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Box 5S9 U.S. Work projects adndxdstration. 

Handbook for administrative employees. 
Federal works agency. Work projects adminis- 
tration. iVIashlngton, U.S* Govt, print* off*^ 


cover-title, v, 16 p. Told, diagr. 2Cj|^* . 


RESTRICTIONS ON USE; RepmducBons my not be macb without permlssk^ 


FILM SIZE: >^S/r)/V 



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Introduction Brfare 1 

Foreword ^- Before 1 

General Recruitment 1 

How Vacancies are Filled 1 

Job Classification 2 

Method of Classification . 2 

Appeal from Classificatiou 3 

The Appeals Bowd — - * 

EmpIiOTBB Tbainiko - * 

Training on the Job— 5 

Service Ratings * 

Purpose ^ 

How Ratings are Made 5 

Appeals from Final Rating 8 

Promotions ® 

Promotion Procedure 7 

Notice of Job Op^iingB 7 


Other Transfers 8 

Terminations ^ 

Personnel Replacement Service 9 

How the Replacement Service Operates 9 

What Employees Can Do About Replace- 
ment 10 

Active and Inactive Registers - 11 

AMxmnfSNT ow CoMPiAnm 11 

Unions - — - H 

Individual Action H 

Negotiating Machinery.-- 1 — H 

BliPLOYEEs' Relations 12 

Work Problems and Grievances 12 

Procedure 12 

What the Officer Does — 13 

How Grievances Are Handled 13 

SetOement 13 


220029 — 40 ^1 




Accidents - 18 

Sickness 13 

Compensation for Injuries M 

General Welfare — Health, Insxtbancb.- — - 14 

Group Hospitalization Incorporated 15 

Group Health Association, Inc 15 

Matoal Health Service of the Diatrict of 

Columbia. 15 

Group Life Insurance— 15 

WPA Credit Union - 1* 

Miscellaneous Information 1® 

WPA Organizational Chart After 16 



The purpose of this handbook is to define, in 
so far as it is possible, the policy and procedures 
that are followed concerning those questions 
and problems which arise from day to day in 
connection with the working conditions of all 
administrative employees on tjie Washington 
staff of the Work Projects Administration. It 
is intended to be of assistance as a guide to 
clarify the work relationships of the staff. 

Much of our policy is prescribed by laws 
which are subject to change and to interpreta- 
tion by independent authorities. Within the 
scope of our own jurisdiction, however, we can 
initiate and develop a basic method of pro- 
cedures which will assure for the WPA the most 
efficient and competent service possible and a 
just consideration of the right of employees. 

Such a policy must of necessity be modified 
from time to time, because of forces outside our 
control and because of changing conditions 
within the WPA. 

F. C. Harrington, 


Mat 1, IMO. 



The Work Projects Administration is a 
Federal agency which cooperates with state and 
local governments in carrying out needed public 
improvements and services, in order to provide 
work and wages for the needy able-bodied un- 
employed. The WPA is a part of the wlwle 
machinery of government. No other function 
of government has a more worthwhile or socially 
significant purpose than our Administration. 
We are employed to carry out that purpose. 



In the recniitmfflit of new employees or the 

promotion of workers from one job to another, 
the primary factors are those which will pro- 
mote the building up of a staff adequately 
qualified to perform satisfactorily the varied 
and spedaUzed technical or professional func- 
tions required by the service. Consideration of 
religious, political or trade union aflHiations 
shall neither hinder nor advance employment 
opportunities in the Administration. 

How Vacancies are Filled. —'When our work 
requires the employment of one or more persons 
to replace those who leave or for any other 
reason, the operating procedure is as follows: 
The job itself (including employee qualifica- 
tions) is described in writing and classified.^ 
After the job is thus set up, recruitment 
begins. All candidates must possess the pre- 
scribed qualifications and are considered in 
accordance with our general recruitment policy 
from amcmg several groupings in the following 

1 . Present employees still in a pay roll status 
who have been notified or are about to be noti- 
fied of their terminatioii without prejudice, 
and other present employees who are in grades 

lower than the one being filled. 

2. Former employees of the central office who 

have been terminated without prejudice. 

