public iusti=tutions a distinct movement had begun in n{orris County rvhich'

I N, J., Laws of 1883, ch. 205, p. 249. 'N. J. , Lews of 1E96, qh. 124.

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8 N. J. .HILD *ELFARE-.'ATE sup'Rvrsro)i AND crvrl sERVrco

:^Tdj: t i l .d to playihe chief part in prrb. l ic srr l rer.r . is ion r l rrr ing thenest, ;JU years. In ^1881 .a group of publ ie-spi i i ter l * .ornen. ' st" i rrer loL, lLl . ql :""1".y,o{ ser ious condit ions in their counr\- almshorrse,t 'a l led a meeting-to decide on some remedy. Tlre pr in, . i |a l speakerrep_resented the Nerv York state chafftie; Aid Aisociri;n".'*t i"n|ad b.ee-n or-g_anizedîn 18?2. As a resurt of this -"Ji"s hr"."'r"u-"r,lounded a -Nlorris county charities Aid Association bn the generall ines of the New York brganizat ion. Their ear.nest". . r- i .

o1-, , ,oreclby the_frcJ thgq rvithin the year (on December 16, issr-i1ri.u'incor-porate.d _the Morris

"County Chjld.ren's Home ut nur.ipliuny topror ide better care for, orpha,s, t i l l then,kept. in i t , .

" ' t iurt , t ,u.n.\ \ 'h i le the state corrnci l wirs. losing grounct. agarnst orcr.rr t ,el , , r ingodds. the nerv idea of supervisiot of tl"* pubric igencies bv a"r,r,ir.atc:.1{:1i?1li"n wag,qlining favor in the priUti. -iila. rro.'rii bo,,r,,ysucceedecl so rvell that by 1886 the time seemed ripe to estenil t lr"e] ! rkôver .a . larger f ie ld. -on March 24. 1gg6, r r , " 's tut" 'Ch*r i t ies. r r ro dssoclat ron ot New Jersey was organized and a const i tu t ionadopted. Its objects were stateil as folloivs:

^1:,Tn. promote inrprovement of the mental, moral, and physical conditionof the inmates of all state institutions, countv poorhouses. cifv arnrsrrorrsos'r L'E ru'aLes or arl srare lnstltutrons, county poorhouses, city almshouses,prisons, jails, penitentiaries, and reformaiories. tunatic rsvtrrms ^rnhqnmatories, lunatic asylums, orphanasvlums., a_nd all praces *here tor crra.itarrL,"p""hr,-"""i.Lt"fi;;;ff'p;.ifi:;any intlividual is supported at publie charge.

2. To induce rhe arloprion Uyine commuii iv utorganrzauon rrnd ariministration of both publicrlevelop the sell-respect and increase the iowerclasses of society.

large of such measures in theand pliyate charity as mayof self-support of the poorer

, During 1.886- the_ governor signed a bill, which had nasse,l b.thnouses 9.I the" leg.rslature- rvithout opposition, providing ihat on rhe3.f3ll:.r]pl,or a cluly authorized member of the State assoeiation anyJustrce ot the supreme court might gr.ant. .an order enabl ing srrcirperson,or persons-to vis i t , inspect, and examine in behalf oi sai . . liTlll l,r9il^-i{ 9I jf." countyJ town. r.ownship,. or city poorhorrses,p^.]::l?.li l is. penrtentrarres, retormatories.. lunatic or orphan asylrrms:^.,1,..^,1yltT,l l ly of the eounties in rvhieh !.lid justic'e _ay 6o ap_potnted to hold lhe circuit court thereof.' ' tr'urther, officeis or ,r'ttsuch institutions were ordered to renrler ,, .uury iu.ltlv *iifr;" tnui.powe. to enable them to make. in a thorougi. , -ot nJ,. . * . i , u i . i i ,inspection, and examination," which *er" d""Tor"ltr lr"'t""?publicpurpose.

, , The legislatu'e approp. iated 9600 3 annual l .y for the prrbl icat ion ofrne assoelatron's yearly_ reports. Through such lcgislative sanctionand by rhe a,brhty and devotion o'f its officers the state charities AidAssoeration became the. generalry recognized agency or ine Siut" to"the supervisionôf pubi ic char" i tabre-and coirect ional insr i iut ions.r t appears that state inst i tut ions. not being ineludecl in the provisionsof the act of April 7. 1886, more or less *!"opu.r any actequate suDer-vlsron, tor. several yea.s Ionger. - rn. t ime, l iorvevei, the'associat ionextended rts work to cover these institutions also...,S:l^.Tj.jl l 9Lp",J"te asencies also was not included in the pro_vlsrons ot the act. I"rom i ts ear ly days the associat ion mainlained

,."i$3H,l:t-,of]i#i+"$0Y:?.3:1,"i€i.S"""tiitJ""l* a $.,1 .noly lor th.e pubrication of ilreru* "ttg*idt+lijJfoln"*ti*",*,i;t,S*;*l,X""it' Jl";th"I'Ji;i;:lty.ipt"t*;


STATE DEPARTMENT OF INSTITUTIONS AND AGENCIES 9

a policy of cooperation and friendly interest in private agencies andstood readv at all times to extend to them whatever help it couldgive. Many of them responded, but the majority from tiat day toihe present" have looked'with some distrust on"any move torvardadequate public supervision

Members of the association as a result o,f their findings started thespecial investigation of conditions amon! children in almshortsesthat led to theircation of the New JerseyState Board of Children'sGuardians in 1899.

In 1904 the Prison Reform Association was included with theStates Charities Aid Association and the name was'chansed to theState Charities Aid and Prison Reform Association of Nerv Jersev.Thereafter the association increased the emphasis on its supervisi<inof correctional institutions. It retained its important place in thescheme of social le{orm up to 1918, when, with-the inaugurat ion ofthe new State deprrtnrcnt'of instittitions and agencies, the executivecommittee placecl the ploperty and chalter in the hancls of trustees,where they still lemain, and the organization ceased to function.

DEPARTMENT OF CHARITIES AND CORRECTIONS, 1905-1918

Limitations in both its resources and its authority for adequatesupervision of many of the State institutions, with the developmentof unwholesome conditions in some of them, convinced leaders inthe State Charities Aicl Association that only a public board ofState charities coulcl meet the need efiectively. After vears of asita-tion and efiort a bill rvas introduced in the l"esislature"to create Eucha board with ample po\vels. The act as passed antl appr-oved, how-ever, created the oflice of the commissioner of charities and correc-tions n'ith verv limitecl authoritv.- The duties of the commissionerwere clefined ui foilo*s : Charse bf the architecture and constructionof State institutions; the inspection of charitable and correctionalinstitutions receiving appropriations from the State treasury I andinvestigation concerning the management of charitable and correc-tional Institutions, upori request of The governor.

This was understood to mark a clear distinction between the con-tinued work of supervision of county and local public institutionsbv the State Charities Aid and Prison Reform Association andtirat of State institutions by the new State official. The arranse-ment 'lvorked reasonablv rveii at first.

Observation of the dolicies and methods in use bv manv privatecharitable institutions' and agencies, particularly t6ose cdriirg forchildren, Ied the State Charities Aid-and Prison Re{orm Associa-tion to advocate public supervision of them, but this rvas not pro-vided for in the 1905 lesislation. The association in its annual re-port for 1911 states: " To advocate anything like State supervisionbf them. even thoush that supervision extEnds onlv so f-ar as toauthorizir visitation ind to ruquire reports, is not pofular, yet suchsupervision is an urgent need.t t u

'wlttrin four or fi-ve years a law was passed authorizing the com-missioner of charities and.corrections, ori request of a priv"ate charit-

a N. J. , act of l Iar , 25, 1905, Laws of 1905. ch. 57, p. 92.6Annual Report of the Board of t r Iarragers of lh-e State Cbar i t les Aid and Pr isonReform Association for the year ending Oct.-31, 1911, p, 12, Trenton, 1912.

Gtta* nv,i. vrrt*r""r ""a iino nealrrr ;;"ry', c"-.g.,; University

1O N. J. CHILD 'U'"".O*"'-STATE SUPERVISIOI{ AND CIVIL SERVICd

able organization, to_inspect_the_ organization and if i t be foundc'onrorrnrng_to reasonable stnncllrds to issue it a certif icate of indorse-In^enb. rn his rep_ort for 1g15, the commissioner states that onlv2t i per cent of such,agene. ies. l r r rd

.actualh '_apPl iet r fo ' indorsenreni ,and recommended thal " it should be made'unlarvful fo" u.ry p"r-son, fir'm. colporation, or association to conduct or. -nintuir,

-i- * *

l^9ou1qt lS- , fp_1"" {or , in fants, to co.nduct or rnainta in a boarding

l roTc, to. r chr ldren l the term ,boarding home' as r rsed appears tornc tu ( te rns t r t u l r on l . o l t o eng rge i n o r ass i s t i n con , l uc t i ng - a bus i -ness o"1 p lacrng.rntanls rv i thorr l having in fu l l force a u-r ' i t ten l icensetnereTor t rorn lhe department of char i t ies and correct ion."6

Not , horve 'er ' . unt i l 1g i8 ' ' rvas ( .ornplete power of i -nspect ion ofan(r.rcpo,,t on pnvate rnsti lutioDs confen.ed on tlre sta[e's officialweltare,clepartment. _ Even now it does not include the specific au_tllorrty to. r'evoke a license or require r.eforms i. case conciitiorrs areround 1o l le unsatrsfat ' tory. wha. tevel rc t ic ln mav be necessarv be_yond that of srrggestion or arrvice nrust be i"ri.;1[;;;I i i courtorder' a srtuation which is bound to reduce the clepirtment,sefficiencv-

REORGANIZATION OF 1918_TIIE STATE BOARD OF CONTROL

T-re commissioner of eharities ancl corrections, like his predecessorsr 'v vvrurulDDrvrrEt u l ur tzt r . l r les a l r ( l correctronst I rKe hls Dg1r .th" coqncil of 1884, lacked the nec,essa.o ;;ih;;i;; i,h r n h ^ 1 - - , 1 ^ - - l ^ ^ J - - |

y to maintaiqsr' s";iffi;r ;;fr ii"fiil dii""ffliiilT"i::"il'f'J: fi:'3iXt:Charit ies Aid and Prison Reforrn A".o"l"t i"rr nrein {prf nnmnoro.I

StateUha.ties Aid and Prison Reforrn Association again felt c;;p;ii";to extend i ts supervision tt t these Sf afc incf i f ; , f i^-o on.t - , ,L,t i^pervision to these State institutions, and publicopinion became cbncerned over va'ious repor.ts comins t"o-tJJ-iot them- The governor decided that the tir;" ir;J--;;rfi. t."'-"r.o our rre',. rre govelnor decrded that the tirne liad come to make a:X":119h

stucty of the situatiol lnd to reo.ga'ize the whole plannize the whole planof State surleivision ancl adr'ini.ar;tio; -;;";'

r;;;'"d;'i;l "#;businesslike basis.businesslike basis.. nalJr in 1917 trvo commissions r.e.e appointed, one to investigateinto the conditions of |e'u[. r'eft-,rrnarorjy; ;J;;;;;tl;;;l ' lnstitu-tions I of the state .nti trre other to inv6Jtigat";;;l;i;;l^in insti-tutions other ilran those *hich came ,,n.lu.-ih" ;;ir;;;l;i;; of thedepartmernt of cha.ities a'cl correctio".. l lt".;;;fi;;;;;; of in_Yest igation. eoDference.. an, I hearins., riaa- b-y ;$;;i. '; i;*assistedDy a commrttee of the stntc clrar i t ies Aid and pr i ion Reform Asso-ciation, these trvo com_missions concurred i" ; ;;t-t ioi r.r."'*"or"-rneniled -the passage of an act to create a strongif .."t.urir.d stutubolrrl of control.

--

Pursuant to these recommendations a bili was introduced andenacterl.s This ,act. and its later amendments, created one -of

therrr()st..l)o$'el'frrl boards of control in the united States. Onlv bvr cr ' : r l l i r rg t I re l 'o.egoing hisrorv. of .publ ic supervision i"- lu"* Tdrr l j ,r : l l l . ro>:.1 bre [o rrnderstand t l re inclusion bf certain features anithe lejectioir of others in this act.

\ , . , , i ' ' ;1,:" i i l " f ,) ' i l l ' ; l l ] ! ip"i ' or I rrc I)enartmenl of chrr l t ies ar)d Corrections, State oI

' . \ . . t . . Irrrs , ,r i : ,rs. , , , ' l ' * ' ro

f ;" ' l , l ' r) .- , ' t ; l . t . lJ9;.,^.r h,, r ̂ . . .^

l;;,,,,li,ifti,l*i:i,i",i,:,'"t.',',",i,ll ',:,r'l'J,fi"i,lr'i1',,',{rfii::rirlq;r$'a:.,n,.:i,,riri{,,, i1,,,i'ir,)),,,i ;1' ll,,1i"'Jl::til:lii:ti'Ji lll;ll,,ljl,ll,ji*=;;iri";,1'*,,ily a'u i , ( i . , 1 u , . l , j r r ^ . 1 - r r i ' e r . s j r . r . * r " r , . r i , " l ; " i , " i t

" r . J . , Lar . " ' , f ' l i ' i b . ' , . i ; "1 { i l - " " ' , " r i , i ;o "o ;

see CuDr. Supp., 1911-1924, vol. 1, ch. 9.

:_ltl,ll.cnlll _.\nnurl ncpo-rt .of the Department


STATT DEPARTMENT OF' INSTITUTIONS AND AGENCIf]S 1I

- The reaction from the older idea of s'pervision alone wrs so -ctr.ongthat the ef ror t to secure aetual adminis t rat ive contro l i l ; th . ; " i ;l iS:^ii1lt i"n -ran,risks of going..to eq_ual length= ;" tf, '" op1lo.it"ctn'eetron. IJoth the-general public and profesiional social worke.sinc l ined to fo lget the very

' real serv icd of a pur . iv ' . i ,p"r r i=oru

l l?fl,1T;^tyll"-.plTt l 'rom actual exeerrrive eontrol. fh" hi.tnr.v ofpublic charities and corrections i. -man.y

states inclicaies ihut .orr_centration of both functions in a single" body carries *ittr-li gruuudifficulties. I. The new New Jersey state Board of control oi rnstitutions antfAgencies (although. tde old.gr _tiile of departmenf of .rru"itiu. unaconectrons was retained until the original^act was amendecl in April,1919) rvas duly appoi_nted and ernproyecl as commissioner a-man otexrensrve, t rarnlng ant l expe_r. ience in inst i tut ional administrat ion inrew rorK and etseTfhere. 'l 'he next seven J'erl's were spent in build_ing up an effective eentral department u"a"m'p"ftiG"ilil""ft'"ct themost urgent reforms or improvcments r.ecommnna.,i-Uv tlru'inun.ri_gatrng-commissions and their experts in rgrT-1g. r t i ,as a i i*" otunusual stress and cha_1ge in whictr rrearly u"""y lo"ii li'sociarservice faced serious- diificulties. T'he pr6sent 6rganizatlon andprogram of the st_ate board of control und'it,r

"a-i"iEir"iii,""riepart_ment are the result of the expe.ience gained d,,"i;g thir^p;;a.345630_n_2


PRESENT SYSTEM OF PUBLIC SUPERVISION AND CONTROL

ORGANIZATION AND FUNCTIONS OF THE STTITE DEPARTMENTOF INSTITUTIONS AND AGENCIES'

EXECUTIVE AND ADVISORY ORGANIZATION

State board of control.Under the larv of 1918, as amended. the State boarcl of control

co-nsists of eight members, at least one'of whom shall be a woman.( ' l wo women wer.e on the board at the t ime of the st r r r lv . ) Themembers are appointed by the governor with the con-r.nt

'of the

senate ancl may be removed b,y him {or cause. Tlre gor.ernor isa member ex officio. I lemberi serye eight vears.

' l ' lrev r,eceive

actual expenses but no salaries.Iloards. of nwnagers ̂ of institutiotzs amd agencies.-Such boards

nle. appointed. by fhe Stite boartl with apprbval of rho gover.rror,and the mernbeis nray be removed by the^boar.d for . i ruse, af terdue notice. The boaids consist of five to seven member.s ([n,o ormore to be women) who serve without salarv for tertrs of threeyears. . The boardi appoint the chief etecutivu officer.s o{ theirrespective institutions or agencies, and the officers, with the approvalof the board,_appoint all-officers and employees of the insiilutionor agency. ^Ultimtte supervision, control, and author.ity, hon'ever,rest in the State board of control.- Ad,_uisory.bonrd on Ttlans, cles'ign, and corwtructiorL.-The Stateboard appoints from 6

-to Ii emin6nt architects. designers, engineer.s,

and builders of the State to act as an advisor.v board. and lt mavremove them for cause. They serve for two vedrs and receive actuJlexpenses but no salaries. Tliev advise the Siate board and comrnis-sioner, on request, on any matiers pertaining to buildings or publicworks coming under their care.

T he c om,mis,yi cn"er.-TIte c ommissioner of institutions an d a senciesis- alrpointe_tl by the State boarrl of eontrol &Drl ss1y.. during itspleasure. He need not be a resident of the State of Nerv Jerse\'.I{e receives a salary of $10,000 a year and must devote his entiietime to his duties.

"

FUNCTIONAL ORGANIZATION

Powers and duties of the State board of control,Buclge.t esti,mntes.-The board submits to the governor and joint

appropriations committee of the legislature an annual budget -esti-

mate, all requests for transfer of funtls, and all reports irwolvingmoney expenditure for the tlepartment and the institutions andagencies under its control. These budget estimates are subrnitted to

1-Data summarized from commissioner's book of offcial assignments to duty, of April,1925.

t2


-. ,-ry€r' i lmRi

STAT,E DEPARTMENT OF INSTITIITTONS AND AGENCIES 13the.state bgard.by the respecti.,,* irrr/itr,tions and agencies and arestu(trecr and revised as the board sees fit before prei6ntation to thegove.r'no. and approp_riations committee. The

'boarcl-'al"o- -uke,

:p_:::lt^ i ' l!.qil:.,9i bu{get lequg;tq from-county, other pubtic, anJprl t -are tnstr lut lons askrng for State funds.__ Iy ::

r,i! :,t.,.1 1y r-f ,ttu bo"a rd . i n vest i ga t es co u nty, or her p ubl i c, a n d

I)rrvare rnstr tut lons to ascertain whether or not l ihey are 6eing prop-tf]I :1:H1d and eond ucterl. .rt may ..p; J ;"';hi.l'i"niJ.'t i'gu,, nn,:]l:_T"y,not compel the adoption of its reeommendations exc-ept bycourt orcler.

Policy,c.ontt,'g1.-'Ih9 board cletermines by general rules the man_ner rn whrch the rrork of state charitable "an-d cor"ectional lnstitu_tions and noninstit'tional agencies is to te ."rl"a "",1";l"di;t

tl;"|ppointrnent of officers, conitructio' of instituii"^;;h"il1""

"? fry:lar's. establishment of parole pystems "t-..in."1l7ri oi"piurrr, un,tsyslems .of record keepihg and"statistics, and .oop*.oi*.'-*itr, tl.,"

lgnrptroller in carryirg o"ut the accountiirg .v.t.*'oT'il i" 'stot"

;r.,Dtate rnst l tut ions under i ts j r rr isdict ion.^,Co!trol_2f State_use and )ublic uorksy emplotlntent of ittmoles._rne Doard nas arrf l lont^y to manage the emplo.yment of inst i tut ionalinmatcs 91 production for State rrse un,l ,: i i 'u-'p;;;;J tomake con_:ji ':: yr]l ofhgr go-vernmenral rlepartments for the employment oflnmates ol val ' tous State inst i tut ions., tCoordination of program.

,^Sjft_!.or,,f (retrce.-This conference meets on alternate Mondays and1?.^utl::!",I by the directors of rlivisions, the departmental st6*ar.t,rne rarm sl lpervrsor. { l rc invest igator ot- pr.rvdte inst i tut ions, thecollector, ancl^ the chi'ef clerlr of tfie central'office.

A dt n-in is t v' ati o e c ouneiL-'rhe a dministrati ve counc il consi sts o f thechief executive officers of state institutions u",l ;g;;.i;r.-- ii -e"t,with the commissioner in alternate months ,,to "i!rr""g"'idias,

out-1:: l-. l lg,ls und,plans of work. and to_

"orf*;t;;- in6"!.n".urand specrhc. . probrems which ar ise in t r re adminis t rat ion "of the

departrnent.ttMecli'cal board.-The medical boarrl consists of the four meilical

super in lendenrs of the iwo hospi ta ls for rhe i ; . ; . ; ihu [o.p l tur to .e,Pi iept ics, , and, the. i rospi tn l f6r tubercutour J i . .o ' .o . , ' . . . r r [ . t i r . ru .I I r rs board meets wi th the commissioner to consider mat ters bt .p." i i i

rnerlical or aclministrative interest, at such lil;. ; h- lrrl.rt.f te,* I l'A r,l O.

Powers and duties of the commissioner.The commissioner of institutions ancr agencies is chief executive

ancl chie{ aclministrative officer of the sta?e. board, ii. r*""1"m"".",an,l it. oflit ' iul agent for alrl purp_oses, having gu^"r"r-.r.,i.c" urrasuper ' \ - lsr ' )n or tne wolk of the departmenL of inst i tut ion-s andagencies.

.r^\ \J-, ] ] , , l . r1,Protal of the State boald the commissioner appoinlsthe ya.rorrs , l i .etrors. of f icers. and other emplovees of the

'cent.aloffice. of tl-ic rlepa''tment. and fixes their saliriet- H" *sis;. u"areassrgn-s t i re r l i loctols. chiefs of div is ion-s, and other off icers io drrt .v.and w i th , the ap l r rovn l o f t l re s ta te board , 'ass igns the secre tary to , iosucn worK as lle sees ht.


L4 N. J. cHrLD wELFARE-srATE suPEnvrsroN AND crvrrr sER\cIi

The commissioner acts as a channel of communication throuehwhich the State board deals with boards of manasers and chiefexecutive officers of the institutions and noninstitutional agencies,with other agencies, with governmental bodies, and with all personsholding offit ' ial positions.

-The commissioner,'as agent of thb State

board, issues all its communications to the public and to the press,supervises and carries out all orders, and administers all plans orprograms'which the State board adopts. IIe makes recommendationsupon all matters brought to the attention of the State board andbrings to its attention all matters which in his judgment call for itsconsideration.

In accordance with general rules adopted by the State board thecommissioner transfers patients from one charitable institution toanother, from one correctional institution to another, and brings tothe attention of the courts cases requiring action by them. He ap-proyes admission blanks or forms prepared by the boards of man-agers, and by other officers in charge of various institutions in theState' mainthined for the eare and custody of the insane, thetuberculous, the epileptic, and tlie feeble-minded.Duties of secretary to State board.

The secretarv is a member of the commissionerts staff and performsthe usual duties pertaining to that office. In addition the iecretaryanalyzes, reviewsl and surimarizes for the commissioner all progressrepo".ts submitteci to him by the executive heads of institutions''andagencies under the control of the department.

ADMINISTRATIVE ORGANIZATION

The orsanization of the New Jersey State Department of fnstitu-tions and-Agencies, as outlined in the following pages, though basedon the comfrissioner's official book of assisnm;nfs t"o rlutv. ilust notbe taken as a picture exact in every delail. The orginization is,1.]'namic rather than statie, varving somewhat in particular form orffinction to meet existing needs." Tie general outline purports latherto show relationships bletween departinental divisions and sectionsand the institutions or asencies. and their resnonsible boards andexecutives, than to suggesiany fixed or inelastic^mold into which theorganization had been cast. Healthy growth and smooth operationreduire reasonable flexibility in detail Is much as definite standardsin general pol icy. l 'h lougl iout ihe seven years since t l re departmentl-a.s created thii ideat has'been met within"r'easonable boun&s.

A. Di.ai.si,on of ad,mdni.stra'tior4 i,nrlustry, and, Labor

Director of division.'(rr) General duties:

1. General supervision of records, maintenance activi-ties, supplies, and equipment of institutions.

2. Cooperation in reconstruction and readjustment ofrnstitutions to meet existino needs.

3. Cooperation with institutioni in matters of classi-fidation, segregation. care, treatment, and employ.ment of inmates.

e No director had actuatly been appointcd. The comdissioner personally dirocted thegeneral administratiYe program.

UniversityProvided by the Maternal and Child Health Library, Georgetown

STATE DNPARTMENT OF INSTITUTIONS AND AGENCIES 15

I)irector of div ision-Continued.(b) Special dut ies:

1. Eesponsibility for control of expenditure accounts.2. l)evelopment of social, finan-cial, and industrial

statistics.3. Special studies of fiscal matrers.a. Study of best means for e,stablishing and develop_

- rng new institutional industries.lJ irector of State-rrse int lustr ies.S

Genera l r I r r t ies :1. General supervision of all

accounts.2. Cooperation in regard to such

iunate labor in asricultureDepartmental steward.

General duties:Cfarge o.f matters pertaining

institution inmates.-

State-use industries and

industries and the use ofand highway constrnction.

to food and clothing of

Farm suDervisor.Gen6ral duties:. _ Charge o{ agricultural operations.

Clerical stafr. -

C1:{ :l:l\lan estimate and quotalions cterk. five bookkeepers,

and fi\e clerks and typists.

41. Central, fli,ng and stenographi,c secti,onaChief clerk.

(a) General dut ies:1. Superr-isior,r of stenogr.aphic and clerical assistance to

the divis ions.2. Charge of office supplies.

. Q. Responsibility for ii6partment library.(b) Special dut ies:

The chief clerk attended to the routine work in'olvedin deportatio_n cases ancl supervised it

"

--rootirr"

involved in ,dependent_childreri .u"". ."qu1ring theattention of the department

Clerical staff.ursnlein clerks ancl stenographers.- (Eight of these hatl speciarassrgnment to thc d iv is ion of parore and domest ic relat ions; a 'done had a speeial assignmenf to the food and diea;ll;;-;ection

under the departmental steward.)

Ag. Accownti,ng anct aucli,ting secti,onsPrincipal bookkeeper.

General cluties:l-. General charge of accounts and acc,ounting svstems forthe department and the institutio"" ;;d-;?.;"i""r-r.d",

rts control.

_ L -

Provided

"q.il,^ ftt- : i": rt i;;.'*""ii' in''Ell ;r$ to in

. repo rtts uut ffi-...]^f-!99stt-c,g"cern.ii .*iin ^ialmiii*'t"iii#1",i"tine this section was unater the immeariate0i leet ion of the commissionFr.

.tr.iif5"1o adrnnistrative this section was uuder the immeariate supervision of the com-

by the Maternal and Child Health Library, Georgetown University

16 N. J. CITILD wELFARE-STATE SUPEf,vISIoN AND CIvIL SERVICE

Princi pal bookkeeper-Continuecl.General duties-Continuecl.

2. Assisting in preparation of budgets.3. Checking o{ all repolts ancl accorrnt-q.4. Auditing and - surveying the rvorli of institntions and

agencies nnder the clepaltrnent.Clerical staff.

One senior clerk and one senior clerk-bookkeeper.

A3. Collecti,on sectioit ''

Collector.General duties:

1. Collection of accounts due institutions.2. Investigation of and reporting on financinl abil ity of

relatives of patients or rvartls in Stnte institutionsrvho are partlv or wholly indigent.

Staff.One assistant institutional collector.

B. Diluisi,ort, of archi.tectur"e antl cotrctntetion,TDirector.

Had charge of all State building and constt'uction, alterationand rep-diring, except that for the public-school system, andsupervised the following subdivisions of the clivision: (1) De-signing; (2) civil engineering; (3) mechanical engineeringl(4) architectural dlait ins; (5) specification rvrit ing ancl esti-t irutittg; (6) clerical andacdounting; and (?) supirvision ofconstructron.

Stafl.A considerable permanent staff and a temporary staff of engi-

neers, designers, and builclers, as large as was needed to handlethe constriction program at a giveii time.

C. Di'"isiott, of inspection"Directol.o

General duties:1. Inspection of public and private'o charitable or correc-

tional institutions.2.O .1

Supervision of staff of institution inspectors.Charge of inspection records.Reeommendatibn of changes in policy or administration

of institutions visited.

6 Since JulJ', 1926, this section has been consolidated with the division of inspeetion,Ieeal settlem6nt. and collections. At the time of the studv this section was directly underthe supe|v is io l r o f the commiss ioner .

? . \dded to the c lepar tment NIar . 2 i?.\dded to the clepartment NIar. 27, 1921 (N. J., Laws of 1-921., ch. 100)'S incc . Iu l r . 192{ i , th is d iv is ion h ts been en la rged to inc lude the work o

s ta f f : (1 ) I ) i rcc to r o f inspec t ion ; (2 ) superv isor o f nurs ing and inspec tor

. \dded to the c lepar tment NIar .27 , 1921 (N. J . , Laws o f 1 -921. , ch . 100) . - . - - . -Sinct' .Iuly. 192{i, this division hrs been enlarged to include the work of the following

f f : (1 ) D i rcc to r 6 f inspec t ion ; (2 ) superv isor o f nurs ing and inspec tor -o f ch i ld -car ings l rn ' : r I r I r i |n , . ro r . o f insDpet ion i ( : i ) superv isor o f nu ls ing and inspec tor_o f ch i ld -car inEi n { r i l u r i o n s n n r l r f e n , i , ' s : - ( 3 . ) l . s r l s c t r l c m c n t a n d d e l , o l t r l i o n a g . ' n t : ( 4 ) S t a t e a d j u s t p r :ins t i tu t ions rn r l agenc ies ; ' (3 ) hg ; l l se t t le inent and depor ta t ion agent ; (4 ) S ta te ad ius ter ;{5) assistant State ad.juster. The adjuster handlel t l l payments of rtroney by or to theSttite for the carc of i irmates of institutions by conDtics or relatives or for care of Statecharses b1 'cor rn ty o r loa l ins t i tu t ion-s .-'-n'frie

rii,eittr i 'e"iq,red .fiine z+, 1925, anal no one ltsd b"en uooo'o,ud to replace himr rp t o Dec .31 .1 l l : ; . I nspcc t i on -o f l oca l pub l i c i ns t i t t l t i ons , suc l r as a lmshous€s and

e ' Ihe ( i i rec to | res ig r red .Tune 24 , 1025, and no one hsd been uooo 'o ,uu to rep lace h imuD to Dec.31 .1 l l : ; . Inspcc t ion o f loca l pub l i c ins t i t t l t i ons , suc l r as a lmshous€s andjC i ls , hnd l l l ) -qe i l dur iDg th is per iod . ,. ) s . l r r r , l l r r l ' . e , 1 d I I i l ) : l l t i s ] l . l i o d .

i o 1 5 a n 1 . i l r r n d e r t l t p , l u r i i - s , ' f r h e i t r r e s t i g r r o l a n d i n s p e c t o r o f n u r s e s . . i n . t b e d i v i -rn of parolc rnd domestic reli l t ions. most of the j.nspection of priYate itrstitutions and10. \s no tad under the du t ies o f the in l 'es t rga tor and lnspec to

s ion o f paro lc rnd domest ic_re ln t ions nos t -o f . the j .nspec t ion o f

(4 ) S ta te adJus ter ;rtroney by or to the

or relatives or for care of State

of nurses, in the divi-priYate itrstitutions and

agenc ies 's rs done by rh is o i te ia l . tSee p , 19 . )

Provided by the Maternal and Child Health Library, Georgetown Universitl'

STATE DEPARTMENT OF INSIIfUTIONS AND AGENCIES 17

Stafr.None reported.

Special inveitisator.tr- Confidentii-l agent of the commissioner, given special assign-

ments by him to investigale and repo'rt on ^work

of ihedepartment or institutions, or to perform such other dutiesas might be assigned.

D. Diai.sion of educotion and classi.ficationDirector.t2

Duties:L. Classification.ls

(a) Making of recommenclations for and supervisionof scientific classitication in institutions.

(D) Cooperation with division of parole and domes-tic relations in handling parole cases.

(c) Helping to direct institutional training effec-

2. Eclucation. "tutt'(rz) Cooperation in directing education in institu-

tlons.(D) Cooperation with the director of State use to

the end that institutional vocntions and indus-tries misht have educational values.

^ _.(r) Corr,elation of discipline with mental testing.3. Credit markins.

Coolrertrr ion in construct ing and using a scient i f iccreclit-marking system for wards in institutionsand on parole.

4. Psychology.(a) Charge of the psychologicai section of the

psychiatric clinic at the State hospital for thelnsane.

(b) Selection, training, and direction of psycholo-ETStS.

(c) StCndardization and coordination of psyeho-logical rvork at inst i tu t ions.

(d) Acting as statistical analyst ancl expert inpsyJhology as needed.

5. Special scientif ic investigations.(a) Help ing to organize communi ty socia l -wel fare

organizations and to estabUsh school ancl com-munitv clinics.

(b) Acting as State's expert psychologist in legal

Staff.la cases'

One senior clerk-stenographer.

11 The ne$/ comtrissioner lras discontinued the employment of confidential asents.u I ro rmer ly tbo d iv is ion a lso had i tn ass is tan t d i rcc tb r ._

Is The psychiatric clinic conducted in connection with the Trenton State l lospitnl maileclassiflcation and preparole examinations for the State institutions under general super-v is ion o f the d i rec to r -

1a The director also had a.yailable the staf, of the psychiatric clinic at the TrentonState Hospital for a large part of tbe duties assigned tb his division.

-L


18 N. J. CHTLD wELFARE-sTArE supERvrsroN AND 4rvrl sERVrcE

E. Di,aision of parole and cloniestic reluti nsDirector.

Duties:1. Coordination of rvork of fielcl and {aurilv investisation

for parole with similar rvolk of t l ie State board ofchildren's guardians. the' conruii.-. ion for the blind.clinics and-'outpatient depalttDents of State, county,and municipal institutions, ancl developurent of plansfor the cooperation of all o{ these l-ith the courts.

2. Planning for ^and

supervision of rri l kinds of parole fromall inJtitutions.

3" Direction of investigations of iionre environrnent antlsocial history of irunates of cot'rectionrtl institutions,and supervision of the preparation of reports thereon.

4. Responsibility for records utr,1 1E'polts of arrrl on in-mates in correctional institutions.

5. Attendance at, or sending representative to, parolehearings.

6. Direction of adjustment of parolees in community.7. Supervision of farole stafi and pnrole recolcls." "

8. Cooperation in developing communitv clinics.Assistant director.

General duties:l-. Substitution {or director in his absencc'.2. Special charge of domestic-relations cases. Establish-

ment of contacts and creatinsr of frienrliv cooperationwith family, community, and Lrli lo,.rrl

'rst,ni.ies that

could help in the successful aclju-rtruent of parolees.3. Furnishing of information. aclvicc. ancl assistnnce in the

liandlinE of individual socinl problems which werereferreilto the clepartment by fublic ollicials, privatccitizens. or asencies of New Jersev and other States.The promoti"on of general public knowleclge as tothe fdnctions of the iespectivb State instituti6ns, witha knowledge of rvhat faciiities ale available at anygiven t ime-for the re l ie f of local commrrni t .y prob-lems, and the promotion of a better knowletlge anduse of local resources for the relief of situations re-quiring social treatment, so that the demand uponState institutions misht be reducecl to a minintum.

4. The receptlon, review,*investigation. ancl passing on ofall trpplications for admission to State charitable in-stitutions. HelpinE to admit necessaly cases.

5. The placement a^nd-supelvision of dbpendent wardsparoled from State correctional institutions. Uponrequest of the commissioner or clilector the makingof special investigations of the standards of child-welfare work as actuallv practicecl by public, semi-public, a-nd private instiluiions and ageircies.

'Upon

request the giving of professional advice in the urat-

16 In 1925 the division staf inclualed 14 fleld parole officers rosponsible fof approxi-m-ately 3,000 parolees. The offcers also made classiflcation and prelarole investig'ations.Thoy were assigDed on a territorial basis.

Provided by the Maternal and Child Health Library, Georgetown Universitl

STATE DEPARTMENT OF INSTITUTIONS AND AGENCIES

Assistant director-Continued.General duties-Continued.

19

ter of organization and administration of chitdrenbinstitutions and in the handling of child-welfareprojects generally.

6. Cooperatioi ' with ioeal agencies of all sorts in preyen-lir-e welfare work.

7. Keeping an up-to-date register. by county, of all localwelfare ageicies, organiZations, and offibials, ancL get-ting their c.ooperation in the care of parolees and?e-pendent children.

8. Training of volunteers to work with field officers.9. Helping to get a census of defectives in the State.

10. Acting as a -.ocial-service exchange and clearing houseof information on all social work.

1l-. Promotion of conferences and.meetings on social prob-__lgq. . anr l the making-of speeehes at"sur .h meet ings.

12. Helping.to e,l it ancl publish proceedings of conferences. on social rvelfare.

Case supervisor.Dui ies:

1. Assignment of home inyestigations to field ofEcers forthe State home for boys, th1 State home for girls, andthe reformatorv for \Tomen.

2. Reviewing relrorln on investigations.3. Intervie.wing irinrates to be paroled.4. Acting as liaison officer. between the division and local

wel fare ugerr t . ies.5. Assisting parole oll icers in general.6. Attendance rrt classification conferences at the State

home for boys, the State home for girls, and the re-formatory for^ r'omen, as representatii'e of the clivision.

7 . Ob ta in ing i pec ia t r l e ta i l ed i n fo rma t i on fo r t he d i v i s i onof education and classification.

Court investigator and special agent.Attendeil 'co'rts, reacl recor?s, and secured other inforrnation

on persons committed to coruectional institutions. and attendedto other special inrestigations and made reports as assigned.

Intest igator and ins l rec lor .of nurses.r0(This invest igator r r .as a member of thc staf f o f the commis-

sioner, but actecl through the director of the division of_ paro le and dorrrest ic re lat ions.)Dut ies:

1. Investigatio_n of and teporting on private institutions andagencies doins child-welfaie .r'r,o^rk.

fnspection of nurses'training schools in hospitals and thepromotion of the adoptioii of high standards in suchschools.

Acting. as publicity agent for the opportunities in thenrrrsrng l)rotesston.

q,

, l :s ] : , , .9 J-ur ,v- :1m,6. l r r is invest igator .has.-bpen nssigned lo rhe new anal enrarged div i -i rou or lnsppct lon, tCgal s0luement, and cOlIeCt iOnS.

Provided by the Maternal and Chitd Health Library, Georgetown Universitr

20 N. J. CHILD wELFARE-STATE SUPERVISIoN AND CIVIIJ SERVIOE

Clerical staff.Eight.clerks and stenographers assignecl frorn tlre stenographic

seetlon.

PERSONNEL OF TTIE STATE BOARD OF' CONTROL \ND OF TIIEDEPARTMDNT OF INSTITUTIONS AND AGENCIES

The personnel of the State board of contlol lirrtl r-ariecl considerablyduring the seven years since its creation. ,\t the time of the studyonly the one rvoman antl trvo of the seven Inen appointed on theol ig inal board remuined r rpon i t . Tu 'o rvomct t t t . . ' t 'e-serv ing on theboald at the time of the sfurly. Each of these harl taken an activeinterest in promoting both local and state-wicle social-rvelfare plo-grams o'\ 'er a period.of several years. The six men on the boardincluded a banker, a manufacturer', a leader in State orgrrnized labor,the head of a large advertising agency) a lawyer, ancl u cloctor andpsvchiatrist. Thus a wr'de variety of interests ancl experience wasiv"aitaUte for passing on ploblems of policv or administration.

The commissionei' appointecl to organize the depaltment in 1,918served throrrghout the seven ycars of i ts h is to lv u l i t< , nn, l inc luding7925. f-pon his resignation he lvas succeeded by a clivisional directorwho hacl lerved in virlious capacities in the departrnent and so wasthorouglily conversant with its tlevelopment, organiz,ation, andmethods of operation, as well as with the policies 'lr'liich had shaped.its course in the past.

Directors of divisions. heads of sections. and their assistants andsubordinates, 'with the

'exception of one

'confidential aqent, \vere

chosen by State civil-service examination and servetl ttnder therules and" regulations proridetl by that commission. The law pro-viileci that eiich divisi6n should 6e in charge of a clualified exfert.'Ihrough the cooperhtion of the Statc civil-serr.'ice cornmission the Stateboard bf control and the conimissioner might specify what educationand experience should be clemanclecl of all candidates for appoint-ment .

'se lect ion anrong three e l ig ib les ant l observat ion dur ing a

three months' probatioriary period -afforded

additional opportuni-fiesto choose tliosc. most competent for given positions. Some indi-viduals rnnv have been chosen rvith rnore regarcl for their executiveability thair for their training or experienie in the field of socialser\'1ce.

An unusuai degree of cooperation between members of differentdivisions and sections in tlie departnrent, ancl a strong spirit ofloyalty to superiors had characterized the organization. This hadrnirde possibl6 necessary changes in assignmentl to c1uty, r,ealiglmeltof functions,, or transfer of personnel rvithortt serious loss in theelficiency of the department. As protided by la'rv. the State boardof contriol, through the comrnissioner, had rnarle such changes in thed.epartmental organization as occasion seemecl to demand at any giventrme.


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S1]AT DEPARTMENT OF INSTITUTIONS AND AGENCIES 2I

poLIcrES oF THE STATE BOARD OF CONTROL AND OF THEDEpARTMENT oF rNSTrrurIoNS AND acnNcrn5-

INTERNAL ADMINISTBATION AND CONTROL

Interdivisional control.

_ The organization chart (facinc p. 20), n'ith the 1g2,1 assisnmenrs todutv.upon.which it is based. sriggestd a 'e'y definite and cornpletediv is ion of labor for a l l members of the department . This

'c lear

definition of duties is important, bg-t to b_e practical, any such systemmust be suffi-ciently general to allorv f<_,i expansion"and for thetemporary adjusrments necessi tated.by new s i tuat ions. This opensup a po.ss ib i l i ty of over lapping. or ineomplete eover ing of the f ie ld.' I he assrgnmenls as grven represent an ider l rather than a svstem inperfect_operation. A ]arge degree of succcss, however, has beenat ta lned rn meet ing pract ica l p loblems of r lepar tmentr r l operat ionrv i th a maximum of f lex ib i l i tv and a min i r r r r rm'of dupl icat ion.

rn organiz ing l ,he system the comnr iss ione. chose t i re ta in a rargepart of the execut ive author i ty in h is orvn l run, ls . TI r r rs ser .era l sec-t ions that might have been o i 'ganizecl in to adrr r in is t rat ive r l iv is ionsand operated under directors ivcre kept undcr liis on'n immecliatecontrol. rre also chose to keclr in clos6 touch with the work of theTrenton office. This created a^feeling of ve.y personal .".pon.ibiiityto him and stimulated inter.est in the developirg prog.o-.

' A system

of regular daily or wcel<ly reports fronr all pa"rt! oithe departmentmade th is cenl ra l contro l eycn n lore concr .ete.

\Yh9p the lar .ge gener,a l responsib i l i t ies that rvere p laced b.y luw[pon the shorr ' lders of the commissioner . as chie l e . re?ul ive fc j r thestate board of control, are recalled, wit-li liis important funclion inrepresent ing h is whole organizat ion before r l ,e State, i t beeomes aquestron _whether- . someu' l rat_ g leater t le legat ion- _of

' author . i ty to

resp.onsib_le subordinates inside-the department might not have"beenjustif ied by !he_ greater freedom he niould have hatr for work of amore general character.lT

. S" i pract ica l means of keeping leat ls . f d iv is ions ancl sect ionsrnrormect on tne wnole program o.f the department and the relation_ships.of the subdivisions, as rvell as to iecure the benefit oi tt

"i"experlence on matters of general polie.y, a biweekly stafl eonferencewas cal led in the commissloner ,s ohce.- Free d iscussion of problernsand interchange of opinions with the chief and one another di..l mu.l,to promote cooperation and to create mutual good rvill.Fundamental policies of the state board of control regarding institutions andagencies.

- The New Jersey statc Board of contro l and the Depar. tment oflnst r t r r t rons anr l Agen-c ies.had set up t l re fo l lor r ing standa' rds and hadtrred to make them ell 'ective as rapidly as possible:

7. c'la.ssifcati._on.-The studv of .a.h infiviclual to determine hisstrong a',I_rveak p_oints so thal his treatment might uo 6u.f ."it"a tohis par.ticullr neeils.

2. Treotrrctil.-The application of the best available remeclial andcorrective .ie.S.res to each individual in place of mere d;4"{r.

,n"'rl ' . i [f," ' , i i ' i iJ]i! l l :1.,J'1.1":l i . l} i;" l" l; l l l i i i" i, l , immedi:rte.conrror wrs jrrsrin.rr.bl.

:iil,""*'f,.tl.itll,i:it"t ;,Xdtj1jf,'!'#'hJiiii'.';f^l,tr1;iSii;.'Jl ll;i"'I.1l,Jf ,uit:


22 N. J. cgrr.D wELFARE-srATn supERvrsloN AND cIVrL sERVroE

with l l ie State lvherever the State program torrclicd comdunitywelfare.

An administrative council, including the chief executive officers ofall institutions and agencies nnder the control of the State board"met quarterl.y to tl iscLiss polit. ies, plans, and pr.r,blcrrrs of gener.al or.speci f ic in terest in the at lmin is t rat - ion of thei f resr ;et . r ive inst i t r r t ionsor agencies. fn order to insure constructive, delinite results fronrthese conferences a specia l . topic was at t inres assigncd for a g ivenconference, and certain individuals \yere requested to prepar.e I)aper.sor plan discussion of some aspect of it.

A medical board made up of the meclical executives of the two

3. Truining.- The development and training of each individual'spacities inbrder that he niisht be restored as-a sclf-resnectinr". self-capacities in order that he niight be res l .*t ' l f-r 'especting, self-

susta ining, a nd socially. succeisf rll- member. of soci et5'.4. L' o nlmun it u o rqa i izat io tt.-The orga n izat i( )lr of eitch commun i tv

to annlv its social lesources to its oli 'n nrolrlenrs rnrl fn nnnnorqfi?pply i ts socia l . I 'esources to j ts ou ' i r prc,b lerr rs i l r r , l to cooperal 'e

State hospitals for- the i lsahe, the hospital for epi lept ics. anr l rhehoqpital for tuberculous diseases also met quarterly to ciiscuss policieshospital firr tuberculous diseases also met tluarterly'to ji.cuss policiesand.plans for the more highly specialized field r'bpresented blv theirinstitutions.

A pol icy adopted early in the history of ihe department rvas thatof special izat ion of funct ions tor each inst i tut ion. so that a giveninst i tut ion eould render the best service in i ts ou-n part iculai f ie ldfor all the State wards in need of such service. Sucli success as hasbeen attained in this progrrm was made possible largely through theregular conferences that'have been noted'.Institutional control.

The extent of the State board's jurisdiction over all the institutionsunder its care is specified under the law, as follows:

Within the limitations imposed by general legislation applicable to all agenciesof the State, the State board is hereby granted complete and exclusive jurdisdic-tion, supreme ancl flnal authority, and the requisite power to accomplish itsaims and purposes in and upon the follon'ing institutions, boards, commissions.and other agencies hereinafter designated as charitable, hospitat, relief, traininginstitutions, and correctional institutions of the State, to the end that theyshall be humanely, scientiflcally, efficientll', and economically maintained andoperated. An)' particular grant of por\'er hereinafter contained shall be heldto be in speciflcation but not in limitation of this general grant of power.

The State board shall have porver to determine all matters relating to theunified and continuous development of all the institutions ant'[ noninstitutionalagencies lrithin its jurisdiction. It shall determine all matters of policy andshall have power to regulate the administration of any of the institutions ornoninstitutional agencies within its jurisdiction, correct and adjust the sameso that each institution and noninstitutional agency shall perforn its properfunction as an integral part of a general system. The rules, regulations,orders, and directions issuerl by the Sfate board or by the commissionerpursuant thereto. for this purpose shall be accepted and enforced by auy boardof managers having charge of any institution or group of institutions ornoninstitutional agencies or any phase of the rvork rvithin the jurisdiction ofthe State board.'u

The boards of managers of individual institutions or agencieshave their powers defined in the following section of the law:

Subject to the supervision, control, and ultimate authority of the State board,the management, direction, ancl control of Ure several institutions and non-

18N. J., Laws of 1918, ch, 147, sec. 116 (aB am€nded by Laws of 1919, ch. 97), and sec.119.


STATE DEPANTMENT OF INSTITUTIONS AND AGENCIES 23

institutional agencies shall be vested in the seyeral boards of managers, whoshall be responsible to the State board for the etficient, econourlcal. andscienti{ic operation thereof. The chief executive oflicer of each institutiorr ornoninstitutional agency shall be the executive and administrative officer thereof,and shall be responsihle to the lioard for the proper conduct and managementof the institution or noninstitutional agency under his care, the physical con-dition of the property, the proper use of the plant and equipment, the conductof all employees appointed by him arrd the cilre and treatilrent of the inmatesof the institution, subject to the rules and regulations adopted by the board ofmanagers,"

Although thele can be no doubt that it was the express intentionof the legi,q.lature in erracting this lan' to place ultimate authority andresponsibility for the proper conduct of the State's charitable, correc-tional, and allied institutions and asencies in the hands of the Stateboard of control, and that the law as-written amply provides for sucha-uthori ty_and responsibi l i ty. i t is equal ly plain"that i t recognizedthat sound administrat ive pbl icy must adr i i f of pract ical restr ict ionsso far as local management is concerned. The felv fact that boardso{ managers.for-eacii institution or agency rvere pr6vided for inrpliesthat responsibilitv for actual administration -wa-s to reside in tirem.Ihis fact, however', rests on a more concrete basis than losical impli-cat ion. The sect ion grant ing complete jur isdict ion to the Statcboard contains a very_lleltinent clauie, to ivit, (( to the end that theyshall be hurnanely, sciintificallv. efficientlv. and economicallv rnain"-tained and. operaied." The obviou" *"otting of this clause" is thatthe foregojng jurisdiction shall extend an? the supreme poweroperate only so far as m.ay_be necessary to insure such satisfactorvmanagement of the particular institutibn or agency.

Moreover, sect ion-115 sDecif ical lv places re"sponsibi l i tv for the"management, direction. aid contrbl i, on the iocal boards, whiehl.h^all ba lesponsible to the State board, as was previously' statecl,'6 for the humane, scientific, efficient,

'ancl econbmical riperation

thereot. ' 'It would seem, therefore, that the intention o{ the lesislature was

(1) that central control should be limited to the foimulation ofpolicy and,coordination of program except so far as assurance ofhumane, scientifi.gr economica-I, and efficienl operation might requireattent ion to detai l ;and (2) that in both genefal and specif ic matiers,the central d.epartment shoutd deal with particular institutions oragencies, their executive officers or suborilinates. onlv throueh thelocal boards of managers directl5r responsible toi thdse institutionsor agencies.

TEe report of the State board of control for the four years encleclJune 30, 7922, contains the following statement. which sussests adue r_ecognition of the extent and iimitations of central'control,as well as the usual objections advanced against it:

- The outstanding charactelistic of the Nen'Jersey plan is that the nonlegisla-tive_or delegated policy-making powers relating to the management of its publicinstitutions and agencies have been centralized in a state board of contiol ofinstitutions and agencies, consisting of eight unpaicl members. appointerl pur-suant to the provisions of the larv without reference to religious, or politicalafiliations. The usual objections to centralization of such imnortance havebeen overcome in New Jersey by having unpaid boartls of nranagers appointeilby the State board n-ith the governor's approval to supervise the admini-stre-tion of local institutions and agencies, operating in harmony l'ith thc gc,ner.:rl

1. Ib id . , sec . 115.


24 N. J" crrILD srATE supERvrsroN AND crvlr- sERVrcE

policies determined by the legislature and the state board of control. rnus,there_ is accor'plished centralization of poiicy making rvitrr aecentralizationof adninistration."'u

Previo's to the reorganization of 1g1g. each state institutionhad i ts orvn bor.d o.f manrgers. -uct ing "- ; t i r

r l t "o*t- .o- l r i . t " i ra*-pendence_ and 'with little reg*ard for orie another or for:-ui5i g.rr..utpol icy.advocatet l by the coinmissione' of chur. i t i*r uni .o1., ,oct ions.' lhese boards al l came. to an,enrl on Jrr ly 80. 1glC. and were replacedby ne.w boa,rds appointed by rhe staie boar'.r oi ,lontl:ol.' r'rrer.e\yere few lroldover.s. ercept in the ease of tho Stnte l roar.d of ehi ldr.en.sguardrans, whose members ryere reappointed n'ith only one or twoexceptions.

.r T!,*.new system of subordinate board-s of rnanagers to replacelX"_1l^1:t:j-m of i1{e,Uendenr boards had ro_1russ tlir.orrgh o i,i.iodof .readjustment n'hic lr rvas made more r l i f f icrr l t bv r l ' i { te 'c icc ofoprnron as to what, rvas contemplated under t l re ncrv larv. Tlre trat . l i_t ion of , indepcndence of - ae t ibn persistecl against r i . " t r i . , broat lrn^rerpretal lon ot the Irght. of central conl rol br- t l re departmentof inst i tut ions arrd agen"i"s. Inevi tablv nror.e ol i , , , . ; f ; ic l i ; ; devel_:f f { ig: ,1 j i ' " , : :_.hjef l l r i t l r regard t6 f iscal corrrrot ,"J [ i i i rding-consr ruc t ron con l l 'o t . ,by , the^c lepar tment o l ins t i t r r t ions an , l ugen_cies. This reduced the benefitsbf departmental assi-"tance.-- on theone hand, too much emphasis was pfaced on .onirlul in.teail of on::"p.]" ] iy: se'v ice, and on the other rhere rv,s roo l i t t lc * . i l l ingnessto recognize the pjrssibi . l i l ies for improved u-or. l< inlrer.ent in 'c losecoo l 'o rna t ron o t e f l o l t be tween loca l and een i |a l : r r r t l ro r . i t ies . A tthe t ime of the study a more cooperat i 'e sDir i t l ' r , l , lcr lnl 'oned oncacJr side, rvhiclr promised rvel l for 'nrore srt i i f r r , . tot lul , ,ogt:u; in thefuture.Fiscal control.

Most states rvhich, h^ave_adoptecl central control in public welfarealso have centralized fiscal coritr.or in the central boai.J its€lf, in

-;

state,fiscal officer, or_ in a_special state fiscal com-]..]o".'-una.,l l : .9Jo,,

syslenr rn Nel- Jerscv each cgency or inst i tut ion pre_sented iis estimares directly to" r'he l_egisiativ"e-app.;t;;l i"i.

"o,r-mit tee. .Eat ' l r agencr- or inst i i r r t ion hid to organize'ani l press i tsol 'n clarms in compel i t ion rvi th al l others.

. -Obviouslv t j re com_

mrttee rvas not prepa'er l ro. i ' r lu ire deeply into the nier i ts of ai ti te.ms or to rnvestrgate each inst i tut ional program to see i f i t waslrcrng devellpeiJ rvith.tlue regar.d to all otirerr ancl to tlre needs ofure, enrrre state. ' rhrs system was eost ly, ineff ic ient, and unsat is_ractor-v.

] 'n l ler, the ne' ' . systern-each_ agency and inst i tut ion p'eparetr anclsi lur)rr [ [ert l ts csttmRtes for the review of the centr.ai c leparrment.I'he' cliief fiscal oflicer had access to detaileJ'..;.il; ,ipiit., uraprograrns for each agency, as well qs the gener.rl p.og.r'rn-io, uX.] te l l t r r l l in ie rn, l olrportrrni tv to ver i{y f igurcs. r . , l r inrv?e ancl weiEh(rol i l r rs. un(t lo r .oD:i l l t Iepresontat ives of each irrst i t r r t ioh and off ic ialsin clra.ge of.sPccirrl parlts of the state rvelfa.. ,r"og.";.* bn thetrasls ot tlirs rnfolnration the estimates rver.e appro^ved or revisecl anda general depa.turental budget createcl. This' generar [irae.t was

-r*1rllllll,-I:"ir.snmnarv of Reportr of the State Board of contror of Institutions anal

Provided by the,Maternal and Child Health Library, Georgetown Universitr

STATE DEPARTMENT OF INSTITUTIONS AND AGENCII IS 25

presented as a, whole to the legislative committee on rrpprol)riations.' I 'he inst i tu t ion or agency representat ive might apl ,car : befo le th iscommittee to press individual reeommendations ivliere he thoughti t needfu l . "

Boards of managers had felt at times that their recommenclationshad not received sufficient consideration from the department anclthat it was hard to secure the additional support deiirecl rvithoutdepar imenta l backing before the legis lature.

- The prr .sent cornnr is-

sioner had taken step-s to remove sucir causes of dissirtisfactiorr.A central auditing and accounting svstem had been carr.iecl out

successfully and assiitecl greatly in dicai control.Public-buildin g construction.

The New Jersel' State Board of Control had exceptionallv broarlresponsib i l i t ies for lhe State 's publ ic-bui ld ing progr 'am. ' Ihe d iv i -s ion of archi tect r r re anr l construct ion served n6t 'oni i ' the inst i t r r t ionsof the State but a lso the State mi l i tary board and a l l State depar. l -ments other than the r le .par tment of educat ion. f t passet l on p lansfor city ancl county instilutional construction.22

A few other States place more or less of their institutional con-struction under their central boards, requiring their welfare depart-ments or commissions to handle State buildins-construction. althbuEhthis rarely covers so nearly the entire StaIe program as in NiivJersey.23Transfer of inmates of institutions.

The commissioner hacl broad.powers in the matter o{ transferringinmates from one State correctional institution to another. from onecharitable, relief, or training institution to another. or'from oneof the former class to one of ihe latter class of institutions lvhere heconsidered such transfer desirable.2a In the case of transfer ofinmates of correctional institutions due resard for minimum andmaximum sentence or parole regulations andfor notifving the courtsby 'n'hich such persons had beeir convicted was requir6rl.' \Yiscon-qinpermits such transfers to a limited extent,25 and Ioiva allows its Stateboard to make such transfers betryeen like institutions.2oCentral parole supervision.

Before 1918 each State institution maintained its own itar.oleofficers. made its ou'n jnvestigations, and supervised its orvn pa'roleeswith little resard to those of other institutions

Under the l-918 larvs 2? the board of manaser-* of each correctionalor other State institution has the rigltt to determine rvhat inmates mavbe paroled, bub parole super l is ion is ccntr .a l ized in t l re d iv is ion oTparble and domestic relations of the rlepar.tment of institutions andagencie-".?8

e l Before 1926 t l ie cent ra l_ de la r tmont r l i scouraged the appearance o f such representa-t i ves . bu t s ince tha t da te i t l res pn , ( ,u | l sed t l )c t ) r . i c t i c , .xr Lettel of July 23, 1C26. from thc Ne*' jersey Conimissioner of Institutions anclA cencies.'s_For-example,

Ig$la- (Cqde of 192:1. sec. 33i16) ; Nebraska (Comp. Stat. 1922, sec.6851) ;-Rhoale IsIand (Gen. I-aws of 10j.3, secs. 6482, 6501-6516) ; anal-\\ 'ashiDgton (Coaleo f 1 9 2 1 . s e c . 6 6 : J 4 ) .

3_Ir-qws gf 1.911,^,9n. 147,.secs.. 213 to 224, inctusive, as amenderl Apr. 11, 1919.5 W i s . , S t a l . 1 9 2 5 . s e c . 4 6 : 1 1 , p . 5 1 2 .2 0 C o d c o f T o N a , 1 9 2 4 , c h . l 6 7 . s e e . 3 3 0 i t .

- 5Larys_^o^ f .19-18 ,^eh._147. secs . .201-207, as anren< led by Laws o f 1923, ch . 120, anr l

L : t r v s o f 1 9 2 , 1 , c b . 9 6 : L r w s o f 1 9 1 8 . c h . 1 1 7 . s e c . 4 : t 8 .28 Laws of 1918, ch. 147, sec. 109, as amendetl by Laws of 1921, ch. 76.

L ---


26 N. J. CHILD \I,ELFARE-STATE SUPERYISI'N AND cIvIIJ SER'ICE

This central parole division took over the

pg,role and domestic relatibns.-thus permitting a more e.ono-iculu.eof the time of field parole officers and reducinq the respon.ilititi".of the institutional iuperintendents-.2e nrassacf,useit., rir1"o1., u"Jwisconsin u0 similarly p^rovide state-board control ou"*'poro-t-.L t"o,,'their correctional instiitutionsSpecial services to institutions.

"The department of inst i t rr t ions and agencies employed & corps

of experts. in.several l ines of act iv i ty whose ser.vice" *-ere ar-ai lableto all the institutions un^dqr its charge at relatively small coit.,, Tlg most impo,rtant of these expert se.rvices__u.erdprovided throughthe drvrsrolr of educat ion and classi f icat ion. ' rhe di iector, 's nr incin"aldttty was to plan the policies for_-educational. psychiatric. and- t.t;[;-Iogrcal service and research. The actual seivices tt.r" cu."i.d outunder his direction either by members of the institutional stafi orby members of the state psychiatric clinic at Trenton.

- rie secured

valuable suggestions and advice for his erlucational rrrosru--f"om ex-perts in. the State's departmenb of edrrcation. (See"rr. 2g.) Theparole divjsion cooperated in making the home and comr'nuniti inves-trgatrons, whr.h furnisherl the backgrorrnd for inst i tut ional el issi f ica-tron and treatnrent of inmates.3' sueh edtrcat ional and psvchiatr icstudies, i { properly correlated * i th the recrearional ani l bhvsicalstudies of individuals. and with their react ions and e^rrrer ien"" i t th"lr_stitution, provide most valuable guidance for their'retrabititation.'I 'hey further throw nruch light on the dail.y problems of parentsand teachers and so serve the State in a lai.ge iv,ry. Illin6ls anclRhode rsland also provide for these ancl other Iervicis ttr.ougtr trr"ircentral welfare agencies.32

_,*lotllu. important service to instit,tio's a'rl agencies was pro-vided. through the clepartmental stervard, rvhose "dutv

it wai toplan inst i tut ional dietar ies on scient i f ic 1r ' inciples adipted to thesgxr ags: occ.r.rpation. and condition of the jnmates of each institu-t ton. Ihe dretar ies were made with thc obieet of assurins a rea_sonable. variety_ of- rvholesome food at a modente cost, ind thernstr tutrons made frequent reports on actrral menus userl . ' t l re t luan-l i t l of food provided. and the amorrnt of wuste, in o.. lor.ro guidefuture plans.^ With the cooperation of the stes,ard ancl the farm supervisor thefood requirements^of institutions and their agricultural resourceswere correlated. ('rops were planted to prodrrce needed food. Thismade for ef f ic ient div is ion of iabor and ipecial izat ion in product ionbut.actrral ly had co.nsiderable l imitat ions, orving to ihu' fu"t t t - ,utrnstrtutrons rrere rather lyidelv scattered over the-State, and timited

,l{tI central,parole division took over the parole ofrcers alreadyempJoyect. Py tne co,rrectional instit.utions and assigned them on aterr l torral basrs, under supervision of the dirocfor oT f l ro diviqinn ̂{employect. 9y tne co,rrectional instit.utions and assigned them on aterrltorral, basrs. under. su.pervision of the director of the division of

(U:B:'"fu$:lgi-S$f8#",iioif"#L""i?llti"3s:"$Tl$.F\.errare in New rersev, Part rII'oJ-i',Ti't$it;*f,*d,f"'"l3ik";l;,'ll',f;""at#fl%1,ir"a';ri tF,il,"f it vili"';.!*; i$lf_Ti:pp. 20-27.---"t!-q",? more detaired discuss.ion of flris n'ork, see.child werfare in New Jersey, partI I I^(9. q, Chi ldren's Rureau pubt icat ion ; tn prr t ja ia i ton).gr611t t . ,Rev.

Stat . 1925, ch, ! {a, scc. l+; i t .^ i . 'b i i r l r , : i f rs of 1928, ch.413, secs.6b28_

Provided by the,Maternal and Child Health Library, Georgetown University

STATE DEPART},IENT O!' INSTITUTTONS AND AGENCIES 27transportation facilities between them often prevented readvexchange.

The -departmental

steward also planned for the crothins of in-mates of institutions. The director of state use correlated

-the out-

pu! of industries in the various institutions with these ;i;thGeslimates as far as possible.

Before the .eorganization o{ 1gr.g a few industries had been devel-oped to r'eet state needs in one or more__of _the penal institutions,but prison contract.labor was the rule. with tLJ

"rturriiJ-""t otthe departm"lt qf instit'tions ancl agencie. tt e e"ii"*".i.t.", *u.

overharrlecl. old. industries suitable f'<ir state-uiu prla"Jtlor, *.ru:.:3:grl]:"q1.11$ ?"u.."I neu- ones were inrrottu".i.ti--i"f," fu* pro_X1*": 19" estabhshing such industries in all state institutions, asIOIIOlVS:

The inmates of all correctional and charitable, hospital. rerief, and traininginstitutions within the jurisdiction ot tire Siate board shall be emproyed insuch product.ive occupations as are consistent 'iitii iG il;;h,"-ir;;;th, andmental capacitv of the pe'sons_so emprove<I, rvho-.shall;'"4;i;il,*h;npensa-tion therefor as the State board shall deiei,mine...

The industries were,eenterecl. horrever. chiefry in- the several penart: jir i."^ll9nal i n st it ution s, excep r th e w omen.u' ruJo;;;;ry* l"h t huDrale l lome tor bovs.

-rt was the mutuii responsibility of the directors of state use andof etlrrcation and classihcation tb see that these-occu,iuiiorL *.."plan.ed and directed primarily. 1qr tl,ei" tit;; "i"

i 'rr"'piry.r.rr,mental. T9"31, and ec_onbrnic reh"abilitation of ii iose ""e;c"".i ' ir,*..ir,.Several states have deveroped extensive systems or st?iE-u.e indus-tries.35

Inspection of State institutions.

,"]1f-.rl:a:fôf_ins-pectîon of State institutions has been based veryjFlg.ll '_":,lt]i^:{:ts- of snecial service to.insriturions. 1S". p. ZO.)rne conunlsstoner has outlincd a part of this syste'' ', as follows:

lYith reference to the,.State institutions, the department has a systematicinspection of alr institutions carried oo;;o-; rotfoii""uiLîJ io'iirr" *rtr,the organization of the department. ror e"ampre, oor: rrp""oiJirrs..u""o.rotr.otmakes periodic, carefur check ups of arr accouiti;g."";.;;.i;;-"."'ott?"p]r.op"iu.tions, maintenance of books, preparation oi tluOger, etc.Our farm supervisor inspects systematicaliy, frequen,y, and regularly allphases of farrn activitv, caie of stock anlmar('.ii;il;;i'#;uiJ,"iiu"ti"g.,use of prope|ty, rotation of crops, care of equiprnent and such itens.our department stewarcl^makls regurar aird'systematic, frequent inspectionof the feeding, not only of patients "or

inmates,- but also' "i

;;;i;y;;, staff,and officels.our division of education and classifleation inspects the industrial, voca-tional, and academic schoor functions of irre-institutions, a"a *arls t"equent,careful check ups, with reports on the same. rn like ilil;;-1he-iioi"ioochecks up on the individuaf chssification wori i"

"ucrr-oi-lrre-"i"*iiti.tiurrr.The commissioner of the deptrrtment makes frequent visits to a[ institutionsand agencies of the state, .checking up on gen-erat aoministraiive -wort

otthe institutions and following up detiits re"ported to nim- uv--iie'various

#i,ilf,*t1-;#?"ff"u1t1":llT. or.clothins, shoes, rurniture., automobile tass, sn.r otheri,;itdt,;;6y:iri; fild;;;';;"J"",:1.nl,l.

tunt crses prisoners have bcen enptoyccl on road

." r nl{i'i*'Tf';,',iiiT:ft'}ii;il? :i"lf".H '11""".'."j.}lsm':'?'-1,?13' "lo"g?tr'" n'n,orir i i i-. s. Cr,i iol:"i i , l 'r iureau puuricarion; in nr"oorurrolt ' .ttd

welrafc in Neq'JerscJ r;;r 'a

34563"_27_3

L- _

Provided by the,Maternal and Child Health Library, Georgetown University

28 N. J. CHILD WELFARE-STA'IE SUPERVISION AND CIYII] SERVICE

divisions. Reports on the lvork of the institutions are made to the Stateboard, to the administrative head of the institution, and to the board ofmanagers; these reports are usually in the form of letters of advice, sugges-tion, and criticism. Other reports are made to the State house commissiou,to the legislature, and to the State budget commission.'u

Closely allied to these functional inspections were the dailyprogress reporls made to the department by lhe exe<'ut ive off icer ibf iach inst i tut ion or asency. These were in the nature of a dni lvlog of events, mostly r,outiire in subject matter but with detaiiehaciounts of anv €vent of more than usual siqnificance. Summariesof these progress reports \yere mirneogrzrphecl antl sent to the mem-bers of the State board of control.

Information for the commissioner's use rvas also obtainecl tliroughthe employment of certain conficlential agents."' These agents rrereintrusted with special or secret investigations into repolted abusesor imDortant delails of aclministration of institutions that couldnot be^checked un otherrvise. The use of such agents rvithin reason-able limits doubtless is both justifiaiile and necessaly to check thetype of abuse to u'hich penal institutions ale palticularly subject,,r"t^d"" even the most conicientious and inteliigeiit management'" Arather diflerent problem arises, however, rvhcn sttch secret agents areplaced more or

-less permanently within an institution. Here the

investiEator tencls to'become the spy. 'Ihe effect on the molale ofan institutional staff which knorvs "of or suspects the presence ofsuch an inquisitor in its midst, is too obvious to lequil'e comment.New Jersev State institutions have been subject to such investigationat times in the nast.

The present -commissioner

(who took office in-Janlra-rv' 1926)is endeavoring to solve this problem ancl those of jru'isdiction, ofimposed authoritv from the central department, ancl -'imilnr prob-leris that have c6mplicated supervision^al relationships in the

^past.

EXTERNAL COOPERATION, DDUCATION, AND SUPERYISION

The architectural advisory board.

When the New Jersey State Department of Charities and Cor-rect.ions was created in

'igO; it wal siven certain tluties relating to

the architecture and construction of State buildings, but this author-ity was withdrarvn later and vested in a separate cotnmi-"sion. Int921 the lecislature sar-e the resnonsibi l i ty for l r lnnninu und con-structing alT State bu"ildings, except those ior the ltrrbl ic-sclrooI sys-tem. to

*the denartment of institutions and aEencies. During and

after the war beriod the construct ion of publ ic brr i l t l ings was de-laved unt i l the demand for adequute aecommodationsJor off icesand for new institutional buildinqs became so insistent that theState felt compelled to embark on i I'rrge program. This involvednot onlv a verv lat'ge expenditure but also very inrportant questionsof polit.y and plafrning to meet both present antl futrrre needs.Souncl puUtic p,iti"y deiranded that the 6est talent available in theState should ije brousht to bear on this rvork. For that purposean unpaid architectural at lv isory board, composed of t l te outstanding

s L€tter of July 23, 1926, from the Nc\Y Jersey Commissioner of Institutions andAcencies.-37

Since Ja.nuary, 1926, the use of such agents has been discontinued,


STATE DEPARTMENT OF INSTITUT ONS AND AGENCIES 29

authorities on architectur.e, engineering, and construction, was cre-ruted by the State bol rd of cont lo l , to advise and assis t the permanentstaff in charge of actual operations. The services freely-given theState by these public-spirited men have been of the utm'osi value.The welfare consultant.

As a consultant on all aspects of the State's social problems theState board secured the unpaid services of a leadins

-authority on

child-r,i'elfare and social 'wrcrk. He rvas consulted-resardine allplograms,for institutional _tr,aining and education, [articu"larl.ythose touching defectives. antl furthei acted as critic anci adviser onall aspects oflnstitutional administrution.Cooperation between State departments.

V_ury of the problcnrs confront ing any State department of publ icn 'e l fare necessur i lv inc l r r r le nrar ter i j o f specia l in terest to t f ie t le-partments of eclucation, health,. labor, an-d agriculture and requiretheir close cooperution for solution.

. The Ne:I Jersev State board had recognized this community ofin terest . Fol exum1, le, i l l r r , l rvo lker l ouia suceessfu l program fo*i ns t i t u l i ona l ed r r ca t i on r v i t l r t l r e r l epa r tmen t o f e t l r r c r r t i on . - r t a l soliad placed its mental clinics at the disposal of the public schoolsand-in other rvays_ had createcl a seriei of recipr,ocal services ofmuch r -a lue. The r lepal tmen{ of edrrcat ion furn is l red expert adviceand assistance on institutional programs for both aca?emic andvocational education, particrrlrrrly for the Sttrte home for boys andthe Sta le home {or g i r ls . , "

, At a r lumber ' .o f points, notably- t i ra^t of the l icensing of boardinghomes l ' o r ch i l d ren b ; ' l o t . a l bou r t l s o f hea l t h on t l r e one hand , andthat of the state boiu'd's provision of antituberculosis clinics andsupervision of the State l iospital for tuberculous diseases on theother, the ltealth and lr.elflre departments and their subordinateagencies had come into active contait lvith the State board of control.'I'hough commendable e{Torts had been made by representatives ofeach department to work out a satisfactoly cooperalive scheme forhandt ing these problcms mrrc l r .yet lemain ld to-be done before thel r rob lem rvas comt r l e t c l v so l ve r l . --

The State depaltmeits of agriculture ancl of labor hatl been ableto give the Strt-e boar.d rnaterial assistance in its work. The depart-ment o{.agriculture hrr,1 cooperate-tl, in planning ne.w farm buildings,in a, lv is ing on c lop rotLr t ion l . uncl in cbnduct i i ig tests for l r lant a i idan ima l d i seases and ass i s t i ng i n t he i r t l eu tmen t . T l re t l cpa i . tmen t o fl abo r h t r l i nspec ted s l l ( ) I ) s . . n r l v i se r I on i ns t i t r r t i onu l i nd i r s t r i es , sug -gester l needet l safet .y r [ t ,v ices. anr I uss is ter l r .estor ,at ion wo.k fdri nd i v i c l ua l s i n i t s re l rab i l i t r r t i on r . l i n i cs ._ A v is ion of thc greut pos: ib i l i t ies ly ing in the f ie ld of in ter-tlepartruental t,oopera-tion. br,th for daily"operations and {or research,has been pictured by tlre rve,lfare consrrl iant and Lrearti ly indorsed bvt l re commissioner in p lans fo l the c leat ion of a centra l researc i rcouncil. To date, in spite of the need for and possibilities of con-structive work by such a council, it remains entirely a futurerossibilitv.

s See Child Welfare ln New Jersey, Part III (U. S. Chilt lren's Bureau publication; inprepara t ion) .

Provided by the.Maternal and Chitd Health Library, Georgetown University*

30 N. J. cHrLD wET,FARE-SrATE supERvrsroN AND clvrl, sERvIcE

Publicity and education of the public..ls little substantial pro€{ress in social welfare can be assured with-

out the hu..\i1g.of an intelligent anrl sympatlietic public opinion, itbecomes highly important that any defartnrent chdlged wi'th clutiessuch as those of the New Jersey State Boarrl of Control shall avaiiitself of all proper means of

'keeping the public informed of its

accomplishments and educated in an afpreciation of its ideals. Fey,i f anv. States mainta in speci f ic d iv is ions o l emPlo.y expert in t l i -v i t lua l isn for the educat ion of the publ ic . I t general ly remain ' ;simnlv an adtl it ional function of othei'wise-ernplo\'ed offit i ials u'ltose.egul i r dut ies f requent ly prevent thei r ser l ing ihe-ptrb l i t ' in th is u 'avwi lh much sat is fact ion.

A possib le way of l randl ing publ ic i tv is through the maintenanceof a c lear ins ho;se of in format ion ant l advice on a l l mat ters of socia lwelfare. F"or this important service is required some one'with muchtra in ing ant l exper ience, wi th a thororrgh l rnorv ledge of bot l r thcnrobleris and the resources of all parts of the State. rvith abil ity t<riecu.e specialized information regai'ding any public or private agencyand its

^work at short notice, with great patience, tact, and discretion

in the handline of inquiries, and rvith time for all these duties.Althoueh no o-ne individual can or should be expected to act asofficial

"representative of the department before aII confetences, con-veni ions, 'c lubs, anr l l ike gat l re i inss. natu l 'a l ly t l rc onc in t 'hargc- ofseneral in format ion at tFe cenl ru l o{ f ice, i f t 'ompetent for thatijosition, will also need to {ulfill frequent engagements in the fielcl.'

A var : ie ty of c losely re l t r ted dt l t ics .at t r rch to srrc l i rn of f ice. .suchas keeping"an up- to-d i te regis ter o{ a l l k inds of Prrb l ic rnd pr i r l teorEani'zations in- each community that may be called on to assist inth6 solut ion o{ local soeia l problems.

The State board had realized to some extcnt the value of theseservices and had placed the responsibility for their pe_rformzrnce onthe assistant director of the division of palole antl domestic rela-tions. Such a progr,am I'oulcl seem likelV-to trx_ to the_utmost boththe time and th^e sti.ength of this officiai, who had in addition & yer'

"o".ia.tufrfe share in- ttre more technical work of parole rvhicir

occrrp ied tnuch t ime.I\{-embers of the State board. the commissioner, and the divisiorr

and institution executi't'cs carried on a r-aluable part of the ecluca-tional Drocess through speeches rnatle before National and State rvel-fare conferences of

-varibus kinds. and before meetings of the great

number of social" fraternal, and business organizations in the Stateof New Jersey.

'Both the ratlio ancl the press rvere used. .Though

the department did not publish an annual report covering its rvorl<

or thai of its subordinate agencics it permitted certrir. oi 1\ese

ugun. iur to publ ish annrra l re"poyts srrb ject 1o i ts supery is io.n. I l lcp?ir"ip.t 1nd,li,r-= of official press prrbiic' it1' rvele.oc?asiorrrl s,et' ir l

i :uoort' i on particular asl)ects of St"iu n'elf lre rt 'orlt and ti le legulrrr 'p t ib l icat ion 'of t hc Quarter lv-a prmphlet c leal in g \ - i t l i . speci : r l l op ics

bf social-rr.elfare interest. ieporis_of p.rogres.. , ln^d related ntattersPublic inter.esr had been aioused an-rl educaterl {or the attainment

of-Hno major objectives: First and most irnmediate was that of

"-X,H:r:',;'q"il,.t11t"9 ll.'"","f8"i"1',,',il:I"ill3,'"rJf;ti?it**".:::Jltr Jf;:ll*'t?1?"Tfr,*i.i..'"*

Provided by the,Maternal and Chil{Health Library, Georgetown Universitr'

STATE DEPARTMENT OF INSTITUTTONS AND AGENCIES 31

f$.cturte p.ublic support for the department in its entire progrnmor pre\ent.rve. r 'emetlral . and crrstodial service in the var ioirs f ieklslrtaced under its j*r'iscliction. The problem here sas chietll tint utcfficient use of tlre nlatform,an,l preir i" =."rr"

""""gr..ulr1;o.t to'.

"rather. concr,ete and,general l t , " i "g; i r*d pr.oglam.The second and uliimate objecdrll adrlocate.l bv thc commis-.ioner.although as 19! *o" j::: _*{l;ed ,^; pr;"i*", j1"."t5"i

"}'""."ti"g i"each communitv a p.oper sense of responsibir i i t f ; ; " i i i o*n .o. , i r tproblems. rvi th. 'a cle^t ' l rnf ini t ior

" i p. i t i .a l r imits as between stareand local servi .e. Trrar is. though' i r 'o stui" . r , ; ; td J; ; ; i ; erper.rrd' ice rnd constrrrct i 'c sr rpe^'i-i6n n-

-nieJ";, "ii".h;,,il"#i" or=,,-o

!,.:_{jL-lr responsibiritv foi' p'ti.utui. to.oi p-t t.n.,"."untiiih* .un,-munrry l ras exrrausted ever.y social resorr, 'ce "t

i ts "o-.ond-.

rn this

IitJ,,f ;:,if H,,i, j"ff i1"unil,1",::l,HJJi:l.Tf "?f ;:lil:*.lttstare" mav be gi r:t'n rmpre ',*"n. to' h;;i;- ;i';;-;;;ili";-;,ioblemsthat for one'eason or.anorher must st i i i fal l io i i ; ' ; ; ; ; : ; ;-

t ' 'Supervision of local public agencies and of private agencies.

Few communit ies. in Nerv Jersey hai,. as yet squarely faced theirlocal responsibilitf i. ail its il;li.;tl;;s or attemlrted to work outrr complbte 1,.og,:am or .o.ioi-'*;;;i;;: ' ' iral"lJ"ii ' io*"n"i.". t,uru!l'o.\rn up to han,lle .r1rer-iul ,rspecs of the il;g;;;;fuil '."onj in.tl_l r f rons ha'e beon cr iated to ca.e for r-a.rorrs er irsses thl t seemeclto require such aicl. By means of Slat! conferences and in otherrvavs attempts h^ar.e been made to raise standards ;?;rk';",i^""".,rut he mutual benef irs of,cor,erat ion and *r. ' 'u.gu o{; . ; ; ; i ; ; ; ; , . ' Longcbser'ation and srrrr[;'. ty 1,"ii, piit ri".*"ft"i;'r."'";T;.iilr'io .o.rurx-orkels . l ra 'r 'e Prove,r."1.rr l i t t i . Str te i -r ' i r 'o

""rponsibi l i tv for uI j tssoc iu l lv inadequare ci r izens. rrril i .ra' r ",1

y;,;;i;; ';h;i ' 'd"., i" .u ti._1l : , l .^: l11 by rcasonable assrrran.e r trnt i t iey are reeeir . ing proDer crreil;ffi ,Hl""?il"lffi ;Iffi ifi rui",i;ilj;:.,*,T:j#,+*l;1"-Iand to carrv their o.wn problei* *tirii"t",.'ii'i;'-#;"r"ii" trr"rlutv of the State to u"i."G;;;il;'or srpervrsron o'er localrt gencies.

^-Tn: f::: Jersey law places the. right of supervision of both publicancr p'rvate sociar agencies in the'hands ;rit;N";iJffi-stot"IJoard of Control in'ihe foll,oiuil; pioTi",or",The State board shall har-e pol,er of visitation,and inspection of a1l countyoltf ill.]".*,fl.,n*l:::,.:'- gtiLl91, -i;tlr*o.''.itv *orkrrouses, countv peni-il','ili.'{.1":i'Ji;nl;l::?,,:'"*:":*::,.-i::ilrri-"r.:r6j:#ii'iff;i:t, ";ii',,:";#

l3l1il,:' T; 0 "?,y,ri r; l*" ::" ::",r : * li* :F' i, "".i'' iii",';;;" i;';-R, Tiilli, "ffi H:;i,.Xt ,;#,i.,X,,11i:llll^::1'":l:.:i o"t.,ir"i,,"ii,li;ii.tii. ;ij,'iT;,$:1t',Lti,?tions and noninstitutional a'u's aru nonrnstltutional age'cies for the care anrl treatr,r"iJ-"t-iiri ioauo",the. bliud, the deaf, the clurnL, tn" .nil";?i.'ihi roor,r.-..i.rrorr ^- ^+r.^_ :*,1!pileptic, _th-e feeble-mird;;; ; ;i";T#;fl';t"A,H,1?,,h"j,,J$1,:il, l+*t:+"iil,q"^*jl".il"Til.i;:i'"#,"i1ii"",,j1".:_,'"T,1',;i,lfl fiuurutt" derective, or tlie care ;i o"rl"iai""i ff ffff;i:,$#""f,tJiii1jll io th.a r

. fnstitutions conducted [ychurches and fraternal socieiiesexceptecl from such inspection.+:

p"rope.rly organized and accreditedto_r the relref of their member.s werc

In this connection it may t "

rv.iiio

, {0 For^a .d€ t r i lod t rFr ln ien t o f f l r i s( t . S . ( l h i l ' l r c n ' s R r r r a , , " n , r r , r i ^ . . , r . -S chi l , l rcn 's ̂ R, , . . , ru put t ic- , r i i r i ;; i: lr.: !;lH. ""t",t!,% * 'ii+ =T'-

:i":;rJ h lJ.:iliiTtl' |"i JJl,ii, or"'rcm soe ch ird \r'er ra rp i n?lT:"%i'ib"%#5il=::,.+r;:1i1"{i"1.}i*x.l1**etec. - 125. . as rmcnOed by Laws o l .scc , tzo , supp len ten ted b l ,Lan.sLaws of 1922, cb. 9J.

New Jersey, part IV

1922, ch. 95.of 1919, ch. 1J0, and

Provided by theMaternal and Chil{Health Library, Georgetown University

32 N. J. orrrr,D wELTARE-srATE suPERvrsroN AND cwrr, sERvIcE

recall the article on inspection adoptecl at the Washington Confer-ence on Chitd-Welfare Standards in 1919:

A Sfate board of charities or a similar supervisory body should. be respon.sible for the regular inspection and licensirrg of every institution, agency,or association, incorporated or otherrvise, which receives or cares for motherswith children or children rvho suffer from physical or mental hanflicaps, orwho are delinquent, dependent, or without suitable parental care, and shouldhave authority to revoke such licenses for cause and to prescribe forms ofregistration and report. This State agency should maintain such supervisionand visitation of children in institutions and children placed in family homesas r.ill insure their proper care, training, and protection. The incorporationof private organizations caring for children should be required, and shouldbe subject to the approval of the State board of charities or simihr body.State supervision should be coneeived and exercised in harmony with demo-cratic ideals n'hich invite and ercourage the service of efficient, altruisticforces of society in the common 'welfare.a3

If its recommendations for improvement are not complied withby an institution the State board may apply to any justice of the:uprgpg court or.a j9dg9 o-f the court of common pleas of the county

by the usual proceedings for contempt of court.The evident intention of the legislature was to provide the State

board rvith ample power to supervise local institutions and agencies,and at the same time to Drotect such orsanizations from undue in-and at the same tlme to protect such organizations from un-due in-

in n'hich the institution is locatecl. for an order requirins the remedvof the conditions complained of or the carrvinq out oT the recom"-

the remedyof the conditions complained of

.or the canying but oT the recom-

mendations made. Su^ch orders after due heirririss mav be enforcedmendations made. Suih orders after due hearings may

Jersey was carried out Dersonallv bv the diiector of the division ofinspebtion. Ife used rvelt-cleviset dlanks with space for the usualinspection. He used rvell-devised

terference by interposing the courts between the agency and theboard in cas"e of diipute] New Jersev has an utrusuil piovision inrequiring the departinent to act only'through the courts^in securingcompliaiice 'witti its orders for improvemeit.

n-[any States require all child-carinE institutions and aEencies tosecure annual liccnles. rvhich mav be r-evoked for cause bvlhe Statedepartment of public welfare. dppeat and hearings on such revoca-tiohs usually are permitted. nlahv laws provide-fine or imprison-ment, or bolh. foi operating 'witlrbub .u.[ u license.aa_ The inspection_of

^municfral ald goully institutions in New

recommendations for improvement. As a rule the reports werewell made out and sholv6d conscientious work. Semiannual visits'were the depaltment's policy, but inspections were not al.ways madeso frecuentlv.

. Private sbcial .agencies ancl institutions were inspected by theinv-estigator and in.spector of nursing,a' under the division of faroleantl t ionrestic relations.'o In addition this agent carried on g^eneralcdtreal ional rvor l<. l rar t icu lar lv in nurs ing serv ice. for the depai tmenr.Her program called for annual visits t iall such'social organizationsin the State, but it had not been possible to carry this out completely.

ilrspeclron. .Fre useq \,velr-oevrse0 olanKs wl[n spacreports. on matters of managernent, equipment, and

ith space for the usualreports on matters of managernent, equipment, and personnel, andalio rvith ample room for

'comment -on intimate d-etails and for

4 lf inimum Standards of Child lvelfare Adopted by the Washington and Regional Con-ferences on Child ' lYelfare, 1918, pp. ff-12. O. S. Children's BurEau Publication No. 62.\Yashinston, 1920.

44 See N. C. , Conso l . S ta t . 1919, sec . 5006 (5 ) and sec , 5067; Mich . , Comp. Iaws o f1915, secs .2001-2007; Io rva , Larvs o f 1925, ch .80 ; Oh io , Gen. Code 1926, sec . 1352 (1 ) .

a5 1'his oll icial \rrs a trained nuISe but had had no special training for social service.40 Plans have beon considered recently for the consolidation of the work of inspectioD

under a single division.

Provided by theMaternal and Child$eatth Library, Georgetown University

STATE DEPANTMENT OF INSTITUTIONS AND AGENCIES 33

The blanks used and the reports made were confinetl too closelv toroutine facts of managem^ent and equipment rrithout suffic"ientemphasis on the social ind human factbr i thai corrnt nrost in thisfield. The inspector's report for the ealendar year 1924 enunreraterlthe fol lowing vis i ts of inspect ion:Type of irrstitution

or agencyIlospitals and sanatoriums------- 62Children's homes------- 67Ilomes for the agerl-----.- 28Day nurseries------------ 20

Type of institution Numberor agency Yisite{l

Welfare agencies----- .14Preincorporation investigations-- 14Visits to homes of parolees------- 23

NumberYisiteat

Although departmental inclorsement was not required by law inorder tha{ sucli institutions and &sencies should continue to" operate.as is usual in many States, it was valued by most agen6ies asstrengthening thcir "appeat for public sr-rpport. Indorsement wasgiven only upon recommendation of the investigator. All these in-spection reports were individually summarized, and copies, withappropriate remarks and suggestions, were seni by the departmentto the chief executive offieers of the institutions and flceneies and tothe directins boards.

No summir:ized annual report of institutional ancl agency inspec-tion for the State is published. Such a report, giving comparablofigures on intake, discharge, costs, inyestments, and related facts,and statements in regard to standards, policics, ancl new develop-ments among similar classes of institutiois or agencies, should prb-vide interest- ing and st imulat ing informal ion for ' lhose in eharge'anrlwould educate them to realize the value of public supervision.Opinion in the State is stil l divided as to how much supervision rvillbe most helpful.

Provided by theMaternal and Child Health Library, Georgetown University3

SUMMARY AND RECOMMENDATIONS

REVIEW OF NEW JERSEY'S EXPERIENCE IN SUPERVISION

About 60 vears ago l{ew Jersey first became sufficiently interested

in .a is ins t i ie s tantards of i ts i :har i table and cor t 'e t ' t ion:r l inst i tu-alo". l;

o"uo." official legislative inquiry into the rnatter. P*bli.

orrinion had not Vt,t been Fducated to iuppolt an elTective sttpelvisorvnioc.u-. and eaily attempts did not .yieltJ large results.'

P-.irrut! interesf {ured better.. It led to tl ie creation of a Stulecharities Aid Association backed by liberal legislative- san-ctions.

oversight oF;-tg ;"";t ttti. orsanization carried on an in6reasingly efiectivcoversislit of both loc"al and State charitable and correctional insti-OVerstght Ot bOth local and Dtate cnar l taDle ancr cor l 'ecLIOII t l I r r rsLl-

tutionE and. eclucated the public to clemand. higher standarcls of cr|cto. tt e socially inaclequate. -Its success in ieclring need{ul la\vsvaried. The ldu' creating the liew Jersey State B_oard of Children'sG,.u.diu.r. .n,as eminentli rvell suited to the need if sought to lili.GUardranS \\'aS emrnentlY lYell Surte(l tO tne neeo rL sougllt t.() url.

On the other hand, theiarv creating the. Neli' /9.t."y State .l)epart-On the other hand, the law creatlng tlre. i-\e\1' 'Jersey Dla.re,l-reparL-ment of charities and corrections fell short of the association's de-sires. I i did. hon'ever. inaugurate a new era of State supervlslonand b.y i ts very defects helped to pave the way for t l re s t ronglycentra l ized program begun in 1918.

The 1918'la# creatinq the State board of control of institutionsancl asencies. with certain amenclments at di{Ierent times, had beenin opEration seven vears at the time of the stud.y-a pei' iocl longenouqh to prove, in 'par t at least , what could be acconr | l is l re, I t tn , lerits lirovisions and tb suggest what might be done to improve itsadministration.

RESULTS OF SDVEN YNARS OF CENTRAL CONTROL

ln 1922 a report' on the accompllsnments or _rn_e oepartmenf, olinstitutions anil agencies for the four years.enclec]-Jqne- 30' 1922'' rvas publ ished. U-s ing th is repor t as a basis , wi th srrch c l tangesarr , l ic ld i t ions as seem"nec." .ary, the wor l< of the t lepar t tnent rnaybe reviewed up to 1926 under'the headings followed in the 1922IeDort :

i. 1.tr. establishment of a coordinated department with a strongfunctional organization in place of a prrrelv irrvestigational anclre l roI t rng agencv.

firir iE tlil foirndation for all that follows' (For a discussion of

1 on the accomplishments of the departrnent ofencies for the four vears encled June 30. 1922.

Tn 1922 a

this rroint see p. 13.), - ? n r r ' ^ r -Z. The poiic^y of Jpecialization of service bv institution.This h'as o,id",l ireatly to the value of the institutioThis h'as o,id",l greatly to the value ot the institution's service.

(For discussion see p.22.)' 3. The installatioir of efficient cost and consurrlption accounting

systems for each institution.

1 Four -Jeat . Summary o f Repor ts o f tbe Sta te Board o f Cont Ic I o f Ins t i tu t ions andAgenc ies (June 30 , 1922) .

34

t -

Provided by the Maternal and Child Heatth Library, Georgetown University'


rhis has becn helpful,,but.stil l remains open to improvernent.1:,.I ' l:g.ovision 6f administrative codes'ant.l

"f j"t'o'offi. u,.,a

nterrt svsterns.

, This"is ll igh]y desirable, but has not worked out so ideallv as hadbcen hoped. ' rhe stare civ i l -ser ' ice commission has made" a Iargccorrtribution in this, endeavor, particularly i" ttr"-"al".irnent -ot

gra, les and salar.y schedules.. ,5' ,centraiizatibn of policy making with decentrarization of admin-ls I I 'a t Ion.

This centralization has been a most difficult undertaking butno\y seems in a fair *'ay torvard rvo'king to the ."tirt""ti"" of ailconeerned. (See p. 21.)

-

6. The substit ' t ion 6f prevention and remedy in place o{ non-remeilial custody.

,- ,Ill:,ryu"ent; an ideal towarcl .which the department is rvor.king,

but lhrch must require many years for, complete attainment., . ' r .

l he pohcy o l ' , r ' es to ' a t i on an r l ad jus tmen t t h rough bo t l r i n . r i t r r -l ronal program ant l ear .efu l paro le.

such a pol iey requi res long exper ience and great caut ion to at ta insal rs lactory resul ts . .undorrbtedly the abol i t ion of pr ison contr .at . traDor was a great garn.

8. A series-of staTe-wide surveys of social probrems and resour.t.es.^--Il.?u

su'veys,have been made"by outside u'gun.iu, "nJ

frui" giu."New Je.rsey a better_per,spectrve on its problems than coui-d beobtr rned otherwise. rn the inv i tat ion fo i and the promot ion ofj-lesg surveys ?.ve,ry, comrnendable spirit of progress u"h

"oop""utionrlas Deen manrtestecl.9. rnspection and super,vision of local public ancl private rvelfare

agencres.

Tl_: d: , l l f imenL,has p luns for betrer organizat ion and wider appl i -

. i t t ror ot thrs wor ' l< rn the near future rvhich shorr ld pr .ove of nr i rehyalue to all concerned.10. cooperat ion between Siate departments for tLe sol r r t ion of

l ) r 'o l r lerns or comnlon. tn terest .

!_l!h cgop91at1o1 has made considerable headway ancl holcls great

l ) l 'omrse Io l , the Tuture.- 11. successful handling of a large and diverse public-builciing

program.This leflects great.credit on those in charge of it.1?. .Adeqrrate.publ ic i t5 . on - the State 's pr .oglam.l t rs betreye( l lhat u go. t l lneasur .e of sr rceess has been achievet l

in the field of constructive p'blicity on the stateb p"t11.-*"uur.u-ork.t

13. substantial improvements in both plant and equipment ofthe State institutions.

Much has been accomplished in this field.

,^_1a;,Tlu promotion of cornmunitv interest in ancl responsibil i t.v

Tor r ts own socla l problenrs.- This represents one,of-the clepartment's most commenclabre policies.Realizati6n of this ideat necesiarily m'.1-iak; ;;;il-1il;'JrlJ g..u,patience. Each advance matle is" an aceompti.ttr-."1

"1?ist-r"t,,importance.

! These 12 headings en(l the official l ist giyen in the 1922 renort.

Provided by the Maternal and Chitd Health Library, Georgetown University

36 N. J. CHILD WELFARE-STATE SUPERVISiON AND CIVIL SERVICE

institutions or

The New Jersey State Board of Control may well be proud of themeasure of success achieved in its various lines of effort. Its pro-Eram calls for much valuable constructive work in the future rrhighivill tax its best efforts but which also will contribute materiallyto the raising of social-welfare standarils throushout the State. aseach part is"achieved.

RECOMMENDATIONS

It is unnecessary to repeat many of the recommenclations made inconnection with the general treatment of policies, organization, andoperation of the State board of control and the department ofiistitutions and agencies. Ilowever, a few recom.tr"idations forimproved organization and operation may be noted, as follows:

1. More complete understanding and more effectir.'e cooperation inthe division of labor should be rvorked out with each State depart-ment whose interests touch those of the State board.

2. In matters concernins the internal administration of Statestitutions or agencies full recognition should be given to thesnonsibilitv of the local boards ofmanaEers and to th-e sreat value

lnstrfutlons or agencres rull recognrtlon snould lle grven to theresponsibility of the local boards of-managers and to th-e great valueof developing the initiative and interest of the superintendents.

3. Friendly supervision of both public and pfivafe local socialaEencies and institutions should be made more frequentlv and thor-oughly,ghly, rrs eontenrplated in present plans.

4. fn dealins with the orsanization of the department of institu-4. In Ctealrng wrtn tne organrzaf,lon or tlle departmenl, or lnstrtu-t ions and agent ' ies i t rvas suggested (see p.21) that cer ta in adminis-trative sections (those concerned 'with filing, auiliting, and collections)might be consolidated nnder one division and supervised by adirector insteacl of bv the commissioner. so that the commissionerwould have more fr"eedorn for outside

'duties. One of the most

important of such duties would be that of keeping closer personalcontact 'lvith local boarcls of managers and the work of theirrespective institutions antl rgencies.3 Such contact would promotethe morale of tlie entire organization.

In 1925 the results of ir rather compreherisive study of public-rvelfare clepartments throughout the l.l-nited States were published.In a chapter on attainable standards for State departments theauthors make the follorving statement regarding the branches ofpublic-'rvel{are rvork that thiv regard, on tlie basii of the study, as airinimum for a well-balanced department.

\Yithin the State department of publie welfare there should be at leasttlie follorving bureaus or divisions of rvork:

,\. Ilureau of chiid rvelfare or children.Ii. I:inreau of mental health or hygiene.C. I'lrile:rt of institutionai supervision or control.I). Ilureau of county or community organization.I.l. Ilrueau of reirabilitation or restoration.I,'. Ilureau of education, promotion, and publicity.n

lYith this list as a snggestive standarcl it may be worth while tomeasute tlie olganizatibn of the department of institutions anclagenc les :

3 l 'he ne$ ' comr l I i ss i r rner r l read l ' I t : rs made grea t p rogr tss in th is mat te r .a ( )durn , I Io \ \ ' i l r ' d N. . rnd l ) . \ i ' . \ \ ' i l l n rd : 'Sys ter i rs o f t 'ub l i c \ \ ' e l fa re , p .150. Chap€ l

Iritt. N. c., 19:,1;'r,

Provided by ttie Maternal and Child Health Library, Georgetown University

o. l

el


4., Bureau, .!f child we_/fare.-IJnlike most progressive rlepart-ryents of public welfare New Jersey's department, ha. no rrnrt evenclosely_ approximating a bureau of child welfare. rt is true that theterm " domestic relations " covers in a general wav certain of thefunctions usually grouped. unde_r this hid. The fresent boarcl ofchrldren's guardians exercise.s the greater part of such usual frrn,.-t ions, and yet i t has a subordinate posit ion in the organizat ionof thedepartment. (see chart faeing p.-20.) with no ai tempt to orrt l ineany ex_act solution for this probleh. w.hiqh involves manv'particulrrrlydifficult aspe_ets. it may be suggested that the state lioird ean nothope to render the utmost service possible {or children until somcsatisfactory-eoordination under one responsible head, of all the func-tions logically related to a ehild-welfare brrrearr has been affected.'l 'he new eommissioner reports having plans under considerationfor the creation of a divisibn of child ieifare._I1_. Burecnl of rnental, hygiene.-The work of such a bureau is in-

cluded as part of the large'program intrusted to the divis ion of edu-cation and classification-

C. Bureau, of in*tdtutional, superuirion.-The division of insnectionand one of the sect ions under^the di ' is ion of parole and ddmest icrelations include the functions placed here. Plins nol under con-sideration by the new commissioher look toward the consolidation oftheso lines of .work, with certain other related lines, in a nerv andIarger inspection division.- D. ByTZay, of eomnrwttity organizati,on.-No clivision correspond-ing to this is in existence in the depaltment. The assistant dirlectoro f the d iv is ion o f paro le rn t l , lomest ic re la t ions car r ies rnnnv o f t l reduties which prgpprly_ fall here. Considering this beginning antlthe emphasis r ight l .y placed on commrrni tv organizat, ion bv the stateboard i t would seem feasible to c.eale srrch a t l iv is ion to ineiude (, \ 'erv-thing falling under this head or closelv related to it. Such a moi,ewould.help to.make.this pol icy_ concreie and clear lv rrnr lerstood bythe publ ic, and should mater ial ly aid in the promotion of much de"-sired county orsanization.

E. Bwuiu oi restoratiar.-This term may be intelnreterl to jn-clude the work done by the division of paiole and rlomestic relr-tions, assisted by the division of educatio^n and classification. .Ihervork of the department of labor,s refiabilitation clinics should beclosely coordinaled with this program. Bot lr t l rc Stt tc clenalrmenrof educat ion and ihe Stale department of l reul tJr corr ld contr ibrr temore than thev have done in the past torvar.cl the t-ork of restoration.- F.. Qu,rqy.bf educotion, prontotion. ond publirit11.-The activitiesIogical ly. fal l ing to such a, j i t - is i . ,n har-e been scattered about amongvarious individuals of the depar{ment. rrnder the genelal supervi lsion of the commissioner. Such activities should

-not be too nar-

rowly. confined. They -might be made more efiective. however, ifcoordinated more closely, espeeially in the publication of regdlarreports and of the Quarterly.

THE GENERAL PROBLEM OF SUPERVISION

. Th_e ̂questio4 9f just what constitutes supervision as differen-tiated fiom adminislration and of just how iffectively s49 central

a

IL.


3E T\. J ' CI1ILD WELFARE-STAIE SUPERVISION AND CIYIL SERVICE

board can exercise both- functions, has not yet been settled to thecomplete satisfaction of all who

.are interested. Nerv Jersev has

created an unusual form of organization, with boarcls of mariagersadrninistering^ their r_espective institutioni or agcncies under a cen-tral boa'd of control. Each of these local bdar.ds exercises bothadministrative and supervisorv functions. The distinction bet.weenthe respect ive spheresbf author i t .y of ccntra l i rn , l in , l iv i , r r ra l boardsha-s not a lways been so c lear as could have been r les i .er l . Thorrshth is problem now seems l ike lv to come to r sar is{ucror . r . so lut ion ' i tdoes not entirely settle the {uestion of supen'i.ron ri I functiondist inct f rom athnin is t rat ion.- can a board of t .ontro l sr rccessfu l lver i t ie ise i ts own l 'ork? Can i t per fo lm addi t ional f r r r r , . t ions of "apurely advisor .y bol rd ? That the commissioner r .ccognizet I thereal i ty of these | roblems is shown in the fo l ]orv i r rg : t i r lemenls:" ' fhe t lepar tment l ras a imed to obviate the common cr i t ic ism thatrts type ^of organization_precludes satisfactory critical revision ofits own functioning," and t( Frank criticism, coupled rvith construc-t rve recommendat ions jo e l iminate impr.oper condi t ions, is t l re onlysound basis for administrative progresis.,'u

",i,1"si;"P,HSfl'Br1;",",f,ltiI"S'"ll?T--#li*):hf"fli.le;lv4 (i:tJi;..r:,ir,rrr"/*€* rcrsev

Provided by tlie Maternal and Child Health Library, Georgetown University

CIVIL SERYICE IN I{EW JERSEY

THE PROBLEM OF CIVIL SERVICE

The extension of governmental responsibility for social welfareinvolves a corresponding grorvth in the varietv of government ac-tivities, requirin! atteniidn to nerv problems in [olicy making,administrative control, and supervision in order that the growingsocial program may function effectively. Though these aspectshave received much study and substantial progress has been macle,not all nor even the major problems have been solvecl to the generalsatisfaction of those intimatelv concerned. The ranidlv

{epa_n$ for quali{ed_personnei for .the new agen_ciei beisatisfaction of those intimately concerned. The rapidly grorvingdemand ror llrlarrne0 personner ror rne new agencres oerng estaD-lished has not received the attention it deserves. Unless such a per-

iab-

sonnel can be secured and letained iittle real progress cirn be expectedin the aetual funct ioning of eren the most rvisely planned programs.Both in prrbl ic service "arr, l in pr ivate enterpr i ie 'ef f ic ient 'per 'sonneladministiation has become a mdjor factor in-the success of^any con-siderable undertaking. lvith very few exceptions either this prob-lem has received no recognition commensurate rvith its imltortanceor it has remained in a fiioneering stage even where necessity hasmade its recosnition unavoidable.

Civi} servic-e, or appointment on a merit basis determined bytests. was establ ished bv t l re Nat ional Government in l8x3 to re-move publ ic petsonnel- f lonr thc f ie ld of pol i t ical spoi ls. TrvoStates'(New York and nfassachusetts) adoptcrI the plan in 1883and 1884. To-day, after 43 ycars, only 10 of the 48 States haveadopted civ i l service at al l . ant l of these l0 probablv not more thanO oi ? have pubi ic-personnel adnrinistrat ion of a ieasonably highorder. Because of fhe ver.v great importance of obtaining zincl ie-taining qual i f ied personnel for State chi ld-rvel fare undertakings theNew Jersey practice has been analyzed in some detail. A-largepart of ttie pirbtic, both inside and dutside the Government, regaid^civil

serviceis hai'ing two principal objects-(1) that of reivar"tlingworthy individuals for pasf servibes in "behalf 'of

the public, as n'itlnessed by veterans'preferences, and (2) that of plotecting the tenureof office"of those in^the public'service.' The really impoitant objectof civil service is to seeirre the most efficient rrubiic service po..ibl"at reasonable cost. Civil service at times miv be subordinated topolitical interests, and its processes somctimed mav be slorv or itsieiections imperfect. The experience of the Fed6ral and severalState and citv governments, however, indicates that it has sub-stantial advantages in the long rt n over any other svstem vet de-vised. The very-fact that it i!' generalh free frorn politicaf parti-sanship enhance"s its appeal to th6 best type of potential goverimentemplovees.

lVell-directed publicity in regarcl to positions to be frlled morenearly and more effectively reaches the entire field of availrble

39

Provided by tlie Maternal and Chitd Health Library, Georgetown University

40 N. J. CIIILD WELFARE-STATE SUPERVISION AND CIVIIJ SERVICE

talent than can the p_ersonal. knowledge of e'en the best-informeclfj,illlilT: - 9,$ pubt ic irv disco vers a-u a I ftiett i

".t ; "i J *i.""hri^g'i,]take examinations,-whe.e t-he executir-e has no itlea "i

lh;i; l*,.,*n.".riecent progress in the development of objective testing-i. ""piaiyimproviirg lhe efficienc.y of .ol[.ii;;.

"-

A certain amount of inflexibility in the procechire of civil serviceand_a greater or less tenclency t6 protect'ttr" i.,,r,irJ-J"ine{Iicientemployees are falrlts due morebften't' ua-iui.t.oli* ti--iiiiy trru.,to inherent weaknesses in the system. A.L;;:i;; i...--.n

""agreater attention to the details oi personnel ,r',.;;E.;rurriî" uottpyltil and, private experrence rre raisi;t ;;ii-;;itii."--'utu,rau.a,ano srrengthentng the secul i tv o{ i ts foundat ion_.

A su'vev of c iv i I service in Nerv Jers,eJ is. j r r- t i t ierr br- the needfor knowledge on the actuai-;;;i.ld;i purrrrc-per,so.nel adminis-tration, since- -b[ew Jersey represents one of the nrost e-rtensive andprogressive state administraiions in this n.ta.- .-rn.

-"j"r'"-prr-.i.has been put on the problem of providing satisfacr oiri:-'pers'onnet inthe social-welfare n"ia. yiih r ["iii."i'.?"jt J;;;t ir,*'i"r.i.u"_ments and the shortcomings in these elTort"s. ao"ri.r.;;Lie' acren-lt:P"$o, has beendevoted-to the commission's r,vork in crassificationancl sala.y regulatro', as these have been developecl to an 'nusualdegree in New Jersev ind ur" orp."t" ol -uJo" rmportance rn modernpeisonnel manasem6nt.

The civil-seriice commission in l{ew Jels_ey has follorvecr pro-gressive policies in most re.spects anilhas avoicldcl il.;;;";;y antag-onrsm by. a cautiouq use of new authority. rt has i"rr"it.airre oesrpractice in most of its rures ur.l ""goiuLo".t

u"d i;-;;; parts ofit1,1gltins and certifying. .rl lh" "*-lo.iiot of lrersonner foi social-werrare posrtrons of- some kinds the comrnissi6n has falen belowthe- high-average it t u. r"ui"iui"",iîoi. ttrrer services in the state.

It- haslooperatEd with ilepar:tmeni t uJr'r" ,'otterr-o] oileu;"irutiorr.The comrnission has not b'een abre to assJ ilTh;;;# #iirp"orr"g,n-Tll'"î.:"].:,:,ll'ol5T.L*search. .,npr91".u"'.i,:;i;,";; J.,d'i#;,ru"_,:j::,:j^y::"oln.g, r.c,nttrrrons becarrse oI the lack ot"sufficient ipp.o_p.atlons for such pu'poses. r1s 'ep-orts are excellent, but its generalprrblicity mighr be inrpr.oved. i 'he *.ort of tf,"';;;;;r3i"" ismate.rally strengthened by a sound and riberal empioyees;-i,etire-ment system.

Provided by tfie Maternal and Child Health Library, Georgetown University

EARLY YEARS OF CIVIL SERVICE IN NEW JERSEY

New Jersey is one of the few States that have realized the impor--tance of edcient public-personnel administration. 'Ihe originalNew Jersev civil serviee

^Iaw was enacted in 1908 and was based

on the besfi uractice of that time' ft rvas modeled largely on theIllinois, Mas'sachusetts, and Nerv York larts but. rvas applicable tothe State and available to local-government services rvhen adopted,as described on page 61. This act has beel adopted by. nearly allthe more populous*counties and by most of the large cities of theState.l

The commission was subject to an investigation in 191G17 whichresulted in its reorganizatirin by a legislative committee. The inves-iigation was not, iio.tt"u"r. an attack on the pr.inciple of .the meritsv-stem. and the cornrnittee's rel)ort contarned several lmportantr".,.o^nr"nclations for strengtheniirg and extending the civil serviceIaw. The comrnittee r.eportecl that it {ound suffieient evidence to

rrrou" *ut tlre Nerv Jer.sey Civil Service Commission conducted itslifioir. economicall.y antl efficiently nnd on sountl business plincip_les,and fhot the civ i l "service law had a wholesome and salt t tary ef lecto" 1h" aclministration of the State's business and operuted to thegreat advantage of the 1rt'ople of Nerv Jersey.!-

I t t tgtg t l re ' iegislature passeci the,necessury-arrrendments to make."oii of the cofrmittee's i 'econrmendations effective. The commis-slon;s authority rvas extendecl to include classification in all its juris-.li.tion. and cbntlol of compcnsation schedules in the State serYtcen"d .".h local services as rdight choose to benefit by it. A.Uhoqghih" .o--i"sion has achieved'-unusual success in both classificationond .o.np"ttsation regulation local authorities have not elected in

g."*'1.1 t'o profit hy tii" authority ,9,"?l!'.1 ::11p.-"::t^':::, *l-thj;.e.ie;i i; pt"ni Lv iile arrthority to control compensation. At thisi ime the commissi"on employed_ speciul ly t rained personnel .nten ̂ toi ime the commissi"on employed speciu l ly t ra ined personnel nten to

assist in pr.eparing n compl"te c.lassifi-cation of the State service. AsAs;;;"tt ii ft

" irivestisation the political atmosphere was cleared

civil sprryicA rvrs nler,e) r,n a firrir founclation. and a ne\l' era oa resu l l , o I I I le t I IVgs t l t la t lo l l t r re Pur - r t rudr 4 ruru- l ' r rq / re rY4r wru4rLut

civii ser'"i.e was placerl <rn a fi-rrir founclation, and a nel' era of

usefulness for it 'was inaugut'ated.

lFor an ou t l ine o f ihe or ig in r l t i v i l serv ico lawments and cour t dec is ions , s ,o ,1oo, uu t * A . 1 r . i7

e ReDor t o f the NeW Jersey Stare ( ' i v i l Sc lv i ' eto the-legislature, session oI lCli, D. +J.

'Irentun,

i l \err Jersey n'ith importlnt amend-

Commission Investigating Cbmmittee19 17 .

4L

Provided by tfie Maternal and Child Health Library, Georgetown University

THE PRESENT SYSTEM OF CIWL SERVICE IN NEW JERSEYTHE CO}IMISSION

The civil-service commission consists- of five members appointedFy thq. governo.r. with the consent of the senate u;;t;;;";'r,.ble bvhrn after_prrbl. ic-hearing. -The members must be r.esidents of Ne#/s":"y_ and nrust h_old no other oflice of profit under the State or. theunited states. l'hey recei'e s,lar,ies

'of $8,500 ,, r-oa,..-- rrith an

additional gb00 foi' the -pr,esident of the comrirission.'-ili. term ofof f ice. is f i r -e year ,s ant i t [e merrrhers a le e l ig ib le t " " - r*" l , i ro in l . lnent .(Jne tern l cxpl res each.year ' . _ , \L t r re end o i ' the ternrs r in ' , ler . rvh ichthe nre'rbers we.e serving at.the time of tire studv one comrnissionerwil l have seryed tt

1,.-1t* tr,vo 12 y.u..

"".t,;;.J 10^y;r, '".ra orr"5 years. Tlre comrrrissione.s _repi,esent r .r 'ur.retv of exlrer.i"n..el

i l : l ldi-",g ne\\ 'spaper editing, lari,, real estate, railrvays, insur.rnce,

and b&nkrns.The. commissioners act in legislative and iudiciai capacities. Iiachcommlssioner is assigned to"one of the il;;;h-;H;;;h*h a,reiocated in the principll _cities of ttre state. These i""".rr'olii... u"uopen__elery week day and^here the commissioner .t-,*.f. i lrov ,lolls andh.andles a-la.r'ge 'otJme of orrrer '";;i;;-.iiir-:;;i;;;;iri.'

'ir, o,rai-tion to the branch-oflice 'wo.rr trre enfi.e comrnission ,ri..J. formallyin the Trenton office on Trresclay ot uu"r. i""J;;;;;i^;; i" ,rro""members abtend other. confe"en""! ancl hearings on varlolls matters.Expe. ience in oubric administrat i" ; h; ; ; ;ai" ; i ; j ; ; " ' i r . , " . ,ut ,oi . ,

l l lt q pa.id boarb o' commissio" fun.tio;r'i;;;;;fi..:io"nitu'in"r, u':j5ll]1itr:n,under a single,commissioner. qrralifie,l for rh"e .,uorl, byf,1li:1{--:ld-rexp€rrencc who could exeriise rhe r*..".ru"y quu.{i

l"li'fl!1T""ifl ,u*:T,?,\.:"i,1'.1ff :r"f :*.n::f rommission,"ashe'.{ nonpolttrcal, unpaid board appointed b}, the goyernor, with con-sent of the senate, piesents cert*id ar.lvantagcs o.r:er tlre prn."rt ,y._tem. rf chosen for their knoivleclge oi-tlru-ro"i";, fi;I.i, oi publicserviee-and qual i f icd b1' .esper. ien.Jon.r iu. tg,n"ni lo. ' i i , i " r . ' , { i . r r , i r"and judicial i 'uncl ions nr t tx, , .o ' - , . ,* ;r i lnniheine*be."

"r l , u, ,?i s.-" tassistance in securing publ ic "1r1,r 'uru1

ior soun.r p.r .onnui a-dn, inis-T,l,j::-l:i1?l{ oi'n, n'ore iri,'.' ti*i p"ii i" r'.r'io,r.1:J,,,,,prual t_' ln^l::ponsrll. l lrty 1'or certain clc' ical n'or.l< is usurll.v f,,rrni to be arr('mbarrassment rn securing outstanding pe"sonaiities for suchpositions.- .

The ehief examiner an_d secretary is appointe, l bv thc commis_sion unrl is in tlre elassified serr.icei I{; ' ;;; l ;; l i .ooLi"rnnuutry.I:, );,: :,{ l l ," i" l*1 l l tet o as assistant ;hl.+;';;;,,;; ' ; ' i . l i ,

". p.o_l i l o ted to I r r s 1 ; r ' esen t pos t_ in 19 l i on t l r e dea l l r o f t he o r , i q i na l ch ie f( ' \ r l r rnrpr ' . * ' l r ' I rur l t . r 'e t l , , lu l ing t ,he commissi ,n 's f i rs t n ine y*"ra.

,S r t c l r - t ' l r i l i r . v i n l r o r : unn -e l l r as rnade poss ib te . re , r , l v - l , i ; ; ; ; ; an t r al r l g l ) e I ' g I ' i t r l { , o l : p r . \ ' t { . e t han i s r r s r t a l l v fOun r l .T l r t ' L ' l r i c f e l i r r r r i r r r . r . ; r r r l s e r . r . e t a . v i s a r r n i v c r . . i l ' g r a t i u a t e r n c l a nr xpe r i ence r l i r , l r r r i r r i s r . n r ' r ' . I n adh i t i on i n t , ; . - i i r i o ; ; r l ; i , " ha , '

acted as co'sultant o'-pc.sonnel problems tor several other civil-ser'ice conmissions in tfie L]nitecl Stut". u"a cu"uaa, uni"'t oia. i,.'-

t q

Provided by tlie Maternal and Child Health Library, Georgetown University

CIVIL SERVICE 43

!9fll"t posts in -several. natio_nal pelsonnel organizations. He haswrtten exrensi 'erv and is rrertr us an autrror i iy- i r ; ' iT; ; ; ; id. , 'The chie{ examl*e. und.". .uiury_ir lni" t execut ir .e and at.rminis_trative officer for thecommission, ufra hi;

"fn.;;;;J;iufr'JrJl""otuain the state house at Trenton.

THE FIELD OF CIYIL SERVICEMassachusetts, New york, Ohio, ancl New Jersey extend the op-eration of their state civil-service to--i*.rorrs to co'nties or muni_cipalities,^ o' both, in order th"t th;,;"ii""

-ptiiii""r ".,iuXirri.inn.may benefit from i pe.sonner organizaiion .with the size of staff andcompleleness o1' equipme.nl a1d "exper.ience that rilouil 'rr""^-i,.r, rr*_yond most of rhem i{ai,vr_a.u3,r tlo-t..rg;;t il,";'rhi. i" iir. rru.tmeans of assu'ing eflicient pei'.onnei admrnrstratron rn most c'un_tieq,cities, o"_ smaTle. civil diviiio;r:--

..*'

the r \ew Jersev act may be adopted. by,rcferent lunr vote for arrylocal go'e'nment. (see p. 6t .y t i ; i f r r in 'uuorrt t rvo .1 'ea's of i rs en-actment, Essex county., East c).ange. u".r-i 'uir:n,.ii i, i"r,l",r"it. .r'[rc

fjl:l:lg.r"bto strorvs"tlre dares ;f-;,;;i ir" of the Ne,,l jerrev ,.ivilse-rvrce act and the pe.rorrs enrpl ,yet l i rnder. tLe at. t in t i re uiuu. i^which the la.rv is opei,ative: -

TABLE 3'-,ote of aitoption anil-e,tafi of cit:il serl4tcg-,aw in New Jersegr bgareo in which, operutiue; June 50, lgZB

Ares of operationDate (adop-tion

Persons employed o

In classified servic€

90.797.797.097. I90.294. 0

c 98-2

ln un

Popula-tion,

census ot1920 Dsilied

ser vice

1 6,268I 3,885

u.2e5 .9

3, 155,9002,111, r58

991159

l9 t6r 9r0191 1191119121914

210,703052, 039{)29,154159,881259,171200, r57

361r,205r, 378

23r239312

3981,233t ,421

236265332

C i t y - - _ _ - _ _ _ _ - - _

(,1)447680

3,2414,662

98399

l, 026

r 298

: i[ii,E!iq".q"&Tiif,3'.],,t,:i'Ji f,!!:'iifl iii :iTi",l"lM; ftl'l"":lT."t camden.

: P-oes n9t inelude.laborers employerl by tbp cily of Camden.t rersns employed by the Newark nodra of briuclt iJn-G"oi inctuOing teachers).

r16, 30050,71095, 783

298, 1034t4, 524I35, 875

7,274119, 289

(d)

9 1 . 396.599.299.095.29 2 . 998.5

97. 3

e 670408tt56

3,2 t44 , 6 1 6

93692

l , 0 n

290

192319101913191119101912191119rt

19i2

3 e I2 4 )

ril;l

,olTI"F&?"?Eti*1"J,,lLillt.Eii.,li"i""ii"l,l","."df ;lMS.111gipnr League, tge eovernrnena Bts;;;ijTi -d";i";:1'"T:&,"'*R"fffj]itli*".S9,N$:'"??i,lrerorm Leagu€' the Natioual.Assemhly o_f civil S*rvic"

-c,i_i".|'.ii.i"*,'i"o tie'iiuroau ot

iff'Tniol, ?,li'] Administration. se-e Pu6lic-persoriner--studi;d;;;f?: 'ri8.

i" rJa"u:34563.-27-__4

28435

2620

205


44 N. J. CI{ILD WEI,FARE-STATE SUPEHVIS1ON AND CIVIL SERVICfi

bythe governor rvith or ivithout legislative consent: (B) ali'officersand emplo inted by the senate and/or assembly; (a) all

tr'rom the foregoing figures it will be seen that not only the Stateas such but also over two-thirds of the population bv counties andall but four of the cities .with a_ population bf 5O,OOO dr above (thesefour cities combined totaled only 1figr+A8 by the cen-cns of 1g20) usethe services of the commission.2-

fn the jurisdictions shon-n in the table on pnge -l;J. 84 ner cent ofthe public personnel comes n'ithin the clasiil i-e,l t.ir.i l ierr-ice for.the State, 96 per cent for the eounties,, gE per cent for. the cities,and 97 per cent for the Nervark school'district.

The extent of jurisdiction is further emphasized bv the fact that$30,7^07)052.29 (89 per cent) o_f the entire_State pay rnil3 of gB4,Bg0,-310.02 went to personnel under ciassified civil-seivice control.

The law excludes the, f-ollowing persons from the classified seryice:(1) .All officers elected by popular vote; (2) all oflicers appointedbv the governor rvith or rvithout lesislative consent: (B) all^officersancl emptoyees appornted by the senate and/o l lssenrblv : (4) a l le lect ion-of f ieers; (S) heads of departments. boards. rn, l nrembei 's ofcommissions; (6) all law officers^of.municipalitiesi (i) all militaor naval officers and men: andor naval ollicers and men; and (8) superintenclents, teachers, andinstructors-in public_school"s- and State institutions, county schoolsuperintendents, members of boards of education, and policb magis-trates.

The trend of amendments from 1908 to the present time has beento bring an increasing proportion of public personnel under civil-service control. /

NEW JERSEY CIVIL-SERVICE ADMINISTRATION

CLASSIFICATION OF POSITIONS

Classification of positions on the basis of jurisdiction werefol lows: (1) The eiempt class; (2) the competi t ive class; (3)noncompetitive class; and (4) the labor cltrss. (For a clefinitionthese fonr classifications.see Appendix. pp. :r8, 59.)

Classification of po-qitions on-the bnsiJ of clutie,s antl responsibil i-t ies rvas made mandatorv for the State antl local services subject tothe act by 1918 amencl'ments. The section relating to thc" Stateservice provides as follorvs:

The State civil service commission shall have the porver and shall provideby rute, adopt, and maintain a classification of the State classilied service,based on the duties. rvork requirements, authority and responsibility, andrequirements as to training and experience, rvhich classi{ication shall includeschedu\es and stand,artl speciflcations of serlice, gtades, titles, duties, qua\ifi-cations, and compensation or rates of rvages of all ofiices, grsitions, and em-ployments in the State classified service, and to provide and establish deflniteprocedure and regulations governing advancement in compensation or ratesof s'ages based ori meritorious action, efficiency ancl seniority, and lines ofpromotiou through clifferent grades of the service.n

The folloiving terms and classification were aciopted in pursuanceof the law. The telms are rather unlike those commonlv founcl be-

2I 'our teenth Census o f tho Un i ted Sta tes ,1920, \ to l . I I I , Popu l . r t ion , pp .Washinston. 1022.

3 Sixteenth Annual Relrort of t lte Civil Service Commission of the StateJersey, 1923, p. 34.

aN. J . , La*s o f 1918, ch .24 , sec .2 . A spec ia l sec t ion app l ies s imi la r lygovernment servic€B which are under civil seryice (Laws of 1918, ch, 54).

645-6.16,

of New

to local-

Provided by tf,e Maternal and Child Health Library, Georgetown University

,rynd

AStheof

CIVIL SERVICE

cause of a decision to retain those that had been in use for a con-siderable time. These classes arrcl grades are fixed by rules and maybe amended from time to time bv the commrsslon.

CL;\SSES OtO "nnota-STAT'|E

SERIIICE

SscrroN I. Class defined: The term " class " is rrsed to designate functionaldivisions or groups rvhich are deterrnined irre-spective of departmental orgrrni-zation or lines of authorit1', and includes offices and employments having dutiesof similar lines and character.

45

SEc. II. Grade delined: The term " srade "of a c lass or sen- ice rvhen appl ier l to t l le Slatervhich has been classified and standardized24 and,54, P. L. 1918.

Snc. III. State service definecl: The term " State service " shall include alloffices, positions, and employnents in the classifled civil service of the Stategovernnent.

Src. IY. Classes and grades established: All offices, po-sitions, and employ-ments in tlie classilied service of the State are hereby arranged into classesand grades iiccording to the general line and character of the work involvedin the respective duties thereof. Within each class there are established grades,each grade comprising offices, positions, and employmcnts having duties ofsubstantially similar authority, importance, anrl responsibility. The classesand grades rvithin classes, in the classified service of the State, shall be asfollo\TS:

is used to designate a subdivisionservice and any municipal serviceunder the provisions of chapters

NuEberof grades

I-Inspectional ---------- 4M-Domestic and institutional---- 6N-Guard and correction officer-- 3O-Custodial 4P-Protection and conservation-- 4Q-Engineman------------,----- 3R-Ski l led labor-------- 5S-Labor 1T-Iluseum-- 3Y-Institutional 5 teachins 2

are a few

Class Service Class ServiceA-ClericalB-Engineer ing -- - - - - - -C-Agi'iculturaf aeo"f opn u;t-- - --D-Ph;'sieia nE-\urs ing ant l aI rent l i r rC---- -__F -Labo ra to l ' y - - - - - - - - ___f ' l -Lcgr l and judi t . ia l -H-LibIary_-I -Publ ic i nformu t ion--J-ChaplainK-I i lvest igal ional and eslmina-

tion

l\Iost social-n'ork po-ritions are cla,ssified in the investigational and examina-tion service (K) ; those relating chiefly to health or occupational therapy fallnnder the nursing and attending service (E) ; matrons are classed underr'lomestic and institutional service (I{) ; and recreational work for the Stateinstitutions under the institutio'nal teaching service (V).u

Nilmberof grades

76

+1i)it

41

i )

tions and duties reqnired for given positions,Salary schedules ale devised after careful study of the qualifica-

siven positions. the compensationusually. paid for, similar service in general

compensationancl the fundsusually parct for simllat' service in general practice. an

available for salaries for these uo'sition-q. ^

Follorvingexamples from social-service scheclules:?

1. Superyisor. K-III. 'rviclows' pension department ofthe State board of chilrlren's uriardians. $igO to $fgOper nlonth.

2. Social investisator. K-I. State board of children'sguardians, $120 t;$150 per month.

3. School census ofrcer. K-III. Newark Board ofBducation, $2,300 to $2.900 per annum.

5fn the 1926 schedule of oxaminations the term "vocational" reDlaces institutional.€ Thirteenth Annual ReDort of the Civil Service Commission of the- State of Nes' JersrThirteenth Annual ReDort of the Civil

0. DD. 233-236the State of Nes' Jersct',

1920. PP. 233-236.7 Sel-ected from the civil-service commission's schedule of examinations, April, NIay, and

June, 1926.


46 N. J. cttr,D wELFARE-srATE supERvrsroN AND clvrl sERvroE

4. A-qsistant probation officer. K-III, Passaic Countyprobation department, $1.Rrto pef annum.. 5. P.-syc!{atric social rvor*eri. li-I\', Essex Countyjuvenile clinic, S1,800 to g2J0o t)ef annum.

6. tr{atron, }f-IV, maternitv -unit.

State home forgirls. $75 to $100 per month. plus maintenance.

7. Director of scorrting, athietics. and recreation. V-II, State home for boys,'$17; to g20i per month.

COMPENSATION SUPERVISION UNDER CIVIL SERVICE

The 1918 amendments to the civil service law placed compensationuncler the commission. 's .author i ty . _nluch_tr r t , t ar r , l . . . .e r r " , , " ' requi redLo plt the.nerv provisions_ into-efrect. Local golernments, er,ten atthe t ime of the study, rv i th a {ew except ions, ( :oope.ated verv l i t t leand preferred complete inr lependence of 'aet ion in- t i r is f ie l t l . Regard-the t rme of the study, rv i th a {ew except ions. t .ooneratedand preferred complete inr lependence of 'aet ion in t i r is f ie l . l .ano prererrect complete rnr lependence of aet ion in t l r is f ie ld. Regard-less of the actual arrtho-rity con,ferred upon it the r.ommission* fol-lowed a pol icy of dn 'e lopins th ias rapid lv as iocal onin ioh f i * 'o"elowed.a..pol icy of dcveloping this aspect of i ts locnl service onlyas rapidly as locaI opinion f ivored i t .

A large degree of success. however. attendecl i fs e#orfs in fhpA large degree of success, however, attendecl its efforts in thestate seivice.

- The following statement bv the chief examiner and

secretary will describe this ilevelopment: -

The law under which the classifcation and cornpensation plan is admin-istered provides for almost eomplete control of salary anrl rl:age regulationthroughout the classifietl service by the civil-service Comrnission. rt is safeto say that neither the arlministrative authorities nor the civil-service eom-mission at the beginning visionetl fully flre intimate relations rhat must exist.under the terms of the statute, between the civil-service commission, thebudget authorities, and the joint legislative appropriations cornrnittee in orderto establish and maintain proper compensation control. It soon becarneapparent, horvever, that if proper control wzrs to be hatl over salary adjust_ments its basis must be laiii in the preparation of the burlget cstimates anclin the appropriations for personal service. To meet this situatiorr and toretain effective compensation control a plan of cooperation betrreeu the civil-service commission, the budget authorities, and the appropriations committeehas been developed which insures much more careful attention antl certaillymore cooperative effort with resJrect to estimates and app-ropriations for per_sonal service than is usuall1. accorded this important item.8

fn theory the budget commissioners and the civil-service com-mission meet and decide upon a salary and wage policv for the nextbudget recommendations. _Jn real i ty- lhey rarely suecee, l in acreeingupql a definite policy. Estimates- from depaitments are received",and hearings on these are held by the governbr. The budget as pre-sented to tEe legislature includes detail-ed analvsis of thesJ estimatesand recommendations by the civil-service com"mission.

There are, to be sure, a number of cases each year n-here speeial requestsare presented either to the governor or to the joint appropriations com-rnittee, for special consideration of the amount of compensation for an indi-vidual position. such requests are almost invariably referled back to the civit-service eommission for further suggestion etnd recommenrlation.s

The attitude of the governor is.rvell illustrated by the following:- T'he fixing of fail and adequate compensation for the many employees of

the state is one of the most difficult problems rvhich confronti the-executive

si;"ji."*li:l!.\Hij._1i'{tle$tl:i11133,'31;lTti:t"f.''11$. "'"lBii."bti3,fiti"Jid["iVo-I._.IJ_I. No. { (April, 19:.tb), i. 122., Ibid., p. 123,


CIVIIJ SERYICE 47and the other officers of the state har.ing to do rvith this branch of the stateselvice, Owing to the detail invoived it is well_nigh impossibie io*-ttro

".o"o_tive, as budget officer, and his assistants to investigate trre t<ino arro-"linro"t""of_'u-ork performed bJ' each employee.I rvould, therefore, recommenld tt at the civil-servi.- r \\'uuru, rtererore, recommend that the civil_service commi_ssion, which flxesthese salaries and crassifies the em1.rio5'eeF, hear the requests of itre-heaos .,t.'uDe barafres a'Q crasslnes tne emproJ'eeF, hear the requests of the hearls of

*n1t^lT_"1,:.^3ld institutions, arrcl .dviie i'rttr the goveriror, .n ttutlrrlr." ,r.uvbe closer. cooperation and coordi'ation in the amc,unts fixed by flre commissionfor salaries and the recommendations in the budget messag;.';"rn.practic-e thg commission must certify alt pay rolls before theymay be paid. The rules provide as follows:The comptroller or oilrer fi-sc.l officer of the state or any municiparitythereof under civil-service regulation antr contror srrarr not-oraivl ,i*ilo" i..ouany warrant on the treasurer o' other disb'rsing officer for tfie ilyment ofauy salnry or conDensiltion to any olficer, clerk, 6-pi,i*",

"" Liirn'.'il"..oo ir.tlte classified civil se.vice u.less the estil'rite, pay rolr, or accou,t for such-s.iary or compensation conta_ining the names ot eve.v il..o"*to";;"piia .rrollbLlar a certiflcate of the civil-seivir'e commission tnat^tti"-rr"ia"n*'nameo insuch estima_te, pay roll, or account have been appointed,

"-pf"v"A, "oinstaterl,or plgmoted in pursuance of the civil sei.vice laiv-and.utes, uoaeii'ttre penzrttyprovided in section 26 of the civil service acl.il'The certification of state antl local pay roils provides a most im-

por tan t_cheek-up on the ac l r r r l obsen.an , ,6 o f the ' la r r . .

"r\er ' J.ers_ey ?ppears to have achievcd'nusual success in the ma*er

or orcler-Iy. logtcal control of cornpensation for State eruplovees. l ts

l l f ^y:r[:?ot has been in the field of pronrotions. lhriy eruployees

: : i l : : . lnar . loyal .anr t eompetent se lv iee does nol earn the 'saiary

adr-ances rvhrch mrght reasonably be expected.I )ur ing and _fo l lowing the rate *-ar t ' l re c iv i r -serv ice eommission

rendered notable serv ice to the state in prov id ing for equi table conr_pensn, t ion rv i thout permi t t ing in f la t ion 'of sa lar-v i " f , . i f l i fur ' Wi tnr r ) r s den rons t ru t r rn o f s l r ecess j n t hc S ta te se rv i ce . an t l r v i t h t he g r .ow_ing need of more businesslike ma.agement o-f lolai p"frfi" p"r-4f.,the future should see constant exteniion of the

"o-"lili.io"'i .1r..rr".,

to the citv and county governments as provided by tt i.-p""i "t

tri"law.

SELECTION OF PUBLIC PERSONNEL

^Foremost among the duties of a civil-service commission is that: f_ : ] l fpty] lg wel l -qual i f ied. dependable personnel_ for the publ icservrce. utner tunetrons._ horveler rmportant in t l rcrnselr-es, mustremain subsicliarv to this basic one. ri is, therefo... nf ltre-irtmostj1ry{' l,::..1i t thg need f or ayalifi erl inJt"id.;i; ;;; ri i.' j""".u ilyf,1?:^,",-t,rr-1t.!ne,a.dr-antages of public ser.r-ice shrll be du[y appre_cratec l ._tnat . f f re k lnc l and conducf oI examinnt ions shal l cbminindgeneral c^onfidence for- elficiency ancl fair:ness. ancl that the wholesy*em.of selection shali function smoothll ' and well..,

The-larv provides that examinations shail be free to all citizens ofNew Jersey subject to the l imi tat ions prescr ibed in ru les as to res i -denc.e. ag,q. sex..health-.habil_s. and moral character. For local publicser,vice,errglrl l lrty -rs lrmrted to resrdents of the countv or niunici_palrtv "-rn whreh the sgrviee is to be rendered and from"the funcls ofrvhich the employee is to be paifl.,: rz

J,,.t"l,ld*ib.?:T:T "'rg.",?iff,.l,rltJ:""'sovernor or New rersev, ror the flscar year endlng

tolti"nt]'l|31ltni1.i"'il,l.t6ti'f..,:t or the civil service commission of the state of New JerseyuN, J , , Lans o f 1C34 , c t l . lU4 , p ,800 ,


48 N. J. CHILD STATE SUPERVISION AND CIVIIJ SERVIOn

Examinations shali be practical in _character and designed to testla i r ly re lat ive capaci ty to d ischarge the dut ies of the g iv-en posi t ion.Keasona ble qu a,l i l ications, excl uding pol it i ca I or religio us a ff i l iations.Reasonable oualificati

trst ' rrat 'g'e r i le uuttes or tne given poslt lon.xc,l.u$rng political or religious affil iations,

rnay. be required before a candidate"is admitted to ariexamination.'I'he commission is required to- select such piaces for holding thesecxaminat ions as wi l l . most near ly prov ide equal i ty of opporTuni ty ,and lo,g ive due not ice of . thei r i ime. p lace bt n. i ta ing. 'd 'd

" .up. ,by publ icat ion for two weeks in advance' in general ly c i rErr la ted r rews_papers, and,by, sending printed notices to cbunty cl"erl<s, to be posteclconsprcuouslv bv them.

,, ri lhl r"q'i ired advertising fails to produce eligible persons withinlne Drate lor a grVen posr t ron. pel 'sons f rom orr ts ide may be permi t tedto take the examination, under-certain restrictions. 1i

Examinations for the state service are held at paterson, Jerseycity..I[ewark. Elizabeth. Trenton. camd.en. and elsewhere if specia'lcondltlons demancl. Local-service examinations usuallv are held inthe respective county courthouses or city halls.

Notices of these examinations include the date gi'en, a descriptionof the posi t ion and i ts dut ies. the salary, the quar ihcat ions as to bothresrdence and _ex-periene_e or training. the subjects to be covered andrr 'e ights accordedlo each, the t ime a l lowed, ahd general inst ruct ionsrn legard to apul icat ion.

Application blanks provide for detailed-information regarding thenam.e, ,residence. cit izenship. age. mental and physical" condition,mar l ta t condrt ron. ec lueatron ancl exper ience, pol ice record. mi l i tarvor naval service reeord. and previous public servi-ce, if any,'for stat"eor loeal ,government. Ih"x also require that three rep"utabre cit i-zens snalt certrl.y to the character, reputation, and fitness of theapplicants.

The commission depends. more on the difrculty of the examinationthan on entrance-qualifications to eliminate the unfit. This means alarger -volnme of work in grading and certifying than otherwisewould be necessary.

A limited staff oi technical experts is maintained for devising andgrading h ighly technical exrminat ions. consul tanrs ur" cu l tEd i 'occasronally, even {rom outside the State, where this appears desir-able. l )epar tment or inst i tu t ional heads jmmet l ia te ly i i i ierested arerequested. to . .suggest qual i f icat ions for appl icants, 6r subjects, forthe examinat ion. ' I 'he

commission through i ts ch ief cxaminer . how-ever, r€serves the right to use or reject tliese suggestions as it'seemsadvisable.

The commission has done particularly good serectiye work for thegineering and related servlces, bettei t[an average in the ct""icutengine_ering and related servlces, bettei t[an average in the clerical

llt9:, brlt not,,so good in. the Tcial-welf-are field. Undoubtedly,

standards in the social-welfare field are less definite tnan in tli,lc ler ieal f ie ld, bul professional qual i f icat ions estrbl ished bv ihu

"o*_mrsslon have not been so high as would be rlesirable forinstitution

work for the

and agency personn_el. The" educational requir.ements u*- too to*anO agency personn_el. 'I'he educational requirements are too lowll.i1!q ease,. with alternatives so very generhl in nalure as to givetr tue rdea what real mlnlmum must be met by the appl icant. UnderlittJe idea what real minimum must be m-et by the uppii;;";.

-if;;;;

ts N. J., Comp, Stat. 1910, p, 8801, sec. T4; Laws of 1911, cb. 148, p. 216.


ervii, sXlRvrcd

Certain practi.cal limitations h_ave prevented-the commission fromrequiring as high standards as they agree woulcl be desirable.

In a few cases executives have made public statements in regardto the qualifications they would demand for gi itions in ad-to the qualrhcatrons they would. demanct for grven posrtrons rn ad-vance oT the examination and without consuTtins ihe commission.

a valuable Euide for State and local I examinins boards. Itdards all albns the line.

a Yaruaore guroe ror Dtate ano local personner examrnlng ooaros. If,shg.ul.d be possible.for them to laise their. standards all along !!9 linp.

Fairness in giving and grading examinations and impaitiality inpreparing eligib.le registers have chara-cterized New ,Iersey civil serv-preparing eligible registers have characterized New Jersey civil serv-ice- throughout its history. _ A general alglage gf ?0 per cent is re-A general alglage..gf 70 per cent is re-rce tnrougnout rts hrstory. A. general a.verage ot '(u per cent Iquired foi placement on the rigister. Eligibility va^ries from

Such advance publicity has materially handicapped the commissionin its selective serviee for these executives.

Instances have been cited, particularly in the municipal services,where appointing officers opDosed the rectrrirement of high-standardqualifications foi their subordinates, for- fear: of emban,assment tothemselves or because of local preiudice.

The principal difficultv. perhapl undulv emphasized. has been thel imitat ion in 'avai lable per.onnei of high qual i f icat ior is who wouldaecept positions in socjal-service work- at' the sahries the State,,eountv. or municipalitv was readv to pav. For examples of exam-inations given to ?rpplicants for positibni in the sociai-rvelfare fieldsee Appe"ndix B. pdees 64-66.

The qualificatidns"required in the Federal civil-service annolrnce-ment for even a minor^position are rather specific and detailed incomp.arison with those of the Nerv Jersey cbmmission. (See Ap-pendix B, p.66.) Each year -qees standards in professional fielcls be-iominE more d,efinite an,[ his\tcr. T\rc research'rsork of such organi-zationi as the Bureau of Pirblic Personnel Administration proiides

49

experience, also, the requirements are too general, allowing of tl,cwidest interpretatjon. Experience in the sp"ecific line of 'wo"r'k to l,rcundertaken br in related service of a specified character would ap-p_ear to te none too-stringent requirements. The age limitationsalso need to be more losical. Twentv-one v€ars ls a very rmmatureage fo.r work as responiible as that of a s,icial ilvestigalor, and 25years is young enough for a juvenile probation offlcer." Probably tEe comirission uses mucfr cu.e in interpreting qualifica-tions when it rates individuals, to avoid certifying those who maynot give reasonable promise of succeeding in ihe"rvork for whicirthey'have been exadrined. nlore detail,

-irowever, 'woulcl be veryhelfful as a guide to prospective applicants.

The examination questions tn given have more to commend them,although the answers require ver:y careful grading to determine rela-tive abTlitv. fn this coniection it must be r"ecalled'that the oral inter-view carri"es much weisht in Nerv Jersev civil service. If carried outwith sufficient care this-part of the examination can make up, in largepart, for the incompleteness of the other requirements.

oneto three years in duration, two years being the usual period.

n.l.f'l" " Suggestetl Tests for Probation Ofrcer," in Public Personnel Studies, June, 1926,


50 N. J. CHILD WELtrIAR}.-STATE SUPERVISION AND CIVIL SERVICIE

CERTIFICATION AND APPOINTI\IENT

3l;ll1":Jiei!_1.::.:Pl{11s_ 1igl'..t on t he a pp r op r i ate registe r are, . : , ; , , , ' l cs , r r rErur rs s ra lu r r rg r r rgnes t on ( l le t t l ) l ) l .o I ) r tu te reg ts te f a receruDed to tne executlve reqrrestrng ?_ l)erson 1'oI rn lppointment. l5rj more than one 'acanfy_ is to uJnit.'q li;r;;;; li"Jliii"" tothose r_equired ar.e certified for selectiou.' The

"i,i loi"il"u olhceI. is

allowed two weeks to look up the records of the iirdir-iduals cer.tifiedallo'rved fwo weeks to look up the records of the fia*ij;;i certifiedand to nrake his selection.'l'h.ee days, a'e allo'wed in which to accept appointment. onlojr.g. lrom the.lppointing officer that a person nurned in a cer_t lncat lon has t leclrned appointment, and on receipt f r .om srrch o{f ieero{ such declination in writing, or of eviden"" of iir" irli,i,= of .o.hr)erson.to resp.nd io.a not- lce _properry sent, the cert i f icat ion is::Tpl:,* rby ure, addrtron of the names or name of the eligibleslg*1 1" ol'9u,t,.and rvhen any.eligible declines appoinrrnenr rviThorrtfil:llf _.utl."I11o-r)l,,re.qsonf, his name is removeil- from the etigiblel"ggrster. lt the declination is because of salar_y paid or locilitv.hrs name may be.retained. on the el igibre r .egiste' i t i t e discret ion, i ftne ( 'onrmrssron, but he sha-l l not again beiert i f ied for. t l re sanre orress satarJ/ or lor the same localitv.

A t l r ree months'per iod of prrbat ion is requirecl , rv i th the usuarprovis.ions f_o.r written notices to both probatioiier u"a "o--l.sion

incase the individual. is unsat isfactory. ' l t is provid.. t -Jur i t ler" tnut" the nam.e of any di.s.m.issed probati6ner .truit't"

"uprr".Jl"'it, ro.-mer posrtlonôn lrre e.lrgrble register for further certification, provided

f,ne reasons ror lhe drsmrssal during thc probationar.v period ar.e notsuch as ro warrant his name being iemovtd fr;; ihd ui'*;dri i i.r.,,

"^lv_h:l ô_ Ts1l1l "l,lmination .f"aits to produce ;; .l islbl;regisrer

::I^"^flr^",9r1lu:ll.y,the appo.rntnrg authority may_nonri.nrrte a per.sonT\-no snal l ,be glven a qrralr fy ing e-raminat ion by thc cunrmissidn andwho lnay be certr f ied and .uppointed upon passing i t .

" seasonal appoinlees hive prefer'ence' for

-reappointmcnt the

rollowrng vear.

_^T:1ry1i_14 allnoinfments are m?.d9r if practicabte. from eligible

reglsters, and otherwr.se flom noneligibles for a period of 1ot nrorelll l^,.*:^Tf^r!T.: -l ' irh a"possible ad*ditionat two'morrit"'-eit"n.ior,,sutrJect to tne approval of the commission-

Emergency appointments are rimited to 10 days or until the nextmeeting of the co'rmission and must be^reportdd immediately andreceive the app.oval of .the-secre_tary. They may nor no e*i*n.rua.veretan's prererence rn, New Jersey is better regulated than in

some other states. A veteran must have a passlng ar.e'age of ?0per cent to become g{Sible at- all. Service ciedits-from 277, up to10 points m-ay !e adde-d on the basis of length of ,.i.ui.".'"und itspro_bable value for the gi ven position. rf. h"owever, a vetdran whol:4,T^.-i:"_d,19

p.,. cent-in theêxamination were rvounded or injuredrn lrne 9f,drlty, _he^mustbe given the maximum credit, -u.t bepraced ar the head of the lrst, and must be appointed.

o ' . " ' ' o -

fi;','i1,.i';g."?":"T*"iiyli{iU',',1l"ft",f.nl rsl',1,"'"1"Jl',"*i5llix.$*;-',:lii8".il:nirisr nori.v r;'i,";t;i'-;f"r"qjlilil,l"",:"tJj":f,"",,:""*ilfff.r.:ikT,.["lljfSlf l;:.*llil?r-.t"'i11ti,3fJ3"" #'5Jlilir1,l3i5,p"""";L'gi-fi,i'i,""p,irltiiî fi;i;f i; ,jlii'&iiY,;uru uno


CIVIIJ SERVICE 51

_rh-* following quotation regarding the srrbject of vete'an's 'r.fcr,-ellce rs \\-ortn conslcleratlon:

Public office shoulrl not be ̂ regarded as a gratuity but as an opFrrtrinity forlnlblic service by those best fitted. Unrler the meiit systeniitr"'fi11,iiitr"ri,,r,*:rre designed to test relatiye fitness antl are open ancl competitive f.r.allAmerican citizens '\'ho m^eet certain preliminary iequirements,'and aptr,,intir,:oliccrs are required to filI vaeanciei from arnong

-ilrose g.oAJ rrigiri.r. .r.

the extent that public office is an honor and a means of fi.r,elihood -all

slroulrlenjoy e_qual o_pnortunity to compete for appointment. The civil service int.re;r-s-rngry demands educated, experienced ernployees, ancl to use it as a re$-a.dfor military service is an c'xtremely expeniive method of pensioning. rt isessential that the merit system of'appointments, based on ttre pririciple ofopen competition, should not be impaired.ro

REGULATION AND IMPROVEMENT OF THE SERVICD

Two,progressi.ve ideas that were incorporated in the 1g1g arrrend-ments to the civil service law providecl for personnel acrvisory com-mlltees and a bureau of personal-service stinclards ancl recoicls., Department heads- u'ere-to appoint rep'esentatiu.. o" th"-"ommit-tees to advise rvith the commisii^on on niatters of pe.sonnef adminis-t rat ion. Only a few such commit tees e 'er came in io beins. urr , i th . .unever frrrrctioned well, o_r1ing largely to the indifiere"nce of t lreappointing e-xecutives. I\ lqr)' pro"blems touching either policy ot:pt:.:f igg in rega'd to t ra nsfeis,

-temporary - appoifi tments. t i imissa l,

I 'egulat ron or hours anci of . leave, t ra in ing of employeesq resear.ch in tothe. elTectiv-eness of proeedure, ancl relat-ecl mariers" wouiJ"appe* tola l t na. tura l ly in to the provinee.of _these rdr- isor ,y commit iees. 'J Ianvoxecutrves ' r -ork at a ser ious d isadvarr tage for [he ]ack of inst suchinformat ion and assis tance as the comini .s i " "

" " r la u. . t ' 'prov i , le

t l r rough th is_ medium of cooperaf ion. The real a;m.r l tv f iuJ i r " , t t .r&rlure on the. p1$ of all coneernecl to appreeinte jusl what con_str r ic t rve possrbr l i t res are inherent in srrch

-personnel "advisor .y com_

mit tees. . A campaign of edueat ion on the.r iUiu. lUo t t " .o-r i r i . . ionshould be more than usurllv productive of good results.

The law creating the birreau of person-al-service records andstandar( ls warrants rcse&rch work of qroat vahre. (See Anpcnt l ixA. ,u. az.) .Liberally interpreted it duthorize;' i ir.

' ;;;; l=!;;;.";;

sruuJ and plan-tor rmprovement in the organization and proced,reof a l l par ts of the publ ic serv iee., The bureau, of personal-service standards and recorcls has notb€en organrzed as a separate division, but has been gir.en a plaee int l )e, rntegra l s ta i t organiza_t ion of the commission, .nder superv is ionof i l le clrrel examine_r and secretary. ft has perforrrred #ith .o_-mendable efficieney the majo' frrnei' ions .teuorulng ;p"" it. 'particu-l1i1J^-tt, l:.. !:yi"S,o,

do with classification and adnjinistrative'organi_zatron. b't rt has not.covered many of the related problems incl'urlerlin the.or ig inal in tent of the law. ' r ts research should be extencledrn conlunction with that of effective advisory committees u" ;"dAitas circumstances will permit.

Transfers are authoijz-ed by law, at the request of employees andwith thc consent of rtre depaitmentlhead.-conle;;;J, .;'i5il u, trru.v. . ^ r0 .Th i r ty -e igh th Rcpor t , U . S . C iv i l30 , 1921, p . x ix , f t ' asUrngton , fS ! i , -

Service Commission, fcr the fiscal year ended June


52 N. J. cHrLD wETJFARE-srATE supnnvrsroN AND crvrl sERvrcn,

tlo not involve anvthing equivalent to a change in relative status.'I 'he commission has pursued a rather conservltive policv here.In the malter of leaves of absence, hours. and siririlar cuestions

the law provides the commission with a-ble autholiiv io makeuniform regulations governing hours of woik, vacation,"sick leave,and other matters aflecting service and employment in the Statedepartm,ents, boa.rds, commissiong. and institutions. It may sug-gest such regulations for local governments., Comprratively. littl.e has. been. done, _exeept by common consent,{oward establishing the uniformity authori/ed iir the state service.Departmental head! retain very large freedom of action in all suchmat.ters, resulting in a variety of iegulations among diflerent de-prrtments. This irregularity causes more or less'dissatisfactionl.mong. e.mp,loyees. ^ Reasonable steps looking toward better regula-tion misht be helpful.

Qlarierly efrci'ency ratings, basetl on- quality and quantity ofworK, personaltty, dlsclplrne, ancl attendanee are required for allemployees. These ratings have not rvorked out vei'y effectivelv.because of the great diffi iultv of devising a satisfacto"rv svstem 6fweights, or of crrrying out an_y system cievised. Xo reatty efficientsystem has ever yet been developed.. I.Tn$e1 the general provisions-of the 1g18 amendments might beineluded the right to assist executives in training their subordTnates,both for beiter service in their given employmen'ts and for advance-Tent_._1.o mole responsible lrositions. Tlre law specificallv urgesthe,fil l ing of vacancies by promotion rvherever this muy 6e ptac-t IeaDIe.

-Experience in both public service and industry has proved thatwhen the. general educational and experience requi*ements for origi-nal appointment are reasonably high, the training of th?se alreJdyin the service for advancement in their own lines or for servrcein other l ines for which they mav qual i fy. returns. ul t imatelv. manvtimes its cost. Ther,e is not oi,tv tf,e"great advantaqe oi'nttltrlvacancies rvith tbose already n'elI acquainted with th6 nolicies o"fthe organizat ion and rvi th experience of the utmost va' lue in i tswork, but also the value to morale of providinE a strong incentiveto those in the service to develop their ability aid so to frove theirfitness for promotion. In New-Jersey the matter has cl^aimed con-siderable attention on the.part of thoie handling trained personnel.The civil-service commission has given its appioval of sirch plansfor several years, but has not had frunds to do'tiis rvork as it sliouldbe done.1?

SUSPENSION, REDUCTION, AND DISCIIARGE

Suspensions, subjeet to the commission's approval, for disciplinarypul'poses may be made, not to exceed 30 davs, except in case oTcriminal o{Ien-ses, but shall not be repeated in-succession. The pro-vision regarding suspensions is as foilows:

Any employee in the classifled civil service of the State or of any munici-pality thereof n'hich has or may hereafter adopt the provisions of the civil-service law rrllo shall be guilty of any one or more of the following offensesshall be subject to rernoval, discharge, fine, or reduction, provided that nothing

u " Ins t i tu t ions and un ivers i t ies as3 , Nos . 3 -4 (Ju ly -October , 19 !5) , p . , i lo f i l " r tu"

t ia in ins schools." The Quarter ly , vol .


I]NIL SERVICE 53

contained in this section shal be herd to prevent removal, discharge, firre,or reduction based on any oilrer act or offe^nse not specifically set f6rth.a. Neglect of duty.0. absence rrrithout \erle or-iri\ure to report :ftet \ea\e of absenee hts

;i3r::k;i3jter such reave of ar,*en.e r,as-ieen disapprovea or reioked bv

o' rncompeteney or inefficiency in the service or incapacity due to mentaror physieal disaLrility.d' so inefficient in the performance of ,re rluties of his position tlrat rrisfinal efficiencv averase. teft in ;"""ilil"

îr:ith the rules and regulations ofthe commission, is leis than'20 p"r;

"*f ii,rruri tir"_ tu"t* oo *irr"ri"trrJ ratirigscontributing to such general aierage, a.e'rou"a by the

"oroirri"Jirr, opooinves-t_igation or hearing, to ne suUslintirli; i;" anrl such rating .justified.e' violat ion of anv iorvful and .easona[re'omeiar 'oguration-oi ortrer, or

:il$:"""t3"tj""J anv larvrul o. *u.oourril"o"irection-

"';A;;;;' g"ioei'ry ni,

f , Intoxication while on duty or in a publ ic pla<.e u.hi le off cluty,g. Cundu(.t uuber.omlng an oin,.er o,. "ripioy"u'io

ifr" p"Lfi"'";;r:i;;.h. fnsubordination.i' wantonly offensive contr'ct or language tou'artl the public or. other oflicersor employees.j. P-rjorderly or immoral conduct.k. WiIlfuI violation of any of the priovisions of the civil-,service larv, rules, andregulations.U. T!". commitment of any crilrinal act.

,#;.ilr_T"f",:ul:"roo. makc r.easurrar,rJ provision for furule. pr).ment of jusr" ;. ivEirsl,"..;';i'iii iliiii"l,,l."f,J_'Tl";;;*;;i,$fl:.T,gi1_j$J.:,1;ffi

supplies and equipment. -

o. Pernieious- nolitical_a_ct111lv-. enSaSing. i.n politic-al rvork during $.orkinghours, or impairetl efficiency due to such-ac,Iivity'outsirre of .uo"tiig"rrl,rr".,,

. rn-the public ser'ice there is always the double problem of protect-ing the emplovee.s aga insr d i*h;;s;'i";' i"l ii i ;J # Xir,*.' rio Jrr. r,otconnecled rvirh the goo, i of rhe sei i . ice ,r ; , r al ihe;"; ; i l ; ; ' i ;to the executii,'es wfi9 o1n responsibre f"" ui" "fr.i.ili""iii;ii?Hi?the various administrati"u uiit"-of1hi^gou.rrrmenr support in thedismissal of those who. a'e rn"o,np*loni

"," .fi.mu"rj'ri i"to tn*exe.cutive but to the wo.k. rt is, oicoui.u",""otTrii'fi""t'i; of theci'il service and certainly not th6_i"t""iiln'of tlie I{;; };dy .o--mis,sion to help incompete_nt cir.il ..i,.-u"tr to remain in office. Apolic.v adapted- to the. ieeds of tG pruii" service i; ;;;.;;ily lessffexitile thdn that n'hieh u p"iuui.

"!.""y can follow.

"n'jl.t .,roru

notab_le res*rts ha'r'e been oini""".i il th; -""if ,""irrij oi jau.,,n,,and dismissal of prrbl ic emnlovees.-

- - '

. . A sho-wing of eause at a_ r ieai ing hefor.e the eonrmission nt u.rr ichthe e-mprove6 is present o"d t;;-th; "pp""i.,"ito-;ob;'ii;;ft'i. ,,ra."the New Jersev'civil .*i..- iu*-;;ii';ii.. lesisialio;-oi'if,i. rort,the clevice bv which_a _dismissal ;i;iy-;;-ih.il;;,tt.';iih'u""ur" i.theoret ieal ly aeeomplishet l .

- ' ' - - " . - 'J " '

, rv i th.-publ ie heai ings P'o' ided bv raw anrr an organizat ion oFthe civil-serviee emnlo]'ees u-hiclr h;l p; it. -morritre..îl '

i.".-tirgtheir e,qses at the t"uiit'gr, in;-N;;;5i;;.t-;'b]"y#, i"i"'r" u'untrsually favorable posii ion.,e

,. TôLu]:", this method presents ce.rt-ain ciifficulties for. the executives.

4-v 'L v ! r r l r r r r ' rc l ruu pruse'Ls ce.ra ln ' rmcul t res tor . the execut ives,rt is always found almoit i^possiblelo'"..,,or,"-t-iirr?"r ".Jiioouu.

u{b l r teenth Ânnua l Rcpor . t o f the C lv i lrgioiTll"i:lirtBlt"t

nepor't of the Clvil service commission of the state of New Jersey,

,r;i,T,X",tiF.,T:S."o"J$'J. ti'i';?:llj;: $figl:{:?i"}ix:*-:".i."3s^?"g:,1iza^tion..ro_r_.protectinsthelr lnteiests. its powdr iro nave Deen exaggerated.

txi';isil;;3 fi'?,*:I:ii.Ii;i"tfn i?J"*"?"$3,11fi",1"1,..'.""1,,p;.:i:::ixhrough use" of iioliticrii'pre^ssur:" ;i;il;i.:

Provided try the Maternal and Child Health Library, Georgetown University

54 N. J. oHILD wELFARE-srAlE supERvrsroN AND cryll sER\,tcE

of merely average efficiency and replace thern rvith others availableror apporntr r rent n 'ho could do ihe ' rvork n ' reh bet ter . Not con-srdenng-t l r is group but the one * 'h ich is judged incompetent rndultlcsrlable, one explanation of . the diff icrrit.v

' in can';-ing through

clrsmrssals for eause sometimes lies in tlre e-xet.rrt ivcs, Iack"of info"r.-mation as to the exact, provisions of the la.v, and to their reluctanceto.,p,l:,h proceedings that may attract public notice. Tlto u.orrpi"uwlll r l lustrate thrs:

A field officer com_pletely ignorecl repeated orders frorn his cliiefto.perform_certain duties prdperly fa!' i ing in his assignment. Thechief _cglgpla ined that he-rvas powe. less" to punisrr T l r is of fen, ler .t (u le - \VI , see.3, o, eror h (see p.J3) .prov ides arr r t r le rerr redies. pos_sib le explanat ion l ies in e i thei the ' ih ief 's un{a i r r i l iar i tv rv i th thecotnmiss ion 's ru les or h is d is l ike of proceer l ing againsf an insub-ord inate nrember of h is s taf i under the 'condi t ion i noie, l .

rn another case a field rvorker had been dishonest and untruthful.and had-rvil l fully disol,,er-ed reasonable orders. Pror.ecdings for lreichsnnssal, hol'ever, were based on a technical violation of"a public-health regulation. After a hearing the commission ordered hdr rein-statement, on the ground of insufficient evidence to warrant dis-missal. The diffic.-ity here appears to lie in a failure torbase the

"1,*if":.:_.1 grgun$s properly ;ppt,l ' l lg to the case in an official n.ay.

l -xecutr 'es in Nerv_Jersey repo. t i t to bc unduly hard to d isc ipt incsubordinates or to disrnisi th-ose rvhose ptesenc6 is cletrimentil tothe public ser_viee- because of the methoil of conclucting hearings.l-he law provides that $ * 'i 'r at the hearing the respe.iite oorti-".nray be represented by counsel , and t l re ec,mr i iss ion shal l herr iv i t -l)csses and receive all other competent evidenco Drodrrcetl. and tjeter-mine the ctse upon such elidenie as ntry be presr.rrted * * .F.tr 20

Undcr this hiv the practice ha.s grou.n up fo. enrployees. throrrglrcounsel p lor- ided. l - ry thei r organizr- t ion. 1o p l ,esent a technical lcgulde{ense, and c leeis ions f lequenl ly turn on lec lnr ica l i t ics rat l rer t i ranon the merits of the case. Such-a hearing is not of the sort to pro-mote the best interests of the service. 1t puts executives to^thenecessity of preparing detailed briefs and emploving of counsel. Arepresentative of th-e attornev- general's oflice is available to repre-sent executives at hearings, but it has somet.imes happened ttratexecutites are rvithout counscl at hearings and hence^dt a clis,rd-vantage. Moreover, it is possible for an eurployee seriously to injurethe milrale of a staff and vet ar.oid an ov6rt"act, which can bd setup as clear evidence of that fact.

It should be possible to protect the employees against discharge forpol i t icaI or other reasons not connected-u ' i ih the]ood of the selv iceancl at the same time have it understood that the.executives rvil l beaicled by the cornmission to get rid of incompetent and disloval em-ployees. The right which tiie commission sliould regard as bf firstinrpor:tance is the right of the State to a high order of public service,and the good of the service should be the lest of the case set up byeither ernployee or executive. That the civil-service machinerlv iseither ernployee or executive. That the civil-service machiner:v isestablished to promote efficiency in public seryice is sometimes over-looked. Secur^itv for emnlove"es a.q^ainst dismissal hecarrse of npr-looked. Security for employees against dismissal because of per-

,0^f. J. Comp. Stat. 1910, pp. 3795-3807, sec. 80, as am€nded by Laws of 19U, ch. 286,n. 787.

a


CIVIL SENYICE DC

sonal or political reasons is in theloyalty to the pol icies and programthe u-ork are also essential.

interest of efficient service. butof the executive and interest in

, Though some modification of the larv m:-y be desirable it srro'ir'rbe possible.for- the civil-service "o--i..ion"t; "a;p;?h;

pou.v otrequiring simpre and prompt hearingi ;;J di;;Hli"i ttin"i""r_ities. Tre ex'ecut ive's' deeiiio; rh;;iJ l"-pr*r-Li"io. bu".o,,...tand should be sustained except l.here u"+"ii:r"."-"" o"f]til"f favor_itism is estabrished. luch a poricn ir il b"1l;;;4,";"'""ki;iieve theconrmiss ion of rn 'eh i rksome-deta i l . ass is t mater ia l ly in ; -proui 'gdiscipline_. and gencrally increase tl,; ;tr;i;;;t';f ;ii6 iru'ri""..rui"uof New Jersev.-Executives ihould feer free to consult the commissior regardingthe interpretat ion and .qppricat ion of l is- .ures and to ,"oL i is-a.rvice

*: q::.r",f -way regardrf g the proper procedure to adopt in present_

lns. cases before rt. . 'I 'he seeretary 'eported that the conimission

{es]red to cooperare in.every possi6re ',iav to i;;;;"' ih* ",o.i

,utr=-ractory posslble admrnistrat ion of c iv i l service larv. both to Droteclcrvrl servants ancl to assist executives to improve ttre service.'

PUBLICITY AND NEPORTS

^ Tn 1924 there rvere.47 open competitive examinations adverti-qeclfor which. no applications i,e.e r..*iu.a, and in rgzs inere were 118so advertrsed." A large number of these examinations were forlow-paid- or. inconvenieitl)'^. siturted cteli.ai or- il;i i l positionsthat made little appeat., This iack of appeat, h;;;;;;: ti i. onlva part of the story. Mo'e.satisfactory response for air tlna, o?gpen"rns^q mlgnt be assured if the commission more readily availedrtsel f of means of edueat ing the.prrbl ic.ro the desirahir i ty '

""a op-porlunity offe.ed !J prrblic serviie. 'flrorrgh

rr-utl"itv l '= n*o s'b_strtute for reasonablg 5o^mpensation it shrurd

'assist drate.ioirt incal l ing out berter-qual i f ied. appl icrnts f ; ; i -h"

" ;r ;v ' ]usrron. i t teposrnons \rhose duttcs and income al i l<e . i r rs i i fv surrer. ior r ;ersonnel.

- unl i l<e most annrral reports of srate'ai ; i i : . . ; ; ; ' l l#* i . . ron..those put ou.t by New Jers'ey contain noconr.y the -.."rt;"T'.i"il.i i. ion,personnel, ,compensat ion, ard related fai ts but also instruct iveseerrons on aclrnlnrstrutrve pol icy or cur|ent problems, $. i th r .ecom_*jig_i. to improve the prrbiic..se""vice. rti"v ir.

"-i ';;.;i i,;; pr=._rng rnterest to students of ci'r'il government as well

"s to admlnist.a-tive authorities.

-^T]ig^9ig'hteenth annual lgport for the year July l,7921, to June30, 1925, contained the fol lorvinc c. l i ' is ions: i i ) Rpnnn mo-, i trol i^-.30, L925, contained thc_ foilorving crivisio"ns, (rj h.l","-moni"tiorr"ror rmprovl fg Ure serr ice: (2) an accorrnt of the nunrber ant l k inr l(2) an account of the number antl kind

discussion; (B) a ..'.uuf.'nf th; ;;;-l;l;;,. ;;;fifur"u",iilJ"i"g*,l# t: -1"^T* :." 9i J--^1 ." jj i, " *- l_ry t ;; t "^" t ;; ;t &:d;il ti; ir ii. e r,yll.rlutrl"{,g_unuful;,(?), a r.er.iiru of ,,"lu .iril;";;;;-t;;i.j;i;";.;and (6) seitiand (6) sections devo^ted,to such topics as ,,An u*pto5r*"rr?-p"ti"r-,;and " Salary regulations.,'

ftX?dTS'"#i{f,lT:Htii"ll*f'^:X""$':+ tf;:"6$fi"H"-#:ft""i,,fi:.?ifi,?,l',il""X,'f,T.Jl


.Among the recom-mendations rvere the folloq-inS: (l ) An extensionot the crv i l serv ice larv to inc lude a l l t .or rnt i .s unr l nrunic i oal i t ies inancl municipalities in: r r l rs a l rLt l l runtctpal l t les lnthe State; (2).better organization-of departmental ;;;{i-"-; };r"".;(3) th_e need o{ more uniform conditions^ot' employmenf; i?t-[.ii.icontrol over the creation of ,new.positions in ihd ser."iiei (ry tt*l*tr; :l :"t^ tgi::, :",lTJ, ::ll-du les in t.o r r n Lr iii" r

--,, ";. ip;i'..;;:

ices; (6) the_value of legillative standing conrniittees o" "iuitLrui.uto consider al l personnel. problems cominit hefole f lre qo.rfo ^*,""^-to con:ider all personnerproblems comint{ before the se.ate or o.."^-

!Jy: Each of-these topics rvas <liscusiea ..tti,,i.ntly t, .ir"* it,importance.

The rules'I 'he rules. regulations, and complete classifit.ati<,rrr a.e publislred_as.par t of the repor ts f |onr t ime to t inre, t l rc r r r<. rs t r . . "ent occasion

ot) N. J. CHILD WELFARE-STATE ST]PERVISiON AND CIVIL SERVICE

, t l ic tuost recent occasion

munlcl

being the 1920-2f report.

BETIREMENT AND PENSION

. Tf" entire problem of .etirernent antl pension of p.blie personnelrn l \ew Jersey.rs l ra_nd^ler l by a speeial state empl, ,r ' . , "s ' ret i rementsystem under a board of trustees comfystem under a board of trustees comlrosed of tn'o irrei,rl,t 'r 's appointedby the governor ' t *o e lected by the members, arr { l e \ of l lc io theDy tne governor t _t$o e lected by the members, arr { l e \ of l le io the]:. iq"L:l,gl jh" State.:,

,The benefirs of thc s\-:rern are open tomicipal and county employees nnder certain corirl i t ions,.' l 'he

larv n lovi t les for r .onfr ihrr f innq nr r ' lpdrrnr inno f , ,^- .provides-for cbniributions or cleductions fronr the salarvrtermined on an actuarial basis. The allorvrrnces includlreceived, determined on an actuarial basis. The allorvtiric.sln"tuusLerr'r'su url rtrl .ruLuar-lu,l uasls. rrte allowtllces rnclude

both annuities and pension. Retireme_nt u!. 69._J.-ear.s is allowed,;;A'";'?d';;;"J'il jii,fi ijlii;,r1"'iliiitl,,1.ii,l[ir1,',]'i,.ii."?,1'.1,T"f;provided.

."ll fuill.ss, liberality, and soundness of basis tlie Nerv Jerseystate employees' retirement system is ranked as one of the best iirthe countrv-

u N. J., Laws of 1921, ch. 109, arnenderl by Laws of 1924, ch. 261, p. 6?4.

Provided by the Maternal and Child Health Library, Georgetown flniversity

APPENDIXES

\APPENDIX A._SUMMARY OF THE NEW JERSEY CIVIL

SERVICE LAWThe original civil service act of April 10, 19Og (Larvs of 1909, p. 2Bb), with

am_endmerts and_ supplernents of especial interest to date, is heie summarized.and certain sections are quoted:

Date of efJect.-The law provicles ilrat after six months from its approval allappointments, promotions, etc., iri the State civil service, and after 4b^days fromits a-doption by any municipality, -all appointments, promotions, etc., in tne civitservice of such murricipality must be made in accortlance rvith such larv. tN: J.,Comp. Stat. 191O (Vol. Iff), pp. 3795-980?, sec. b?. summarized.l

I) t !rut ion uI lenure.- i l lose in of l iee al t ime of trdopl ion shal l continue (o boldsuch ofiice, and be removed only as provided in section 24 of this act. This4ppligs only to indefinite appointmeuts, not .to flrose for a legally specified time.[Ibid., sec, 58, summarized.]

Appointnxent of commission.-The governor, rvith flre consent of the senate,appoints four cornrrrissioners, residents of New Jersey. Their terms are fouryears, after th€_ first appointments, r,r.lich are for one, two, three, and four yearperiods. ' I Ibid.. sec. 59, summarized,]

Renlooal, of contntissioners.-The governor may remove a commissioner foreause' after having given such commissioner a copy of the charges against hin1and an opportunitl' for a prblic hearing. A statement of the finhings andreasons for such action must he filed rvith the secretary of state. [rbid.,, sec.6O, summarized.l

sa.l,aries.-commissipners shall reeeive $2,000 and necessary expenses. T'hepresident shall receive $500 additional.' [Ibid., sec. 61, suninarized.]

Becreturlr.-\he commission is anthorized to appoint a seiretrLry and a chiefexaminer, both to be residents of Neu'Jersey. [Ibid., sec. 6p, summarized..]

rSolories.-'rhe secretary's salary shall be 92,000 anrl the chief exanriner's$3,000, and each shall have neeessary expenses, including travel, paicl. Thecommission may .also appoint other clerical and necessary assistants.B [Ibid,,see. 63, summarized,l

In'L)estigations, reports, record,s,-The eommission's records of reeommenda-tions and rerlovals must be open to public inspection under reasonable reguta-tions. It rnay conduct investigations, call witnesses, and hear testimony. It ahaUIrake an annual report to the governor, giving its actions, rules, anrl regula-tions, and making suggestions for improvements. IIbid,, sec. 64, summariz-ed,]

Office hours.-The commission shall have offices in the State capitol. rvithhours from 9 a. m. to 5 p. m. each business clay. ntunicipalities acl-opting theact slral] f_urnish quarters fol its local administration. Ilbid,, sec.- 65,summarized.l

altpointm'ents.-After the acloption of the civil service act all appointmentsmust be made in aceordanee lvith its rules and regulations, [Ibicl., sec. 66,summarized,l

Classe.s of ciuil, serDine,-L Unclassified serrice (not subject to this act) :1..All officers elected by popular vote. 2. All officers appointed by the governorwith or without the consent of one or both branches of the teeislature. B. Ailofficers and employees appointed by the House and,/or Senate. 4. All election

l This has been amended as follows : The commission is inereased to flve members wie-yealterms. ,Commissloners must hold no other office of profit under the Stattor t

1' l 'his has been amended as follows : The commission is inereasr$_vq-.year, terms. ,Commissloners must holal no other office of profitUn i ted Sta tes . l l -aws o f 1917. ch . 105. sec . 1 . n . 218. s r rmnfar tzo

members with: State or tho

and necessaryUnited States. ILaws

2 l n o h ^ h i r m ^ h + ^ 3An amendment of 1926 made the commilnses and Eaye to the president $500 addj

j an amendment ot 19zU made the commissioners' salaries $expensos and gavo to the pres idcn t $50t ) add i t iona l . l l ,aws o frTh is was amended (J ,hws o f 1910. p . 162r so t t r t i t tn . omi

r must hold no other office of profit under the S. c h . 1 0 5 . s o c . 1 . p , 2 1 8 . s u m m a r l z e d . ltde the commiss iohers ' snhr ies $3 .5O0 each andlent-$500 ad{i^tional. _ [Laws o!-1926, ch. 311.]. p res idcn t $50r ) add i t iona l . ILaws o f 1926. ch . 311.1

f ,aws o f 1910. p .162r so tha t the o f f l ces o [ seere tary anc l ch je fbined uDder the official t it le of Chief Exa.miner anri Secrcfarv-

aureuueu r t /aws 0 t tu tu . p . lDz t so Tnat f ,ne omces o t seere tary and c l l le lex f lmrncr miFht .be combined uDder the o f f i c ia l t i t lF o f Ch ie f Examiner anc i Secre tary .Ihe salary for t lte combined office was raised to $?,000.

o l


offcers. 5' Heacls of State departments, commis-sions, or boards, or mayor's appointments, or heads of departments, anrl membels of commissions or bbards ofrnunicipalities that adopt this la!r'. 6. All Ia$'oflicers of any such municipatity.7. All military or .naval officers or men. 8. suyxrrintendenis, teachers, and in-structors in public schools arrd State institutions, county superinteridents ofschools, mernbers of boards of education, poiice magistraies rirpointed by themayor or other head ollicer of a municipality adopting this larv. rr. The classi_fieS service shall include all persons inlhe paid service of the state or the mu_rricipalities thereof that ma]. adopt the provisions of this act not inclucled in theunchssified service.a_ [N. J., Comp. Stat. 1910 (!ol. fII), pp. aZef-CSO?,sec. 67, summarized.l I_ czasses of classilied, serrice.-Tbe ofiices, positions, and employments in theclassified serr.ice are to be divicletl into foui clnsses, subject

^to'rer,Jision from

tinte to time by the civil service commission: 1. 'Ihe exernlit class. 2. ttre corn_petiti'e class. 3. The noncompetitiye class. 4. The l:rbor class. frtia,, sec.68, summarized.l

Elxenlpt class.-I'he exempt class shall include: 1. Deputy or first assistant ofprincipal executive o{ficers authorized by larv to act geirerally for ao,l-1r, pta""of _his principal. 2. Legal assistants of the law depar:tment of state or-municipalities, and in the ofiices of prosecuting attorneys to the number actuany en-gaged in-prosecutilg pleas- B_. one secletary or clbrk of cach aepartmeni, nbaro,or commission authorized by law to appoint a secretary or clerk.- 4. one privatese:cretary or stenographer of each judge or principal executive o{ficer. b. Alloflicials of state and county institutions rvho musi of necessity tre-pirvsicians(citie,s not included). 6.-All offices or positions (except tarrorlr,s)

-for s,tricrrexaminatiols are irnpractical. Reasons for such exemptlon shnll be stated sep_arately in the annual reports of the commission. After this act taies enect noofiice or_position may be classified in the exempt class except alG" a public

hearing by the commission. Appointments in tfie e-terupt class ^".v uu -uouwithout examinzrtion.6 [Ibid., sec. 69, summarized.,l

( 'o.nt.pel i l i rc r l t t"s. olt l toinl111711ls. pl1' , .- ' r l re compeli i i r-e el lss shnl l inelut le al lnot included in the other thtee classes. Appointments shnll be rrrade frorn theeligible list. except in cases of promotions. reinstatement,s, transfe;.", o" .uao"-tions as provided by this act., The terrn of eligibility shall be fixecl for each list by the commission ar norless than one nor more thnn three vears.

Appointments slrall be marle fi'om flre eligible list rnost nearly appropriate.A new list shall he nrarle only rvhen no appiopriate list exist.s rin-'irrriin ap_pointments might be rnatle.

Appointment shall be lil annrolriate title nnrl assignrnent ancl only to tiutiespro-perly pertaining to the given position.o [Ibid., sec. ?O, "''**u'"iruA.1. Noncompetitiue .class; aeterons' Ttref erence.-ttie nonconirretitive ciaJs srrallinclude such positions as_rre not in the exempt t:lirss nor rarr'or-crass,-rrut wnicrrit is impracticable to incluale in the competitive class.

Appointment shall be mfl.le aftet. a nonr.oDrpetitir.e examination.Ilono-rably rlischarged soldiel's, sailors. or marincs xrho have seon s€|r\-ice i'u'ars of the united states of America -qhall bo accorclerl p."ie""n"e i" ippoint_

ments.' llbid.., sec. 71, summarized.. l

aThe classiti€d service has been-extenrletl by am€ndments to incluile i lre assistant eom-iss ioner and insr ;ec to rs o f tbe ,s ta te" depar iment .o f labor .and,county ao ;u i te "s , - ;o ln tl|t)_ glori!9t

"mll9{99" and nonteaching.or a.dministrativo staff in scrri irr-dii i i i" iJ'*no.o

58 N. J. CHILD WELFARE-STATE SUPtrRVISION AND CIYIL SERVICE

suclr

serviceassistants(Las's of

missioner and inspectors of-tbe State. rlepariment. ot taUor-ina'coi,"t.v"n,iiJ""i"'i.g.?l3t)_ glorilgt

"mllg{gg" and nonteaching.or a.dministrativo staff i" scrrii"r-di"siiiciJ'count ) 'p ro jpc t pmployeps a .nd non l , . rch i t rg o r admin is r r .n t i vo s16g ' i " * " t i i r f d i t ] i i ; i ; ' * , ; i ' ; ;{uc l r co l rn t ies o r scboo l d is l r i c rs adopt t l re c iT i l sc rv ieo .ac t . tn iC l+ ao i r ' i i .u . ' " .o* rnn tprose( ' l r to rs o f the D leas were t rans fdr rod to fho nnc lnss i f fa . t " " i . ; . i ^ -1 i . - - l l ' : i

" : " , ^ ' -

sclr_ool districts adopt ihe civil service.aci:' 'I;-i9i'.i county assistan:

p,*li Ifl_1..1"ii1f"-Tlq.!9 !he-urcta.ssified scivice li,as;sli i'eii;';h

sucl r(,uurles or scnoot olsrrlcts ad_opt t_he civil serviee-act. In- 1914 countJ assistantprose('utors of the nteas were transferrcil to the unctmsined "civicie"i i,ar;J'; i

i '9ie;"i,h:51 . p .831) - , and in 19?4 o f rcers and empioyees o t t f re .i"""",r'i,i-iire*-"i"fi!;if'"'e lin,icc (Laws of rs24,.h. 1iJ,";: nrrk.cornmission were tians-and in 19?4 ofrcers and employeeg of f lrc State prrk cammission-,. u n c l a s s i O e d s o r \ . i c o ( L a s - s o f ' 1 0 2 4 , c h . l 2 0 . n . Z : j l . -

amenr lpd to red l l cc the exempt e lass by omi r i ing i r rnc le r 2 t leca lf ' rosc^ .u1 ing r t to rne) 's and p lac ing thom in tho unc luss i t ied se i -v ic i

i"-i"g-in-ii'e*.-"i"fi !;if '.,ir;A''t.-?il;ff

lT"isl+lifi l'ifd_

u T-hi" N'as amended to reduce the exempf ciais Uv omin.offces of prosecuting attorneys anO pta'cinE-itreff in I1 1 1 + . c h . i 1 . - p . R 3 )

c -\ri, amenrlmerrt nd'ls prorision for separate l ists for f lre Statepcra l N , rqu t rn t rnce_wt th a par t i cu l r r par t o f the Sta te i s rssent ia l , tocivil servicc wherecovcr those having

s p o c i a l N . ' q r r t i r r t r r n . e q i r h h p r r l i c r r l r r n n r t o f i n o - S t a t e i s o s s et h i s . q u r r l i f i c a t , i o l l . r L r n - . s o f l . t l l 1 . e l t . 2 + . p . 5 0 , s u m m a r i z e O . l

- ' . { u n l t l I n r l m n l l s l , , ' { i f i e d t l [ l l s ' h p n S u a h a \ . e t e r a n { i n C ]1i'i"!1'|i'T-!i'*''".'"r:li'i:'iiiii- [i];""$'#t'i,f.Y"""o "1' ';?t""f"-""b!'"ti':X"if"L:'ffi'l,,iii"ill""*r*li;

g3gr,* j""^1L.llgi:l:..lgl I,i n'"ljl:.:na more oi-nar";;i,i;c-"a",ii";i;'iiii frobable' l r n m : r , :

t o 1 O l J o i u l s f r r r l . : m o l t l t s a n d m o r c o f n . a r s n i v i c o .va lUe ln tho 11y ;1 S^r I i (e ' ) f h is mi l i ta ry Or nava l sery iee . I15 months hc sha l ' t ro .o iva . r 'ad i+a i " ^ -^ i ^^ -+r - +^ + i^ ' ^ . . . , . ' ,

ue ln thc ci\-i l scr' i.e .f hi,s military or naval seryiee. rf he has '.servett -l6i.s

i l anmonths he sharl rr:ceive cred.it\ i I.proportion tq the rengil l ot service a"o-its ; iob"breue as the ( ,omrn iss i (Jn n l tJ t l , . t c rmi i re . ^

R l l t i f he *e .o i vonnr ta r l ^ , i . i i , * j -1 . - i i - ^ ^ ri t t .p ropor t ion to tbe lengt l r o f sc rv ice and i t s p robr r t r le' m i r o . B u t i f h o w p r , ' \ \ . o l n t d p d o r i n . i r r l e d i n l i n e o i

value as the (,omrnissi(Jn nriy ri,,ter:miiie.- B;; ' i f"1r;;"rc \vourlqqtJ, h,. ",shal1 receir-e the'.rnlximLrm crn,ti i- i f i tcrmineA uponv a r u c d s L r r e ( . u r u r x l s s t ( ' n r n l t l ' o ( , I e t m l r l e . l J u t i f h e w e r c \ v o u n d e d o r i n j u f e d i n l i n e o fdqtv- he " shall receire the'.rnrximLrm crn,rii- iriti 'rmineri upon ior

-ini,-"eiiririiiation inwhich^he (or she) is an npplicant..ecni,ire.ss rii-ir,,i-terigtn'oi^seii'iag.;;- ii,i?ii 'bt rczi.ch. 186, p. 447, approved )iar, 18, tS:;, su;iliiz'edi


APPENDIXES 59Labar cldss.-The labor elass sliall inclutle ordiuary unskillecl litt,or.el.s:

appointment to be made frorn lists of applications in the giyeii lo(.rrtitres,preference to tre given to lrriorit5' of applic:rlion. sepalate tisls snali l^: keptfor tli{'felent ernplo}'nents antl tliffelent lrlaces.^ The commission mny require e l i r lerrce, i l errrminat ion for physical aut l l tcrr t r lf i t ness . . t I q . _J . ,Comp . S ta t . 1910 (Vo l . I I I ) , pp . AZOf ' -AaOZ , sec . ?2 ,summarized. l

- Pri.nting of regulations ; ytrobat ion. ryJ pcrio(I .-Rules a'd regulations forci:rssillcation shail be preparerl :rrrrl plintetl for ltuitlic distritrution.

' Ali annoint-

m e l l t s ( , 1 ' I l ' O t l l ( ' t i u l r s s l r ; r l l l r e I O r r r ; r r . r , [ r 1 1 i e t t : t r ] . I ' e r i , , { l O f . t l r r . e e r r r o t r l L s . ' i f

t l , *probationel is unsatisfactory be shall tre so rrotiliiti iD s'fifing b5' the appointingofncer. Otherl'ise his rt'tentkrt in serlice be-r.ond the probatiorr.a"5' p"r:ii,l r5attbe equivalent to linal and absolute appointment. Irbid-., sec. ./8, suinmarized.]

-Eligibili 'tU; tllpe of €xaln[na|ions.-Ilxaminations shtr]l be free to all citizeniof Nerv Jersey, sulrject to the lirnitations prescribetl in rules as to lesitlence,age. sex. health, habits, arrrl moral charactef.

such examinatiors shrrll lre practical in character anrl relate to mattersthat fairly tcst relative capacity to discharge ilre r'luties of the giveu |osition,including health quali{ications. No religioris or political qualifiiationi ale tobe included il any civil-service examinalion.

The commission shall aI'range fol: places in rvliicir to give the exlrpilatiol-s,seiecting such as nill most netrly plovirle equa,l opporttinities. etc.

Il,ue notice of time, place, anrl scope of all exainination-q shzrll be gir-en lrylrnblir:ution for tn'o ri'eeks in acll'ance in gener:ril-.1 circ:ulltetl nert.j,,1is,,, urr,1b]' sending printerl notices to county clellis. wlro sirall post ttrese coiripicuouslyin their offices." [Ibid., sec. ?4, summarizecl.l

- 8E l ig ib i l i t y was . r i r -p i tcd .bJ ' the fo l rox ' ing amondmcnts : , ' l o r r r ] r Dos i t ions a l r r iment in the classifled ciyil_'service, where the ai\ic;

99!lly or municiprritl' rnd r)a'menr ror sucrr ,"",,"" i. t*.ll; li:giilfl;T,,*;idF{i.flii

Applicatiotts; exentinutiol ls: reject iotrx.-pi. iol to exitmintf iol l : tr) l l l i .nntsm'st file 'nder oath or afii'nlri": 1. rruil rrame, residence, ancl postai-adriress.2. National i ty,.age, Jr lrcc, lr .cl cl t i te of birth. B. Health a",r prr i . i .Jcapacityfor pntrlic se'vic€r. 4. Eusi'ess, emproyments, and residences'i;r' th; pre'iousfive reirrs. 5. Such otrrer info^rmrt-ion as may reasonat tr rre .nq"i.e,i t'nr,crirrrgapplicant's rnerit ancl fitn_ess for the public ierrice. No refigirius- or. nonticalfact,s shall be requireci. R]anri forms for. nppticationr .rrori-rji'ii.,ii.rt,'"a t.nn.l'he commission may refuse to e_.irrmirre of to celtify arryorig founti to laclianl' of the estabushed preliuinary requireruents for ,the giin" eiaiiiiiizrri()n o'posi]ion..or.-$'ho is ph1'-sic_r.lly unfit, a clmrri<ard. criminaT. ot o.rt.l'joiirrl rro.rconduct in the past, who has been di,qmisserl fror.n the public ,".ii..-'for mis_conduct, made false statement of any rnaterial fact, o"

"?t"-pteii to iir.ceir.e inpny way in the application for exarnination or appointment. Sr,,,r, .eto.ar mustbe fol lorr.ed hv a bearing i f the ;rppl icxnt so l .eqlrests. Fit lur. iarS, 'ai"rnnintees

may be requircd to furniyl .bond or-securit''. Irbid., sec. zr, iumriia.irla.3- Reg'i_ster of el(1ibles.-lrligibles shall be llstecl on a register in order of excel_lence, but an hnuolably rli;cnlrggglt solalier,_Sailor,, or mai;ine, it etigitrte.-is to neput at the hearl of the list.'g [Ibid., sec. ?6, summarized, l

-t\e_lect_ion tor appointnrclf.-'llhe heatl 0f a dep:rltment, oflico, or institutionshall select from ttre three highest on ttie eligible-rist, as ceriiiea io rriin r,, uru

iiult{hH}lr#;tiii;iti ij:'li Wi, i.Hli:irfilrrii{,$rJ,*:.llirt"jt;$',t'tl:;,,Tri,i,i r u'oi' ;riti rii r ii:l*^ *; l ll l#$;,1_ ,;ril iii j+;i i5 ::,";:ll : :ifu1:,'i*q1r"ti1*T-1.*!i:1i4;,,ti,, rlii*:**lii"ia1i5iir.,iir".r**qrj ri:l'lT'f iliq.{$iff lnrt,ru,ir+r$1ilffi t;,*;;*U"f"";J;*i;;n;;,1''':i,1ll'l f, u" 19n :ff " ;',i,lfxill?"-

itff"g;tr,, ff,UtU*,,t',')i',,11"","'ili,l"i"f:ii'ri',""illffi1ffifi{i+i,tx:iil"'iii'*ill,$t*;':'',,i'*#i:':ru'**l*-t;l'ig;:!l+i*$ljl"i""-lt;1".

'""..',0"?.";ll?3,1,1':;" ,1,.t',,,1i3,,1i*[""1.;"1,.0"r."!x!,*.tl'jr #i;.f""Jr;f lfif:l34563o_27_5


60 N. J. cHrLD wFr-F-{RF-srATE supnRvrsro\ AND cryr,, sERVrcB

conrmi-ssion. sex is to be disregartretr unress it is rr specific qunlificatlo' forelisir;irit1'.'') - _[N. J., comp. stat. rsio (v;i. -iiii, 'pp'.'sidrlb'i'6?i'".".

zz,summaiized.lPrc'ntotions.-\rac.ncies i' positions in the competiti\,e crass srrall be filed,

:o,11: ur practicabre, by promotio's fLorn among persons h,roing positiorrs ina lower gr:rde in the departme't, o{tice, or institufi'n irr wrricri- ih" -.,uaur,.y

exists. Prolroti.ris shalr be baseo'upon mit,iu be asceftaineJiiy e*r-rr,rirrati,r'tr be provided by the cornrrrission, ri,rcL "1io"'ti.*

superi'r qrulificatioDs of theper:sorl pr'o.rotecl as shoryu by his preriois service,ir,rf"*.-isr.i L,"iirgj'give,, tose'ioritl- a'd exlrerie.ce. An incrbase i"-safary i,"l:o"a riii,it,."trr.ttie gireugrade shall be cieemed a lrlornotion.. No pers.'.shall.rre p.or'oted to. position for o'iginal entrance to rvhiclr thefeis.re.quifed by this act (or. the rul is,rrr i t ,eguti l i lons of i l re civi l_service com_lnissiott) ltt exitniination iDvolviug c'ise'tiaI-tests oI rlrrrrlifications differeutr.onr of bigrrer th.n those re_quiretl.-for orrgi'al entrance to tire position lreitl b5..u:;ll, j:"r;.o", e\cept ns l,rur.itletl abole. I.'I_bid. sec, ?8, ,"*-uiir"d.i*'f ntttsfcrE, n inslatentettt preleretrccs.-4i"ur(fers are'perrnitteil urri"i'to si'rilaroflices o| itositions in tiie saiue class. rndividuals clismissed u,itir a soriri recorri,due to ec'roml', *r)oiiiiorr of l.sitio', ei".,irruiiii"i:" iir'.irlt,,ifll,l,,t'aL!r"."o""fu l ' . lu 'u . . \ ' e : r rs . . I Ib id . , sec . ig , summal ized , f

-

uts,rssQr' d(tnutton- s,spe,siorr. .-No .ne shai l be -r.euoved, cl iscrrargerl,.educeri. or other$'ise riiscrimi'atetl ug;i".i;" o."ooot of rerigious or poriticala{liliati ons..Pe.'ranent employees

thau not be rernoverl, discharged, or.educecr u'tir fur-nishetl $'itb a rvritteu staterneut of leasols theretor and ailorred. reasorrable ti'reto _mrrke rvritten rertrJ' to (ilidrges. rn att such ciises copies of bcth i.ea_sonsalt l .relt iy ( i f arry) sirtr l l bt ' l i let l n- i th the civi t ,ser.r- ice cornrnission ard entere(lon its recorcls, arrd upou the records of ilie clepartmert oi, ofiice wher.e thepet'son \\'as employetl.OIlicels hale tire right to

to exceeci 30 clays. 'Iheresec. 80, summarized,l

suspend subordinltes fot I leasotable periorl, rrotsllall be no successi{jn of susl,errsioir,s.l; ii;ft..

- Roster of uppoil t tnetrts. elc., to be pubtia.-The civi l ser\- ice courmissi,n slr:r l ik_eep a.rosrer, of iril appoiutmel)ts, pr;ornotiols, reauctions. ;;-il;rrt;;;;errts iirall positions riiled bJ' it. $-ith llP.e:, dates, titles, cornr)ersiltiorr, etc. This shalrbe-opel .to irubtic inspection. tlbid,2 sec. g1, summaiized..l ' ''

{'ertift(d pag rr'tl!.--\ }itr'.r'oil shaii not Lre pa5abie unli.s.-s those 1:ro,erl on itand -sub.iect to the cilil ser.vice act itave been ^certitierl

by the civil service com-mi,ssititr as hlvirrg Liee' tlui1' app,irrted. Ilbicl., sec. gp,"s";i".;ri;;;.i^Political. religi,us, or (,tirer i'r1rr.u1rer i'fluerices sl,,Lri iot-ri.i.iJJi'iu .".,,.ucertification, appoi't'rctt, r.il pro'rotion. Ilbicl., sec, SS, ii";i";;a,'i

:*1, i"Jiliif ,*r:t+r3,i:'fq.,i:ql,,il'f} ""-.fu? tl$l*l*'"'..,. *'rli}lqfrT":.;,i" "',r,i,l;,!r:tlji:iH:,t "h$";?i1;iiiftl;ii:i;lh,!i$i]""t"'.*.:"Ji,i,.ry,-":l"l$islt,illii:q,.gi,',i,e',j",i1.1?3i"""'#lt:""flff';#;3 t?1T .ntr aocrr6ssed oflnie"'"',o,i;a-:iii:.,tl:idi],s iiiiii''i'"Lpoo t "s ilil t,Tff r; %{:;il r', :\lH: li t I r ld t iir ffl:i ;l i r l* mi:t -r I 1i4;'*'}.r' li : l*:or muile of the Ulitcd strtes. who rvas lr'Tht -mititrry

6i 1l1yo1'"".,1-,.1 ii"iilo uoit"o

*s,;i"{'#rs{ijnrl*'rii*lrHiifik}#rF;klql1WJir;',1-llr.*itlt+:x"?i'"l:ifl'.li:,*tj;*d,[i t"lf*t-n ,t"r,u':t-"i'i"ifr;","il;"ilt"rii,'ti;!,,:iii':Y,'',Tl':",]li':*l!tf*Xilli: :lsxJ,ji$d,"i:",n,**,rtr1{,1i!!,,'ii ,:*i.,,f:"'.'fft!.:}l{ilt.#,",'#.ii;i':"i",.,i?till,,,;lli*l,ii:ij.;)i:i;i:i i'ul,"';liil,l;*'li iHl:'ii ,Ji;,lr:ll;li;'ll;,;:ilii"*Piffli

]:_ljJ;i'1.';i,rjlil,l\,i,,;,":ilt",r:,1""18',il;i;.i),"""".^ll",jif,".l:l*,,:i,,T,r..o",l.tJ',.3i1il:,':f,eii:i'riir::"ii.d"r"l"'ii"is'1"1' '..!H,"';'l;-"rrfgr:ir,',*,uti";*,siiii*ir",ir,ts;,1*gl"itia hoaring bcfore the commissiori tt tre-inafeJ l iapprove such action. but itii1""'"'l*i;txi;?,r+'u*,r*di"id;*ii*Eh-",,j*ffi ?Tl,{i+'llffi j;:it{fficase, In case of criminal {

",if.:.i;ll:'tlil:..tt'iiriilil':i,:i."liin:,1'"i",1n.?'1,,,1,Irii,"d.,,",'r,oilli; ",*,,, or aplrei,r rsor,iii i,,.r'oijiv 6X"i.i'iTSiJi",r u1. or,r"r or'-ir,,,',i,mrui"'Ji',;-'i?t',,ili)"riliflii g{ l,t,li"-ll"ill lunic ipal pot ice.and f i rpurerr rur l , i t t p i , " i , i r io , icr ;* i r i s1,e, . in iatr . . j " i , ip t t . i i r "_" t ' t

u fur"_going. f l -aws of 1911, cL. zJU. p. i9; , "ummii izeO_l


APPENDIXES o l

Discrintin.atiotu against ctpgtricant ; /nes.-rratse marking, false representati'nsor J)ersoiurtiorls. or. other'.attempt t., lrut an applicent ,lt nn unfair ilisaclvzinrilgeor advantage in i in er lminat i , rn "hat ibe a mis i iernenrror , punishair tc iy a nne offrorn $10 to-$5{10 c| b.r'ilnpri-sonllrellt not to eiceetl six nrorrths. of both. in flrediscretion of the conr't. [N. J., comp. stat. tsro 1vor.'r1ii, bp. siiib-saoz,sec. 84, summarized.l_ TemLtorary appoiutnrcnts.-Ternporar.y appointments maJr 1r" made by thehearl of,n deprltnrent, ofiice, or inititutill, i,ufiucr, heact rlusi-gi\-e lirrneaiatenotice theleof ro tlie cir-il service commission anct as s""" as pi.Jclliante ,, p"r-son -qhall be solL'cterl br' .civil-se.r'rre procedure for. ilre. p,;;d;;-;;-iir" ,"nr.J)orirry iUlJ)oilltt!lertt tarltlinatecl. No sucli tel)porary aDpointrnetlt shall exceecltryo mo'ths. u.r' srr.[ sur.cessive tempor_ary api,ointrire"iJ];;;il;;;positionLrt ' i )rarlp.r: I fbid., sec, g5, summarized.l

'ldu.pttoil l-,!i countu or oiher tnunicipatiy.-Tire questiorr of acroption is to be- ' 4 v L ' L L v ' f t , l j w . , L t r t L q t ) t t r i u v r 7 r L 1 . t . L u | p u L 1 , t . u . _ I , l l e q u e s t i o r r o f a d o p t i o n i s t o b e

:1lll,-]ljn,t ,t le)t regular elc'crion if petitioneLl for in (1) cornties ard cities off i i 'st_or se'corrr l cl*ss [y rrt least soo re"iaf ioieri inereof; (2) counties and cit iesof_the thi ld class. b1i at least 2i0 reEaf rrot".* t t"reof; ' f3t-oi i ; i i iel^-rrrnnicipalities, by at least 5 per cent of legal r.oters the_rein. '

edrptioo"is Iy simptemljoritJ' \-ore. 'rrre fluestion shnil not be resubmittea i"itri" irul" ;;,ri;;[ Ibid., sec. 8?, summirized.l -

to',:n, township, borough. city, ordistittguished fron the State g.r\,-in this section. [Ibid., see. g8,

sccttorL of act.-T11e uncollstitutionrrlitl, of oDe ll:trt of tiristhe \ -a l id i ty of any ot l rcr l r ru. t . - [ Ib id. , s ie, gg, summarized. ]repealcd.l r\pproYed April 10, 1g0g.

Dcliniti.otLs.-llunicipality signifies village,count.y or' other such local gover.Itlent as-iseuuuent. Other terns iD the act are definedsunmarized, l

Int:aliditlt of anllact shail not affectIInconsistent lar.,-g

SUPPLE}IENTS TO THE NDW JERSEY CIVIL SERVICE LAW

The foilorving tlLe some of flre important supplements to the original ciYil_selvice act of r*en' Jerset- :.cott.rt ctnDlo!/?e. tn'ot(,lrtt uttilcr ciril seraice.-nyery offtcer or employee of thecircuit court. court of o1'el ancl terminer, eourt.ot comnlon pleas. court {Jr goil_erai sessirrns, ol clerli of the granrl jurJ-, il eltch of ilre counties' ,rt iiri,o st,,tu.holtling ofli^t'e ot' eulplol'rnent at the tinie of the introductic,n oi ttris-ali. or rrtromay_ hereafter be appointed. shali contiuue to liold their officei n"-"*pioy-""tr,

as the cuse rnay ho. and shail not be rernovetl flrerefr:orn, "r.;pa

iil;;or(rallcewith the pr.vl,sio's of the act to rvhich tiris act is a srippiedenl.-

*iiu*s ot19L2, amendeci by laws of 19P8, ch. 41, tr . g4. I

(constitntionality of this section sustain-ed, courter o. Bufler, cl N. J. Lan,p. 683. 103A. 411.)Ri.11h,t to bring suit.-The cilil -qervice comrnission

suit in courts of litn' or equit-v to enforr:e Drovi-qionsthe^State or ilny municipnlity having adopted the lrrw.p. 281, surnmarized. l

is given the rigirt to brinso f t l l e c iv i l ser . r i cc 1 r ru . i r r

[Laws of 1912, ch, 189,

solar'll stondarrlitation.-ln adtlition to the porvers enumerated in.the act of\yhich- this act is a supplernent ancl the 'trrioris acts supplenlelitar thereto anda,mendator.l* thereof. tire cir-il service commission snali naie-iiie'po-ir.ir ana itshall be.the tluty to suggest stilndll'd,s of salirries to be puid trrose'iiiils onicesantl po-sitions in the ctassifierl se|vice of the state, iuld to recolnmend the sameto tlt-e ht'atls. of del)ilrtrrents. il-stitutirnts. and cornmissions of the State. Suchstanllardization sirail provirle for. increase of coutpens:rtion from time to time,basecl upon lengtir r.rf service, nielitorious action, rrncl eiriciencil-a1aînott utro

ilqtji;{:e?,1'!","9,:t'l::X?**"?,?rHt"iil""'s;lf 'afi ifsilii?tiJ:#,1" *;,i;,9^ ;"i;;ii'l:i';;;i i; ;iX;:itir:' ,\i,',"iii.''.i;l;'rliliSlliiTl;Jji},l 3iJi.,fXi*,J,".:S l o n . w D e n 1 n o c $ p r s ' . n c Y s t i l l . e x i s l . s . _ i l . a u . s o f l g J T i | i r . l + 6 , n . J l U . l - " ' '

r3Th is seet ion n ' l - a r r iended as fo l lo r rs : I1 'h . . " , " t t ' . a . r h rc r . ^^h ^ , ! r - . . , r ^ - ' r ^ r L -!'iiili:".1":t,!iTll.ffh'l'Jl T-"fii,"l,*i"'i,,f"_'"Jr.1r'J lh llt ,y;"i'mif ipr l i t t . r .nn, ' in tment or promot io ls naOe -Oirr in i

i ie , i l i :Oav" ichf ls , -L_een du ly ,a ( lop t€d by aDJ.{-D-rrrly pcrrod bctween elect ion

*".'r-11[iriii."iiiil;;\1"?i]ltTf"r"%;,'"1"',i,I';$"o",i:l"f"h8 ?f3 lS:,and i t s go in r iL ro e f lec t shn l i be cons ic le red ' in r r i " " " i . . , " "a

.il,(s_"I-":i-r!1li';"..'':ill{i:#."'.i'i":i\ftli"J,";,ir" S,iLf iii%o J"",y""."r"""8,"%Tt?"'l,1t]]_?::-, :: p^",",**qti?.1-..1,c1 r,lisibls.rs itet"rminetl-tfiereaiter'rrv liarir-iniil:'j^#iiii,1t.Sf;1iff,',?,"#.li,pi,",Tlii#" l,\iilH'i'';*\.i.:l:P"Ti:,;ji;iTi",f;ter by examina-

lh examinationsl r o n I o r . s u c h l r . i l i o n s r S f f l l l $ - i l l r i D ta t 'p - rFq I r r r r i i l l r ' 1 ts r , t l t c c iv i l spwiCe ac t .aI 'p reqr l i r ' d r l r ' l tsr ' t l rc r iv i t spwice acr. . . - \ f to i , - t , r* i in i . i f io i l tn- .* l " i i , i i ,oOtoi ,Ô'T""orru, . r: l f - i l j . . , l j -1"- . : : ' , i l l : - , r . - l l l . t_ ' l , " t i l r i r i r l l , l . t " " i , r " ' " i , " r ' i ' i ,n nr i rn, , r - r rFler lon). Such:rnDoin1.;i:f i.",rj.'",::..:;i '';'""",1

. Jl5i"û",i;."r1,*'r,L?"'r'f,illj," n$lll i: tT{it,",,1,J"glilili. ,ji.*;rtili;'r6u .nc l ass i nc , l . se r . r i , , ' s t i a l l cun t i r r ue u r , , t , . , : , r r r ' - i , , , i i i , i r ' i r s 'lne un, ; i i i i i r ie i ; , : " ; ; ; : "1 l 'ws or 1rrr i , ch.20, p.4c,"J i l#;1t ' i ;#] i * , ' '

rs posi t iors i rn thc


62 N. J. CIIILD WELFARE-STATE SUPERVISION AND CIYIIJ SERVICE

Drovide methods for promotion through the different gmrles of the service.f laws of 1914, ch. 24O, p. 494.1

Denlotions,-Persons derrloted, due to econom)' or abolitiotr of position, if thecivil service commission approve, shall be given lesser o1lice or position intlie same department in regular order of demotion and sha1l be giveu specialpreference aboye other eligibles for reinstaternent tllereafter to the sarDe ofiiceor position, or a sinrilar one to thaf abolished, if such opportulity arises.[Laws of 1916, ch. 122, p.264, summarized.]

Ilecords of e/ficteitcy lrcpt.-'lbe civil service commissiou sliaii, by mle, plo-vitle for the heepiug of recolds of service rc'lative to e{liciencl-. affecting oliicesand piaces of employmelt in the cornl)etiti1.e civil -qen-ice of the State antl inthe mnipetitive civii service of any rnunicipality n'hich hzis heretofore or rvhichma1' hereafter sdopt the prolisious of tlte act to l\'hich tltis is a supplernent;and shrll provitle antl prornulgate methotls firr a-qcertailing arrrl verifying thefacts. from l'hich such recortis shall be m:rrle. Anl' rule so nlttle urtr5. be tuocli-f ied. changed, or altered at any t ime. [Laws of 1916, ch. 129, p.274.]

)Iunicipal records.-1\Iuniciprlities shall cornplJ' fcirthrvith b} kecping efli-ciency records open to inspection ancl superr.ision b1' the cir,il service com-mission. [ laws of 1916, ch. 129, p. 776, summarized.]

I'romotions.-I'romotions or retluctions shall be basetl c,n efliciencl' records.fAmended Laws of 1918, ch. 214. p. ??6, summarized.]

Balary regulatrof.-Provicles fcr unifolm compensation according to cili]'serlice lules anrl forbitls pa1'ment of acltlitional salnry or \\'ngos be5'on(l thoseso provicled. f laws of 1918, ch.24, sec. 1, p,92, sumnr.arized,]

Classilication os to xt:ork and. responsibil4ty, ad,rancentent. State offi,ces.-Irladdition to the porvers enumerated in the act to rvhich tiris act is a supplernentand the various acts supplernental thereto and amendatory thereof. the Statecivil-service commission shall have the porler arrrl shall provitle. by mle, arloptand maintain a classification of the State classifled selr-ice, based on the duties,$'ork requirenents, authority and responsibility, lind i'equi|enleuts rls to train-ing and exlerience, rvhich classification shall inclurle scilerlllles ald standardspecifications of seryice, grarles, titles, duties, qualificatiorrs, :rnd coDpensationor lates of wages of all ofiices, positions, and empk'5'rnerrts in the Strlte classi-fietl services, and to provitle and establish clefinite ploceriule lnil t'egulationsgoverning adyancement in compensatiun or rttes of rrages blsed on rneritoriousaction, efficiency and seniority, and lirres of promotion tllrough dilferent grades0f tlie service and uniforrl regu]ations governing hours of worli. r'acatiOrr, nnrlsick leave and other matters affecting serr.ice antl employrrent in the Statedepartments, boards, cornnissions, and institutions. [La'ws of 19L8, ch. 24,sec . 2 , p . 93 .1

Personnel comntittees.-The civil-service commission rnri' estrblish civil setr-ice personriel committees of officials designated by herrtls of departments tohelp aclvise on specifications for service and compensation. ILaws of 1918, ch.24, sec. 3; p. 94, summarized.l

Bureau of lters<tnal sert:ice; records, dat(l, stuldards, elc.-There is hereirycreated the bureau of persor)ill service stanrlartls and recorcls, the oflices, posi-tions, anal ernployments of rvhich slllll l)e filiecl accolling to lar.,- autl sha]l beunder the jurisdiction of the State civil-serr-icL'cornrnission. Sut'ir bttteau shallregularly collect and anal-yze infbrmation and data on the \vol'k requirements,tluties, responsibilities, qualificatiorrs, and tellure of incrtrlbeuts of ofrces. Irosi-tions, uDd ernployrneuts l'ithin tlie Sttte clls-qifierl servicr', l'itir :r vierv to main-tain and keep up to date the classification sciredules and strndartl specificationsof service, grades, titles, duties, qualiflcations, and competrsation or rates oflvages for such olnces. positiolls, autl etnplol'ments ; to :rpDraise tile \-alue of strclrduties ancl services; to rlevetop anrl m:rintirin efficiencl' stiuxlirf(l-c atltl recor'(ls,and cooperate $'ith administrative o{icials in maintaiuirrg such elliciency rec-orils; to render possible definite proof of meritorious selr-ice for' n'se in snpel'-r.isional control and in recoDrrnelding advancement lntl prontotion of ollicersand employees; arld to furnish expert aid to legi-slatiYe und clepaltnental offi-cials orr matters relating to enployment. (lepartnlenttrl organizatiort, tlnd admin-istrat ive m:rnagement. [Laws of 1.918, ch. 24, sec.5' p' 95.]

CIassi/ icat ion ol em,ployees, standardi '?atiotr ' of wuges, elc., cout ' t ty ot ' td t t tutr ici-pal.-In addition to the po\yers euumerated in the act of $-hich this act is asupplement and the various acts supplemental and amendatorl' thereof, theState civil-serviee commission shall have the polYer, and it shall be its duty, to


CIVIL SERVICE 63prepare classifieations and suggest sti'idar<l 0f salaries or wages to be paid offi-ee's an{l em'lo1pr.5 f i l l ine. off i ies. p(,{ i l iuns- ,n,,

"*1,roy,,,en1s in t lre classif iet lcivil service of the -several counties'

",,d"";"i;i;"lities rvhich have adopted rlreprovisions of the cir-il service act. s";h ;i;.;;ih;"ri"; ;;';,,ff.y jli'iarairu_

tion shall provicle definite s_pe-cifieations una-*to"o".,rs of serr.ices, gracles, cluties,g1L1tifcations, tiiles, a'ci. d-efinite .egul;;i;;s;;ver'ing increases of com,en_sa-tron or rates of *-ases based up.n-rength of service, meritorio's action anrlefficiency, lines of nrornotion tni'iiugrrirrUh*irent g.aoes of each of ilre serr-ices, and other matters rvhich ri'ili iia ilri ."p"ir,te lor.ernmerriJ 1, ".torrri.i

ingunif*rnity a'd moclern !,us,i.n9,ss nretnoos in purrlic enployment and to furtherst'engthen and simnrify civil-ser.vice aamiiiiirailon flrroughou,t the state.[ laws of 1918. ch,

'b4. sec. 1. p. 1b8.]

u,iT,f.li["]'il,'1,,:'.f,lil1J;il:..1#,liilr;-iaffi"iT:i;:#8iiil,'iflT:,:l1918, ch. 54, sec. p, p. lb9, summarized.l---

-

Provided by the Maternal and Child Heatth Library, Georgetown University

APPENDIX B.-EXAMPLES OF EXAMINATIONS HELD. ANDBI,ANKS AND FoRM,s _us_ED' Bi-THE ^cfiiii't"o-nvrcn

COMMISSION OF NEW .rPNSPg _

EXAIIPLES OF EXAIIIINATIONSr._SOCIAL INVESTIGATOR, STATE BOARD OF CHILDREN'S GU.A.RDIANS

, l*t:;,r'-St20-$150 a ruonth" rnvestigational and exarniniug serrice, gratle

Duties'-To investisate antl report upon social ancl home colditio's i. caseof dependent chi ic l re i : to inYpst igr fp iot i * ; . , - . ^+ r . i r^- , . . e. - - . x-- . - ! ,investigate petitions of s.iclows t,r. fiiirrr"iai^.efietand to ftrllorv up tire er:rnii;" -"t-.,*,ri'",:.ii]iD \/( rlrLtu\1i aur 'Irartcr:tl lelier

nlraino nr rra-o-,r^-+ ^r:1,1,1t^ils^-91 sucit relief ; to. inYe'stigate apl,liciiions tn"fl-rgin*.ot rrepentrent

"iiiia.;-u;; iil;i,;;;'.;;iliii,'"'it'ili" 'i:iiiiii,.i.\i' o,"."0

!I^:lt"*:t*':tT"llj. i9 investigate trartsrels ut "i,iia""ii; i; ;;";;D;",'

"r'lar"r,?X"ll."*:l*'.'1*"1:j-*: tl::":l1gFJrftr"iJ"r'"i,ri.i,1;il i; ;:l:;fi;',',',::,,11','i,::i;l:1,*::tt:.lil.lly"^:,-:l;.tr,"* r,"i"g-t""".r;..*ii:'il'*#"';:illlij,l,j,..;ii::,ffii:l;il:il".l", 1j.,,::+',1"*-:::li1,:ll'.i'Tllg tne' $a,as ot'tiie ?l.;.il,i";,'i; ;[;'i;".%:lj;,f*i,11'."*:g::ti:ll: ",1$ to.r,erit i'r ,;i;;;.".;i";;; ;:ili";:';:,i,iil."'ii

3,If,tf:X,:,:..::!:,,i,,::::,-ij,iI .,t:*;'tion i.'u-"',,"i.;t..i;"';qiii'*ill;"noo,course' or two ye'rs' hieh schoot training rvitir experien"" i"'r".i.rr?ur'ia1" ,rora,or *- 'rk^of-t t closel; ' al i ied 'at lrre; tzi i r i" i i r*r*e ot thp rrt ivir ioi ^r rrr^ qr-+..fl'^,,:;'5oi",i,;1.::ql.r'_:li'_".f1 'l"t.ilti (,{i Eii,iiii"-.G" "t-ii,?1'.?i,:#i:,.1';fH: I|J,"J::.1:il gl :_l I r l.r.en's .gua n t i

"iir. -"

;i I lr" i",,,.r'i,"i.r . i,,i.";a ;hr..i;;i.;,i?tt;i'-r-ifi i'j"nlliuii,l!: oo.?!'"'li,|"'E#nllii ..:"lli,;.,"'lll,(i,:*:,i:l:ii.'i_"1"i_:::tfl"r ,1, J:,ii3't'i' ,i'*'"'"!T',n!"i,!'"il',if .1,ilii'l,,lll,,lfare t)ot eligible.,.",- xi",1-:il,iltlo h ar.e pa sse,if ti," iiiv^ ",ii,f,ii iri"ri"[d;ll: H i ]l il'lt,';,;,;

Experience and trainiu!.\ \ ' r i t ten ex;rminat ion ___

SPECIAL STIBJECT (DUTIES)

1' ( o ) Over rvhat classe s of persons tloes the Stlte boarrl of r.hilth,cn'sguat 'dirrrs hlve srr|err. isinn ?( t ' ) \ \ ' i t h \ \ " r r i r t f e c l u r e s o I t r r e c o r n p u r s o r ] . e r r u c a r i o r r , ( . t i ) l r \ ! ] , r c i r j i r r -vestigators be {lmiliar? Strite the pror-i,sioirs in Aetail.2. \\'hat ar.e the dilf.:,_rl,:lt rnotfroi* ein1,t,,J.eA, ''iie' t'e larv. ,.r tire Stateboard o_f chilclre''s gua.tlians, i' curing toi tle vario.s rra.trs of the state?3 and 4. (d) fl-htt are the conditioirs unrlor rvhich a rt()tiier nir], rnakenpplir-,ation for a pension ?(b) ou t l i r re fu r l n rocr : r iu re - i 'mak ing inves t iga t io 'o f a ' rp ' i i t ,a i io , fo r awif[6ry, for aiel .ud6i ' the * ' idir* 's 'pn". i i r"-"J- l)r .rnrer.te 111,-, 111,,rf i lDporantsources_frum slrich r.lcperrrlabls in1'o111111ii,r, ni"v be had.

OrLi, i ,Jinat rcspun\ibi l i t ies rest rvi th the State borrrr l after t i re gr.:rrrt ing of

(d) lrention circrrnrstances uhich rr:ourtl warrailt ilrc .cr.okinq of a*-*,trsto the mother. rlnsl.er fuilv.i ' r [ ; r1 : r t r a r l . i t t r lger l juv"n i i , ' t l e i . i r r ry r tenr romnr i l t0 r l to r l l r , s l l i l l . ! ] i r r r rs l r ip r r fthe state board of chirtL'en'-s sual 'aiai;- te i" ir . t ecr to rr is (or rre1,) !_ri l rents?rf ,-srr,. p14". rvjrat cilcurnstancel? U_iprai" fuiv.6.(a) \ \ 'hat are the_.rnost irnpor.t 'ar i i -- ; ; ; l ' "" t to l)c i ' i .esrignre{l rn thedependert chilcl's home-life environm"nfrf

^^-.."

(b) How often are social investig?ioijs requirerl to.r,isit those ulrder theirjuriscliction ?^7.-Give a brief summary of the rar:ious tJ'pes of institntions ili trle st:rteof Nerr Jersey for chiltl care. trefltmtut, and'clevctopment. (.]ir.e their locationand special features.

. E. \-ame several cooperatire agencies rvhich are of assi-st:rlce to thc socialinvestigators in their rvork. stri'te irre ;;;;; of th; heiit';",r0"i.!a'ix "".n.\Veightings given:

44Oral examinationI

10M


APPENDIXES oo

2.-DrFECroR oF scourrNc,"f;*:tq3**oilo(dflt*rArroN, srArE HorlrE FoR

Salory-$175-$205 a month. Vocational teaching service, Grade II (Y-II).

"Dulic.c.-To be in direct charge of and responsible for the entire nthletic,scouting, and recreational proglrun of the institutiorr; to tlirect artrl concfthaseball. basketball. and footh:tll: to act as elecutire herrd of scout orgltlizir-tiorrs and to perforrn otlrer relnted rror'h irs lCrluirerl,

Qualifr.cati.olL reqtLirentents.--(1) Graduntion from a high -qchool or schoolof physical ecluc:rtion; (2) explrience in thc tcrching of physi6a| trainingclasses or active particiJlation in athletics. At least one yeirr's experienceas scr iut lnaster or scout execut ive iu Boy Scouts of Aner ica; (3) soundphJ',.icai conditiou rvitlr rio di,cabling rlefects.

DUTIES

1 and 2. As direetor, plan a eomplete nthletic program for an institution suchas Jamesburg covering all sea-soils of the year'. All essettial competiti 'e andriorrcornpetitive actiyities shoukl be dealt rvith. also the problem of coaching,employment of self-governnent. if t' lesirable, etc. Do not touch on tlre srou.iugphase in J'orlr ansNer to this question.

3. State the pla"ring rrles for the following gfirnes: Volley bail, Jiitrl-grourrdbail. treasure hunt. duck on a rock.

4. I.)xplain the ralue of calisthenics and setting-up exelcises for latge groupsof irol-s antl descril-re bt'iefl)' at least thlee sttt'lt eretciser..

5. Outlile clearl)' yout' metho<l of introtlnt iug tht' fotlor.r'ii lg ,qrlbiects to agroup of tent ler foot ,scouts: ( r , t l lespec: t for the Arnel ican f lag: (b) i la ture-" tudI ' : (c) r roodcraf t ; (d) f i rs t a i t l anr l l i fe saving; (c) goo( i c i t izenship: ( l )l ie l 's0nal I i5 g iene.

C. IIox- should tire foilorving t.rpes ofThe backl 'ard boy; (b) the bul ly; (c)

7. (a) Di-scuss fully the value of the

boys be handled by the tlirector'; (o)the masterfnl bcy; (d) the quiet boy.prltrol leader in the promotion of boy-

scout \York.( b ) Outiine at least trro rh'ills or demon,strirtions of Talious phases of boy-

scout wolk t]rat t'ould be feasible for arr institutional troop.S. \;Lrne at least 10 accomplishments for rrhich merit baciges are arrardetl

itr scouting generally ancl inrlicate briefly those 1'ou consider nost feasible forboy-scout lvorh at the State home, g iv ing reasols i r r each case.

\Yeight ing:Expelience anil training- 4\Yriiten examination- 3Oral examirrat iorr- - - - - - - - 3

10

8._ASSISTANT PROBATION OFFICER, UNION COUNTY

Salory.-$1.980-as2.520 ller "r-ear. Inr.estigatiorurl trntl esamiiling service. GlarleI I I ( K _ I I I ) .

Dttlic.s.-Ilnder the superlision of thc probation olllccr io assist in cariyingout the county probatioir '*-ork : 1o make slrecial investiga tions into the livilg con-di t ions. home enr i lor imeni . schools. and placcs of emploi inent of probat ioner;1to rnake special studl' and ('orrelirte tlata coucelning juleuiie delirrquents andother cases coming to the attention of tlie probatiou ofice; to prepare reportsort t'esults of inr-e,stigatioris: to assist in seculirrg ernplo5rnent for probationcrsand to pelform othcr related n'ork rrs recltired.

Qu.aliftctttiott recluiretnents.-(1) Higtr-school education or training and ex-perience consiclered by the civil serr-ice cotnrli,qsion as of equal ralue: (2)alrplicants should have at least one J.ear's experience in social rrelfare orphilanthropic \york or experience irt n'ork of rr closel-r ailied nature. f,Iusthar-e klo'nledge of la\1's relating to probation rvork, juvenile courts, courpulsoryeducation and child labor; (3) candidate mu-qt not be le-qs than 30 nor tlor.ethan 45 years of age at the tirne of the examination. Any candidate rr-ho hirs

1 No distinction between adult and juvenile probation is madc in Union Count1'.


66 N. J. cErLD I'ELFARF-.rATE slrpER'rsro\ -'\D cI'rL sERyrcE

passed the birthday on which he became 45 yerrrs of age is r()t eligible. Ap-pointee must devote his entire time to the rvorii! (l) -qountl physicaiconditionwith rro disabling defecrs.

DUTIES

1. Explain fulli-._ the purpose and value of the probation systern.z . (d ) \ame a l l the .pena l a r r t l coner r i , r t rF i i r rs r i fu t io r r * ' rbo i i r S ta te a r r t lunion county) with rvhich a" assistanf pr;il;;ion oflicer srrould be faniliar._- i .L) \ame one cl irr ie, one h"spital, a^nrl t l ree clrari table oi.gui, izn-t l , ,rr . i ,Union Count.y.

3.an! 4. (o) What civic organizations and agencies c:rn beProbatioD r.\'ork ?

(b). State ful l) ' the nature of the l ,ork carret l out by each oforgalizations or agerrcies,(c) Discuss full)' the _varue and purpose of cooperatiou betwee' a co'nr),proba^tion clepartment and the valioris oi.ganizations^ namea ab,rrlel--

'-

5- outline -fully rvhat follo'''up rvork, if any, should be carjriecl o' I]J, anassistant probation officer.6 . (a ) \ \ ' ha t a re juven i le cnur ts?{b) $-hat purposa do they ser\.c. j7' Give a brief summary of ilre essential features of ilre compursory etluca-tion laws.8' Describe in detail t'o cases either real or imagi'ary 'equiring action bythe assistant probation ofiicel and state \yhat action"shouirl-b'e.iikei i'rla v'nutrecommendations, if a'y, J'ou l'ould make. rf the cases uiu u".i*r"al b*

"u.u-ful in your statement of facts, so that the case can be corinnetf t,i iir! iurl,saic-tion 0f the probation department.Weightings given.

E-xperience and traiuing\yri t ten exanrirrat ion

of assistance in

the above-named

4

,

10

-.The followinE list of duties -and qualifications taken from a uniterl statescivil service examination for junior social eco.omist 'ia1.i" orl"le"nrt as asupplement to the preceding:salorE.--$1,8€-0- per annum, w'ith possible advan.ement to g2.40o with experi-ence' Irarch, 1926. x'or vacancies in chilclren's Bureau, L-nited state.s neirart_ment of Labor.Duties.-To assist in field stuclies relatilg to the extent, conrlitions, a1d regu-lation_of.the employment of minors in different industriei uno ,,c.iipoiions anrlthe. rel_ation _of industry to child rvelfare, ol in sturlies lelating io p"orrr"-, otchild de^pendencl',.neglect, or cleliuquencl-. or in other field siuaies of condi-tio_ns affecting child lvelfare. Fiekl *'oik inclucles intervi-ews-iltih"t,ur"ot",

ehildre-n, offieials of publie and ^prilate agencie-s, and e'rplo!-er:s. ana inatysi,{of p'.rblic records and records of pubiic and priiate agetrcies -ano-iir.stitunons.

- Prel,iminary requi,rement (qual,ificati.ons).-Applicanis must,shonj tiiat ttreyha'e been graduated from a eollege or university of recog'ized stanoing wittrmajor n'ork in social economics, ivhich must haie inelutled not tesJ-than 150hours of actual field work under supervision. Applical'rts .rvho can .rot stro*suc'h majorvr.'ork in their undergraduate courses-inay sub-qtitute one iear orgraduate study in social economics or in a reeognized school of social-.liork, orone. I'ear's experience in social service or social research, suctr posi graduatetlaining rir experience to have included not less than 1i0 trou.s,jr acfiial fieldwork under supervision. observation visits to institutions, agencies,'industrial,establishnents, etc., n'ill not be considered field work. Adrliiid;f'c;;ait *ittbe given in the flnal average for education or experience io e*cesi oi ttre mini-mum requirements,

-49o.-Applicants must not have reachecl their fort}'-trfth birilrday on the datsof the eramiuation,


APPENDIXES 67

BLANKS AND FORMS

. Eve"rv statement in this application and experience sheet is made under oath. ft is impor-tant that esch statement or answers be accurate and truthful. False or misleading statementswill be cause for rejection.

/ Application number

State of New Jersel' Civil Sc,rrice Comrnission, State Capitol, Trenton, N. J.

Applrcrtrox Fori I'rrE I'osrrtos

of _________.( writ J praia r-v ;t;-ct itu" ;?-p;itro"-.ppu"a

-r""t - - - - --

Read carefully

1. Before fiIling out tliis application and experience blank read carefully allthe questions askcd ard all iristructions or regulations prirted hereon.

2. I'or State positions applicants must be citizens and residents of the State.For municipal positions (unless otherwise ordered) applicants must be citizerisand residents of the municipalitl'.

3. Applications will be received only at such time, on such tlates, and for suchpositions, as are advertised in the public press antl posted iD the ofices of thecommission.

4. Ilver;' cluestion on the application ancl on tlle e\perience paper must beproperly auswered in the applicant's own handwriting. Use black or blueink onll'.

5. l'he ciril service <.ommission rvants a clear statement of all the facts inyour past experience and training which would tend to qualify you for thepositiou J'otl are seeking. Elasive or indirect answers v.ill irot be r.reditetl.

6. File your application early. \\'hen t$-o or more eligibles receive the samerating preference on the eligible list is given to the eligible who first flled hisor her application.

7..l'he rating on experience and training nill be determined from the appli-cant's past training ancl eriperience as shown on the experience sheet attac[eclhereto. No-supplementar)' statement wiil be received after the closing datefor the receipt of applications. Applicants llill serve their owrr best interestsby plain, straightforwardness, and complete statements of fact.

8. Applicants will be rrotifiecl of the time and place of examination. Appli-cants must give notice of change of address.

9. This application must be srvorn to and leturned to the civil service com-mission. State capitol. Trenton, N. J. The commission is not responsible forthe delivery of those sent bJ' mail, and applications upon which postage is notfulli- prepaid rvill rrot be accepted.

1. trIy full name and resiclence is ______________ Street, city ortown

2. I r rm --- - - - Iears of age, and was bom at _ o l r t l re__- _____day of - - - - - - J-ear - - - - - - .

3. I have beeu a ct.rntinuous resiclent of the State of New Jelsel. for a periodo f - - - - - - - - - , and o f - - - - - - - : - - - - - - Coun ty , ___ - -_ f o r a pe r i od o f __________ .

(Ci ty, boroush. or torrn)4. Ale you a c i t izen of the L-ni ted -qtates? Als. ( Ies or no)______. Are

you a naturalized or born citizeD':(a) I f a natural ized c i t izen, how do. \ -ou der i \ :e c i t izenship? Own or

f r i l l e r r t ' s pape rs ) ______ -__ - .(tr) If a naturalized citizen, has your owu or parent's or husband's citi-

zenship been proved to this courrnissiorr since .Ianuary 1, 1920? Ans, (yesor no)---___. If .ves. stato in(le\ Dumber stamped on your citizenshippapers b.v this commi-ssion. Iurles rrurnber If no, you must flle rviththis application your orvn. huslra'rl's, mother's, or father's certificate ofnaturalization, an affitlalit form rnu-st accompany certificate, other flran]'our orrti. Affidavit forrn will lie furni-shed on request.

5. Have ]'ou eyer flletl an appiication with the civil service commission folanyposi t ion in the State or . rnunic ipal serv ice? Ans. (yes or no)___-__.

I f yes, state posi t ion and date exarninat ion $as takex.


68 N. J. cFrrLD wELFARE-srATE supEnylsro\ .\^\D cr\rrl sERvrcE

.6. llaye l-ou ever been- arrestetl, ot complailetl of, orvicted of, alry violat ion of - law? Ans. (yes ;. i l , r__ __ .(o) If yes, state full frrcts regarcling each ot _!u(i)

indictod for , or con-

r l lests or cornpla i r l ts .

-------------------------- ----- ------:r- -(b) rf , indicted for,, .r con' ict"a ui, nn.i". i l* , ;G;; ir ;". , i . . ia".

""Jsentence, state full facts regarding such inciictrooiit, .""rl.ii,,rr. ,lr'jr.trriru,.ment,- 7' we.e J'ou eyer in t,e ?ilitarl or rraval service of tbe r--uiterl Srrte.. or i'the National Guard of t l l is State? errs. ( ies-or no)___-__.

rf yes, state whet!_e-r ]-ou s€ryed during tne ciiir ii ar, philiiriring i'sur-Iection, the \yorld \\:ar, r;r irr time of ieace. sttrte seri;rl r1rr15er if iuArm1., Navy, or Mtrrine Corls.Serr-ed in -_--__,____-,___ ___ \\ .ar from _ ro ______

ig-.------.------ with the rtrnk of ---------- ( lronih ari t l t lav i l ' " ' r l t - t" iJoav]

( i:triincir of serYice )8. \ !-ere you honorabl5't l ischarged? Atrs. l fes or no)______.

- I f yes, has your l torr lr i t l r le t i isrharge been provecl to gris comn:is: i . i , l I sinceJanuary 1, 1920? Ans. (fes or no)-______.rf -)-es, state indcx 'umber stampetr ou rlischarge papers b1- rrris coru-nission. fnt lex nunber ______.

^ rf.lo, lou rlust fire with this application your original paper.s. or a certi-ficatiori fr,r' the rc.')rds -of the Atlj.tant _Ge'erar.s- ,rm.6'il1iJi,., ,state, of^ the frnited i:tates. or tire Secrctary ot ttre Nar-y.v. \ \ 'ere I,Ll $'ourlded or otherlvise disablecr iD l ine of dut]- Arls_ i ) es orn e i ) _ _ _ _ _ _ .10.-rrar'-e )-ou eler receivecl vocatiollal training or compensati(,r f{)| s...ullcrsr;r othe-r_dis:rbility incurred in^ii_r:re 6f.dutJ- froni the Ferreral Boa.li ior voca_tional_Education, the rlureau of \\:ar rtisk"rriiulance, or gre veterals' lJ*reau?Ans, (Yes or no)______.

rf 1'es, hale you estabrishecr proof to this commission -sirrt.e lrrrri:h 7,1922? Arrs. (Yes or rro)____.If -vou have rrot establ islred such proof,Jou must f i Ie. in adtl i t i r , l l i {r } ,ouroar records as calrerl fo. i . q.est ion ei l t i t (g), pro.f , ,r ait ,rr,- f . f snchvocr.tional tr:riniug or conrperrsation.

Inzportatzt.-The ralv 1,ro'iclgs rhat certain serr.ice creirits and prefererrce incertification and apDointurent shall be gilen to tronornrrlv iusc-ilai.g.e-a',s,,raicr..,sailors, mlriles, a|rtl Army _llurses.

'Applicalts clrliming such'cri:clits a'dlrreferences ntl-st subrnit rt'corris rs irei.eiri i.equiled. xo ruiihei:-rlqou*T voiu nernade_fol an1'rnilitary rcc,ords. Service anti lueferelc"

"".*rii"-":iii'tx, estlit_r_iish_ed uDon the basis of_ tire r.ccortl,* presenteci in response to thi,s Dotice. Nocledits will be added rnd ro chariges iiracle in the elisibio-]is;"ail;;,it'ln i*s'eri.11. check rnarittrl c,rcitions. siugre ( ) ; nia'r.ietl ( ) ; wid,olrerl ( ) ;t l i lorced ( ).

12. Is your hoiith such IIS to_onabic you to lrerforrl eflicierrily fl10 duties ofthe^posit ion ;, 'ou scek' l Ans. (yes o. t u)_____-.- 13._ I lave you.any defect of hearing, sight, spgscS, or l imb? (If t l rr : . . sr_ntethe defect and i ts exteut)__-___

- - ; ; -- . -------- -- . , : ; -14. A.e you $'iiling to undergo a medical and phlsicai ex.''.iratiou bi- aphysicial of your own sex, i f required? Ans. (yes- oi nol______.

- ' ---

VOIICHERS

These r,ouchers must not be obtained until the applicant h:rs completely filleclin the app l ic r i t ion rn r l l l re exper ie r r t .e I r I ro r .Three reputable citizerrs .(male or-femaie) re-sideirt in the State for statepositions, ard i' the m'nicipality for municipal po,sitions, rusi- r-oucrr rorthe hones.ty, I'eputation, and.ability of the applicant. The vouchers ilremservesmust fill in the r-oucher certiflcates and sigrias indiyicluals.

. Vouchers should read carefully the staiement to which they certify beforesigning.. I, the undersigned, declare that I am over twe'ty_one years of age, that Ihare personally known flre appiicant for one year, tlat r Lal'e reao ErrL nnoreof the foregoi.g applicatio', and the attacheal experience pape", ao,i

-beliere


APPENDIXES

aU the statements therein to be true, To mJ' personal knowledge the applicantis of good character and reputaticn aud has not, to my knowledge. any rnentalor physical $,'eakness or infirmity s-hicl*-would tend to disqualify him or herfor service sought. I u'oukl cmlrloy the applicant in prir-ate business ifopportunity offered,

I rvill, upott reque-st by tire comrnission, gile such further facts concerningthe applicaut as I ll ay posses-\, ilird ani rvilling that this stateDrent be madepublic if necessary.

Vorrcrrrn No. 1. NameOccuprt iun

Dnte - - - - - - -\roucrrnn r\o. 2. ){itme

OccupatiorrCitY ctfIiusiless utklress

Name -----_Occupation Stt'eet.

Citr cifRusine-qs irclclress

O,\TII OI. APPLIC,\ IT

Oath uray bc takcn before any l )cL,s() l l autLl l ized to at lmini -<ter oaths.

Srarn or Na'w Jnnsur,Colot tA of __-_-_____. , : . : :

Personlrlll- npirerlrerl l;ciolc rne thc undersignerl applicant, rvho. being duiys$()lu (('r irllir'rrlc(-i), -{aJ's tlrirt tlle se\-erai statements contained in the fore-going application aild the attached experience prl)er are true to flie best of hisknorvleclge and belief; and that the clepolent rvho has signetl this apirlicatiol isthe person intended to be exarninerl b1- virtue thereof. and that the sereralquestiorrs are ansrvered il the appiicarit's owu handrvriting,

(Signature of appl icant . ) ( I f female pref ix , , t r l iss, ' or , ' lhs.")

, l , r r ' , , F 1 o . )

( I I ) 'on have an o f l i c ia l s r . l l t , . i f l i \ i t )

69

Date --------Voucnrn No. li.

Sworri to and subscribed before rne this(Signature of ofR(.er)

(T i t le )

It is a misdemeanor to oltstru-et right of examination, to malie false lepresel-tatiorr. oI to irnlier-<oilaie atlotller.

Ci t ' i I scr t i tc lute , sct : i i t t t t .JS.-An5'comrniq( ' ( ]ner, or examiner, cr a i4 'petsoun'ho shall n'illfully, by himself of, ix cooperation with one or more persons,tlefeat, cleceive, or ob-struct an1'persorl in re-slrect to his or her right of r,raui-nation, rrr regi-stratiorr. accorcling to liis act or to an) rules {,r. rcgrrhti,.irs rrre-scribed pursuant thet'cto, or who shall rvillfulll- or corrnpti.r' ralseiy Drurk,grade, estimate, or I'el)olt u1x.rn tite oxanrilzltion or IlroDer staudiDg of any.lterson ex:t[rirretl, r'egi-sterrtl or c,t'r.ti1iel1, Ijur-rulu]t to the ]lrtx-i:ioris r,f thi-r ilct,nr aicl in so doilig, or wII-r shail l ' i l l iuih' c,r cormptly rnake aly false relrr.esel-tatiurrs conceuring the same, or cuncerning tlle itsrson eratniued. or who _shalln i l l f u l l l ' u t ' ( . ( ' r r u n t l l f u r n i s h t o t n . \ ' I r e r s u l i c l r ! s l r r ' , . i : r l o l . s e r , f ( . t i r r f r r r r l a t i n r rfor the purpose of either improYing the pro-spects t;r chances of un1, lierson soexaminecl, registeretl or certilied, or to be exirminetl, registered or ceitified. or\\ho shall persorlate an.v other pel,son, or llelmit or aid irr any manner any otherperson t() personate irim, iil corrnectiorr rvitli any examination, or registration,or application or request to be exarnined or regi-qtered, shall for each offense bedeemed guilty of a misclemeanor,


70 N. J. cHrLD wELt'ARE-srATE slrp_nRvrsroN A)rD cr\rrr, sERvrcE

Exan ina t ion No. ______

State of New Jersey Ci'i1 Service bommissiorr, Statc Capitol, Trenton, NewJersel.

ExpBnrrNcn P.Lpun non ruu posrrtox

o f _ _ - _ _ _ _ _ _ _(\yrite plainly eract title of position applied for,1

Give clear, definite, and complete information, as follows:1. Age - - -._-_ _

(Years) (Monrhs)in the U. S.? --------- How long have 1,ou l ived in New Jersey?

I{orv iong have you lived in the cit;' or ton'n in rvhichy o u n o w l i r - e ? - - - - - - - _ _

2. were )'ou ever in the service of the state of Nerv Jersey or any count;., citl',borough, or torvn therein? Ans. (Yes or no) -_ ___

rf ]'es. state in Fhat positiontr R$X,'?lilf ,Titl,l,:"oiil.il*,

q 'tepartmeDts, betwee"n whar dares;H::";i.t"H llli**"ll;Xlli.-issar or ranurc, or uhcrher

"#T#bf,??A':'menr'' and' ir so, the date,

Was employed as - - - - - - -_ in the c lepar tment_-___-__f r o m - - - - - - - - - - - - - - - - - - - - t o - - - - - - - - C a u s e o f l e a y i n g _ - - - - _- - ; - - ; - - - - ; - - , - - - . -

.1. Lreneral edUcat lon:

Length ofattendance ] Dates of gradu

i ation or gradcsI I attendcd

Years l lontbs

('ourses pursued Names of schools

Name of institutionor establishment

Elementary school-- - - -

Iligh school-

College-

Ill l- - - - l

, 4. Technical -training (specialDUSTnCSS Or DTOIeSStOn) :

training which qualifies for a particular trade,

Special or rcgularc0urses

Certificatcs ordegrees

I-l

III

)UniversiProvided by the Maternal and Child Health Library, Georgetown ty

APPENDIXES

5. Indicate below all the oecupations or emplc1'ments 1'ou have had duringthe past ten 1'ears, and other occupations or emplol'ment 1-ou have had rvhichrvoukl tend to c4ualif;, ]-ou for the positiotlsought.

7 l

Dates of employment Length of cmploynent

Title ofposltloD

Name, address,and business of

cnplo-ver

\{onthh'sal.ar-Y 0r $-agc

reccived

Ciraracter ofIork, records,

plant, or lvorkingforce supervised

Yr.\{o.

F r o m - - - - - - - - - -

T o - - - - - - - - - - i - - -

XIo. YI

F l o r n - - , - - - - - - -

I- - - - - - - l - - -

\Io. Yr

F r o m - - - - - - - - - -

6. State an1- other exper ience or t ra in ing in acld i t ionhad u.hich rvoulr l tenr l io f i t vot t fc i r the dut ies of th isfacts alreadv stated.

to the foregoing 1 'ou havepos i t i o r r . Du t r o t r e l , ca t

Norl.-L-se a,lrlitional sheets of *-hite ruled paper if

-qlTrrE orr t.-rtY Jrnsrt.Ctvn Srnvrcc Cott r r iss lo l ,

i 'rt: ttt ott.Deen Stn: \Ye have your appl icat ion l r lat l l i fo l t l te i rosiL i r r l o l - . I l

connection rvith this examination \\e $'ould tlilect your attelltioil to the require-merrts set forth 0n tho inclosed inforrnation {l}eet. r,r tlie tDirtiruurn re'tluirerneltsestablished by tile depaltment for catldidtlt.'-s to be eligible to euter the exam-inaticrn for thi-q po,titioil.

'Ihis cornmissiol i-s not in a positir.rn to change the requirements establisliealby the various departments, Llut i-s requiretl to atlltere to them as a rnillirxumstaudard ancl chech tlie eligibiiitJ, of the different canclidates accordiugly.

Iu checliing over the experierrce ,sheet 'n'hich you have subnitted it cloes notseem that your experielce meets the prescribed requirement-s. \Ye thereforebeg to atlvise that $'e are unal-rle to cotl-sidel you a,s being eligible to corupete inthis examinatioD.

Very truly yours,Ctvrr- Snnt rcs Corrlrrssror,CuAS. P. ] IEssrcK,

Chief Eraminer and Secretarg.

,L


72 N. J. cr{rlD IvEL.FARE-srATE supERvrsroN AND clvrrr sERvrcE

State of New Jersey Civil Service Ct.rrnmissiol

Crgtrr.rcetrox or Er,rcrsrus non ApporNtlrrxt

Read carefully

7. appointnterrt must be made to flll vacancies irr *-irich temporary appointeesare serving within 14 days of the receipt of certifcation. ebards cn'Lorunis-sions meeting moDthly or at greater iltervals must make appointmeDt at thefirst ueeting Iol l trrvirrg lrcei l , l of t .el t i f i r .al iorr.

2. ,\ll appointrnents are made fu* a prr_rbatihary period of thr.ee months.. 3. rn_ all services operating under a slandard classffication, appcintment mustbe rnade at a rate not exceeding the mininun of flie scheduie.^

"Appoiltment does not insure automatic anriual sarary increases as persalar.r' range. Advarrcement in -s4l21y atrd promotion in tire service irredepeudent upon merit, vacaucies occurrirg, recommendations of appointiDgauthorities, and current rrage levels in private iudustry. nsiautisneaschetlules are subject to chan$es for gor_rtl cause.,'

4. To fllI one yacanc)-tht narnes r,f the three highest persons n'illing to acceptappoirtment n-ill be certifietl from the appropriate etigi^bte list. For

-more tnan

one vacancy tlierL. $-ill bo certifieci the names of as many eligibles as there arevacancies to be filled and trro additional names. rf the name or name-{ or avetcrarr or yeterans are included in tht' number entitled to consideration forilppointment. the choice of appointrueut is iirnitetl to such yeteran or veterans,(CJr._?9-8. P. L. 1020.) Tbe rramcs of reterans are, marked thus: (V).

5. ri'ailure of an eligible after certification to reslroutl to a notice from ilreappointine artirority, to call for inten'iew or to lrccc,llt flrc terrtler of ttu aU-poiltrnent within three days, Sunday excepted, after the maiting tlf _.uch noticeor teil(ier. or' rvithin trvo days, Sunclay excepted, rvhen -such n-otice or tenderis sent Lry -special nessengel ol telegiarn to his aclclress last sho$,n on therecords of tiie civil service commission, rviil be considered a declination ofsuch ptlsition.

l'nr:rrox, N. J., _______ __. 192__

To- - - - - - - - - -(Dept . , Bd . , Com. , o r ins t i t r l t ion)

Dr.qn srn: certincatioiiot-A;;l;ft;";;til;;'-,-;;;;vided b5. la*., is hereby

made to I i i l - - - - - - - - - - - - - - - - - - - vacal tcy in the pt . rs i t ion of ________

I - I i i i p o f ! o s i t i u r r )

i rr thc

for an

Very truly yours,Tnn Crr'rr, Ssnvrce CourrrtssroN.Crrenlrs P. NIEssrcK,

Chief E.,raminer anitr Secretwut


APPENDIXES 73

F r o m :Subject : Certification.T o : - - - - - - - -

Sr,,r.rn or Nnw Junsnr,Crvrr, Ssnvrcn Corrurssrol,

Trenton, N. "f . , ----------, 192--.I

Drrn Srn on ll.roelt: You are atlvised that on this date your name has beencertified to ---------- as eligible for appointment to the

(Dept., Bd., Con., or institution)posi t iou of - - - - - - - - - - - l r i i l r - - - - - - - - - - - - - - - - - - - l (1" ;a; r - - - - - - - - - . a t

an i r l i t ia l salar-v of not more than -- - - - - - - - - - - , subject to the regulat ionsbelorv givel. You shonkl commurricat'e rvith the rtppointing authoritJr at oDce.

L, All allpointments :rre for a probttionarl' pel'iod of three rironths,2. In all services operating urrtlet a standard cllrs'sificatioir appointmetits

must be Dracle at a rate not exceeiling the minimum of the schedule for thegrade.

",\ppointment does not insute automatic aDnual salar'5r inglglse as per

snlary r-ange. Adrancement in snlary arrcl promotion in tlte service aretlepeiltlent Upon merit, tacancies occurring. recomntenclation of appoititingauthoritie-s, antl cut'rent $':rge levels iu priYate industty. Establisheclscheriuies nre subject to change for gooti cause."

3. \Yheiteler tlie trame or. nilmes of a vetelan ot vetetans are iucltrt'lecl in the

names certilied for entrzluce appointrnent. choicc of appointnent is limitetl to

such vetelal or Yeteutns.4. Fuilure to respond to a retluest for trn intelvietv of any offer of appoint-

ment froru flre epfir;intiug alithoritl. rvitlii1 th|ee tlirl 's, Su1th-r' ercepted. if

forwru.tled i,1' rtr,,i1. or .$-lthin trvo riays, suntlay excepted, if seni by specia,l

me-s-sellger ,,i t"legttr,tt. l-ill be con-sitlerecl as a tleclination orr the part of the

eligitrle. The names of eligibles rlec:Iining :rplx.riritrnent rviil be rernoved flom

the eligilrle list rvithout fulthel noticc. urtless -such eligible forrvartls to tlte

civil ser.rice commissiou a satisfilctor-v leason fot not tccepting tlte apltoint-

ment and re(lrlests coDtinuaDce of his or her nanle on the eligible list.

5. On accepting apirointment the name of an eligible will be relnoverl from

tiie list frotn-rvltich appointment is made :tnd from all otiler lists on whieh his

or her. lane na)' appear urrless slrccial request rvithin two weehs after such

appointmerrt thai his br her larne be continuecl o1 such other list is matle'

\:e|Y trulY Your-s,Trm Crvrr- Snnvrcn tlorrrussrox,Crrlnr,r;s P. IIESSTcK,

Chief Enaminer attd, Secretar'Y.

State of New Jersey Civil Sei'vice Comnission

Rnront o.r' Nu:-coupnrrrrYE ExAlrrN;lrroli AND lPPorNlMENl

Reatl carefullY

1. Rnle-c governing cxauirration for aD alrpoiltment to nolrcompetitive posi.

tiorrs on the reverse side of tlte slleot.2. :\py;iirtDrents to noncornpetitive pusitiotrs :rr'e cotl,sitleretl lrs permanent,

subjecf to three months' probationary scIYice. l'enrpttrirry appointmeltts, except

in positions rr-hich are purely telnlx)fary, $'ill Drrt be recognizt'cl. Appointmcnts

may be matle only after the requi|ed exrtmirratiorr.3. The civii -.eivicc' comrni-ssiorr is cocrperutittg rvith the boatd of trustees of

the state ernployees' retirement sJ'stcln alid the data lequired belorv (for all

State positions) rvill be utilizecl b)' tho said boir|d \'hich rvill require uo other

appoi ntruent recc.rds.-4. Citizens only are eligible for ernli.loyr'ent. Naturaiizecl citizerrs must pre-

sent final citizenship papers to exarnining boartl.5. Thi-s form rvilf be accepted both as the report of the examirriilg boarcl and

appointment by the appoirrtirrg authority, antl mu-st accompany the iir-st pay

roll; otherrvise such pay roII n'iII be disapproved'

(Title of position) (Department, board, commission, of institution)

L

Provided by the Maternal and- -

Child Health Library, Georgetown University

74 N. J. cHrLD WELFAEE-SrATE sul,Erl\-r-irLr): -{ii} 61y11,

'I'rrn Srarp Crvrr, Sr:Rvrcn ColrvrssroN,Trenton, N. J.

SERVICE

, Th is i s t , ' . t .e r . t i f ) ' t l ra r l . l re per .so l namet l be lo$ . , I rnv i r rs l rce i l r l r r l l . i l omrn i l tedlrl'tlie npp.inting auttiority, has been exarnirrAd'ir, ""io1,i,i",.',_.iin"ilr. civil_service mles lnd the arrove.r 'egulat iorrs; has been t,rula qirai ir i" , i l i r . t j rn po.i_t i . I t indicatct i , ald tr.r t l le best of our knorvlei lge arrd bi i iei ' i i ," ' i i i t , ,r ,-ut ioogivL.n respecting the applicalt is correct:

1. FUU nalne __ _____2. Adtlress

t street ano nuniir , ; i ---------- l Cif t---------- i S;;t" )---- -----

3. Date of birth______(ri;nth )-----_______lilrr_____-____-_l_r*.i____

4. Phce of birth____*

5. ci t izenship (statei----------- l ' ; ; ; i 'T;

- ('ornl

------?l;t;;?[retr.;----*--ii:lfiZe"stiirii,rr,*1,..."-;t",rJ

6, Date of examinatiorr__________,_7. Date of appointment___________

8. Monthlv salarv] (rash

l -\ a lueormamienancel

lTotal salary I Kinri of naintenanco

(Appointirg-a-u-t.trolit),)-- - -- -- - --

( l lonrd of examiners r- ------

Legen^d: 1 r\ [ , one mgSi-, Z ft , t$o n]eats; B l I . three rncat,s; lL ful l Drinte.nauce; S II , ,special maintenance to be set ooi io , iutui l .

I Relerse J

CIVIL SERVICE II,ULE X,-NONCOIIPETITI\]] CLASS

sucrrox r. trvhat 'rt srt-url irrclrrde.-po,qitions in the noncompetitir-e crass srra[be those of a minor character, ti e nriiiig^-of .*,hicrr is impracricable eitherthrough competitive exaniirration^or til;idh ;gistration under the pr.visicusof Rule Xr, ancl which are spec.ificalry "ui;,til"i-p*iidri'i,-irrii"i,'ii rr"..bymade a part of this rule, or i'hich -uv rr"teatt"r by action of ilre colnmissionbe included therein.

Sncrrox II. I)tatninatioras._Exarninations for_positiorrs in the ricrii:ompeti_tire crass -shan derernine the qualifl.;1i,;;; Ji tne appticu"T ur-io'""riirenship,age' physical condition. moral ihuracter, arici-req'isite k'orrledg. a'cl abilityto riiscirarge the d,ties .f the positio" sr,,rslri. ri" ..or"l"isrirri'looi"p"".."inusuch uniforrn standartls irs to quarificatioirs antr te,\t-j as lray be corrsirleredfor thei best interests of ilre serviceSncrror III. Boarrt ctf e,rarninerx._,Ihe c0mmission niay appoint a boiiltl oferaniners in each m'nicipality. ffi.e, department, or i'stitutio' lu rr',it.h non-cornpetitive positiorrs occur. Slch examining boarcl shall tre

",r,il,nu*ii ,,r ootless thilrr three of the superior-r)mcers or effioy"". or sucri m*uir_.iparirJ. oflice,(lopiiltlnent, or institution, and it str,rtt transmi? to flre col''rissilu. at tlie eudof t'lleh ntonth, a statem€nt of the results of llie exainirratiols <:outiuctetl clur-

l1F ..1.1 rnonth, setting fortlr on^th_e forms proi-hed for ttris f*.l.,,,*n'l1rl ,,,.rru,()l rretsc's e'xamined and qrialifiecr and tG narnes ,f p".r,iu"'a1,1ruiirieo, trre

:.lll]lJ]:ill.*tio" ,f each, and s.ctr other informarion ai tUe c,'uiis_"ior, ^uyl '( ,( lu r te.!tcrro\ rr. vctcran. prefereltce.-The appointing officer sha[ serect f(]r aIF

l: ' ; , ' ," ] ] ] l l i t f lonl 1p,rn* t lrosc \\ .ho a"e tounA'q"ati f ier l as the re*ult oi eriamina_rr,rr. \ \rrn S.l1' I 'ogard to.rneri t-and f i tness, except.that honorably dischargedsorrlit'r's. sitilors. aird marines *ho have p*,ir",i-trr"i.;iisillil;j,-;rr".oilJri uru*_inatiorr shiill lie pteferretl for appointmerit. --

x s'rcrro\ \-' prortalionary piiioa.-lppointments to positions in the non-comp€titiye r'lass shar be for a probationiry period of ttrree ,nontrrs anct sha]l

board^ to Jhe gppo in t . iDg au{hor i l l i s acceoted bv the(er l i t i ca t iun fu r appu in tment . -

* Tbe re tu rns o f i l recil i l servicc cilurmibbiun

examin ingas fo rmal

t _

UniversityProvided by the Maternal and Chitd Health Library, Georgetown

t i )

be made in the rnanner prescribecl in R'te rX co'cerning compefil.ive exam.inatio's. Suspension, removar, ,fine, reducJion, cir tliscrraige ot-u,,ipiuve"s inthe noncompetitive class are subject to,il fhe pgorisions ot'R"iu fit"'

[Sce general instructions on reyerse side]Shec t No . - - - - - -

QUAR'TERLv Errrcrnncv Rerrrce Rnponr ro crvrr- sr.nvrcn coulrrssron

Reports must be matle _for -the quarterly periods e,ding rrarcrr 31, June 30,Septernber' 30, ancl December 81.

A_s€'l)a.ate repo.t is to be prepared for the employees in each service (clericai,ensille('f il1g, etc.) undel' each ratirrg ofiicer anrf forrvarcletl to the cir,-ii servicecornrlis-sittn not Iater than tire l0tlr of tLe rnonth follorving the entletf neri,,tl.

APPDN I)I_ritl$

Report forI)epartmerit

period

Bureau

, N-lT". of. ell .emlrol'ees in the same se*.ice rurtler ercrr rating oflicer are toDe entere(t ln:t l l ,haltel ical or.der' . grouped ar:colcl ing; to grade, in i l re space be_lon'. a,d tlie ratirrgs 'rarle i' per. c.nt u'cler each iactor-,rt eni"iericy. "'

l lat i lLr ' ,scale: l jxcel)t ional. go l l€,r c(,nt or abor.e: r.n"y g.,,- i t .-s; i- tu oo p""cent; good,_75 t. .85 per cent; fair ' . T0 to Tb per.cent; . ' iat isr.ctor) ' , belon, T0per cent. very fe'v emplo}'ees shruld be raietl as exceptio'al; coirparativelytew as very good. The-majority of emplol'ees rencler aie.ailo g,,uiL-oi.ur"n.

The weights of the factors of eflicie'cy for supervisor5.'oi actmilistrativeposit ions and l ield l 'orkers are: euai i ty oi rvolk, +; q"uirt i ty"ot- i lorf. , '+; p".-souali ty, 2; attendance, 0; discipl ine. 0; totat. t t t .tr'or' lrositions under supervision: eu.lity of rvo.k, 4; quantity of rvork, B;pe.sonality, 1; attendarrce, 1; discipiine (the riraxirnuri ;;i;,s.i; disciptincsha l l be 9o) . I ; to ta t . 10 .Rating oflicers are retluestetr-to,enter ratings untler ll.aritv of *,o.k. quan-tity of work, pers_orarity, and discipli'e, and ti, make adc*rato i"po,ii ,r, aoy*allsext, times tardy, and -other delinquencies of attenduce. rne'ciitt

--.ervice

corn.rission r'ill enter the rating for atterrtlance and "uorpolu

tiie- gerre.ataverages.

IQuali- Quan-ty of I t i tyoiw0rK r worx

i

Gen-eral

aver-age

Date ofapproval

Approvetl :(Head o f bureau or . d iv is io r r r

Approved : _"__________( l l ead o f do l l a r l uen l )

( ' r l l r ' a n t '

(Rating offlcer)

IReverse]

GENEBAL INSTX,UCTIONS

1. xJffciency rati,gs are,requi.ed for estabrishing efficiency ancr supcrvisorS,control .over_ emproyees.; .for recordiilg rne.itorioris servicei ior-- ae-t'eimini'gcredits to rvhich candiciates are entitled in proil]otion "-..uttiirluiiour.

-arro torestablishing, on the basis of retative efticienc-y, ilre ortler ;i kJ,:;fI ;elnstate_rnent, tl'ansfer, etc.

34i63 o_27_.c

tr'actors of efficiencyApproved

Provided by tire Maternal and Child Health Library, Georgetown University

16 li. J. c'rrrr.D wni.rARE-srAT,0 supERvISroN ,r)iD cJ\rJL s'f ivrcr

. 2. Quarteriy eiliciency-rating reports sirall be made by ille r.ating offcer,stlesignafetl by departmelt heails fr-1 aif p."sons in the classifietl service. ,l.hese.eports shalr be surrnritted rviilriu leu tljrl's after ilre endecl periods, nrarcir 31,J'ne 30' september 80..a'd-December g1", anii stiatt be baseci on the principrctf c.mparis,', corrsideri,g the quarity a"h quantrtv oiru;;;k ,r;;,'lir:st,natity,al{cnu'anr'e. arrr l t l iscipl irre. \

3. T'he factols of efliciency shall be, '

\\,eis-iirr \\,eistlt(a) QualitJ' of t.rlk: rl positiols involving duties performed i'de-

A Rpendentiy or under-superr.isi.n, this siiall r,rc lGrsur.ed rir"i,rritA) by rtre dtegr.ee of exie'ence ot trre seriice ;;",i";;:.liit1,i;i:to$'a.d the 'wo.k req'i'ed, atte'rrtio,, certainty ut ,."ti.^, ilioi.ouehness, accufacJ.' leat'ess, origi'aIitl', iriitiative. ter,iitriiiue.a i ld { , r ra r iz r r iou .o t ' rvo .k : in ,os i t iu r rs i r rvor r . i r rg , iu t i . - - i r , , i i i r :or n-holiy supervisory cr adrninist'ative, it

"r..ir i,*-,ri",i",rr.ii(\-\'eight B; by decisive'ess...rliscretirur, tact, systen\ iif,llltj, ioplan arrd or.galize rvork autl direct employeesl arrtf

'qualitj, ii

. - . ^ g r '0uJ l ou tpu t_______ ____________________-______ + I(b) Qrantitv of ''o.k:_ rrr lrosirio's i.""rt'i"g-a-"-tr*-i;;l;"-il,ii;,;.-l)endently ol' unc,lel supervision, tiris sllall L,e ̂ iasu.ea liruig:fitA) br- the v.rurrre or ar'ourrt of nork outp't conparetr rr-i'r areasonable standard output,. speed, promlitness, irldustr1,, diii_gence, and enel'g)'; in yrositious irivolving duties pal:tif ;r.u.holl.v super.visory. or administratile it

'stratl f,e

'mear"""",f

J.::lglt, B) by efticielci, of labor, q"r"tiy of grouir;r;prr,;;;i

r r l u l t t _ _ _ _ _ _ _ _ _

(c) Fe.so'irtitr-,-d;;;l*tf [;,;;,;;;;;a;,r; i l;;;;i;i;;,;f;rir,,]_ 3'1

ness, lol-alt]', truilrfulness, hotest-\., Lou.tr,sy, -rviilingness,

andinf luerrce.nfeln.n.rvorker.s_______________:l___-_:_:___::_:: : I 2(,) Atte'da'ce: This shall be_measu.etl bj, tf";;;;il;;*-il;;;;;

. _.foJ'r luty at i l ie t i tne,alrd orr the da.r:J requiret l of hirn________ 1 C)(r:) niscripii.e: 'f'his shall be 'reasuretl by the employee.s adher.c'c,etg !lr" r.egular.ly pre.scr.ibed rutes anrl r.e^sulati,r"s: ti; -l,l*

obedie'ce to ofders, civitity, habirs, anct .o"ii;il-t;;i;,.;'*,ril_rior officers, fellorv rvotlieri,' antl ttie-1rut,ric___ r ol 'otal t 'eigbts____________ ______; ;

4. Ratings under each factoi' of efliciency srrall be enterctl i' Ircr co't, e'(rthe elticiency-rating sclrle shall be os t,,ll,iir.i,'-'A ratilg of g0 ol abole shall be consiilerecl ecluivalt'nt to excelrtio':rl.A rati'g betrvee'g0 and,si sharl r,e coiiscre..e,i

".,iir,ur"r,i-ili,oiv gnoo.A rating Lretrveen lri a'tl T5 shalt t," coiiri.i"i."a ;d;i;;i;ii; ;; ;;,1.A rating lietrvee' T5 a'. ?0 shall be ct,nsiderecl ;q'G;il; i, f#.A rating lrekxr' i0 shalt be consider.etl unsatisfactor.y

very ferv ernpiol'ees srrourd. be rate.d nt n*""pilo"oi';;i,i "

s'ralr propor.tio'as-vejr goorl The great -maj,ritl'._of enploye.s renaeL average g.otr sol,,,,icr,.

. 5' The rating f,r attenditDce *:iu 'e .iaai-t,y tre civil service c{}rDrri{{ {rr(rlay be made_ rrl' rating oflicer if dc'sir.ed] irrr -the

basis of ilre tlntrr rs t(, thetlays absert rvith.r rvitr.rout rea_r'e, tirnes iorlit-r. u. othe. acts nllettirr:r lttend-arlce. Late in tlte rnorning, at truicti tronr. oi: i."iirrg't"fl;,; "i,].i,1*'f,uo.

o"oto be entered ns tir'es tardr.. 1 l'r'our ioo'- s'btrac[- 2 f,r e,c.h time- ta'c11,,5 fo. each cra)' absent *'ithout leave. 1 i"i .i.rr day al;serrt *-ith reave, ariurlal<e clebits for. otller tielinquencies.)6. l)isciprittt'.-A rating oi.g0 shari rie ilre maxinurn lating rincler gris factorautl riebits shall be made fron tbis rating-a_s--drnosett.7 . ( . t i ' c t r i , ta . 11 , '1 [ . x11r ' t . i y r r . , * , , . i ' ; re . - - i , , i , t r i . . i . , , , : i . " , , i ; r l i r s l ra l ] [ rp a ] lou .ed fu ..r'erti're rvrrrri pe.fo.rrreri b5'an,eurproy"". iriiieo,. il., r.easorrs thercfoi are firstrrubliitletl.to rrrd aplrlovetl by flre irersonnei-i,,iriurrittee of the servcie ancl thecivil st'i'r'ir,'i: courrnissiol. Airy recr,urmelciatloir t.rr.

"ru.rit^ u"ir"i.'^irr'i. it"rr.*arre r)r- the 'irlirg ,fricer and approvecl by ilre rtepart"i"ri-rrao,i *a,"rt'o""ou,_pany tlris icirort.

Provided by the Maternal and Child Health Library, Georgetown Universit.v-

APFENDI} iESt /

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CHILD WELFARE IN NEW JERSEY - MCH Library

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Transcript of CHILD WELFARE IN NEW JERSEY - MCH Library