1 See "Classification" page 2. 




3. Peraons possessii^ a Replacement Serv- 
ice status, and active or former field employees. 
Eligibles from tlie Replacement Service shall 
generally: reedve priority over field personnel 
except for those positions for which field experi- 
ence is a desirable prerequisite. In so far as it 
is possible, certified ^ persons shall be given first 

4. Persons not eligible for Replacement but 
with experience in the Federal Qovemment. 
This includes all project workers. Within this 
group certified persons shall be given priority. 

5. Persons with no previous Government ex- 
perience. So far as possible preference will be 
given to applicants possessing veteran status. 


The administrative jobs in the WPA are now 

classified as required by the amended Classifi- 
cation Act of 1923. This Act and the Civil 
Service Law are two separate statutes. Classi- 
fication j therefore, does not mean in itself that 
our jobs will acquire Civil Service status. The 
Civil Service Oommission, however, adminis- 
ters the Classification Act and must approve 
the titles and grades now being established in 
the Administration. 

Method of Classification. — All jobs are de- 
scribed in writing indicating in detail the char- 
acter of the wort:, nature of supervision, respon- 
sibility in the producing unit, etc. The descrip- 
tion is sometimes written by the employee 
oocapying the job or (in case of a new job or 

2 A person whose need and eligibil'ty for employment 
on projects of this Administration has been determined 
either by an approved pubUc relief agency or by the 
Work Projects Administration. 

a vacancy in which the job duties change) by 
the Adminiatration. The Classification Unit 
then, starting with the written job deeci^tion, 
commences to classify the job. In the process 
a thorough analysis of the functions is under- 
tiOten. Classification investigatoxB may appear 
in the affected unit to discuss the job and they 
may compare it with others in the WPA or 
elsewhere. Investigation findings are reviewed 
by the Classification Officials who also consult 
the Civil Service Commission,^ after which a 
dasfflfication of the job is made. Classification 
automatically designates for each job, the serv- 
ice, grade, class, position title, and salary range 
includinp the minimum, maximum, and appro- 
priate wage steps therem. The classification 
process operates impersonally. A job, not a 
person, is classified. Eventually, every job 
will have attached to it the written minimuTO 
qualifications that are required by the Admin- 
istration of those who ever hold the job^ 

Appeal from Classification. — ^An employee, or 
the administrative division concerned, may ap- 
peal from the classification allocated by the 
Classification Unit. The procedure in appeals 
is: A written appeal must be prepared by the 
employee or division invcdved on a form ob- 
tainable at the Personnel Office. After the ap- 
peal form is properly prepared, it is returned 
to the Personnel Office. The following steps are 
then taken: The Classification Unit is informed 
of the appeal. The job is examined or checked 
to discover whether it has changed since classi- 
fication. If no job change has occurred, the 

•The Civil Service Commission has designated its 
own representatives officially to advise and mmk us 
with the initial olassificatioDS. 

120009—40 i 


appeal is referred to the Appeals Board. The 
Board schedules a hearing and so notifies all 

parties concerned. 

The appealing employee may or may not re- 
quest witnesses to appear at the hearing. Such. 
witnesses may be union representatives and/or 
anyone else concerned with the job. All such 
witnesses are invited by the Board to pa^d- 
pate in its hearing on the case. The Board also 
may summon witnesses. 

The Appeals Board. — ^The Board is miide up 
of members representing the Classification Unit, 
and advisers from the Civil Service Commis- 
sion. The chainnan is from the Employees' Re- 
lations Unit of the Personnel OflGice, The pro- 
ceedings axe recorded and a verbatim transcrip- 
tion is made. 

The Board transmits the record and recom- 
mendations of aU appeals to the Commissioner 
of the WPA for final action. The employee 
and division concerned are notified by the 
Appeals Board in writing of the Commissioner's 
decision and the case is dosed.* 


The Administration assumes responsibihty for 
a limited amount of employee training. Such 
trauung is to enable employees better to adapt 
themselves to their assignments, to increase 
their efficiency in immediate tasks and to 
acquire new skills for related work. The pur- 
pose of this pohcy is to continue work standards 

* This appeal machinery is not to be confused with the 
Appeals Board of the Civil Sorvioe Ckmunission. The 
procedure described here indicates a method ci appeal 
ftrom one WPA authority to another and has no <^Bu»al 
leiattoii to the Civil Service Commiastou 


of the WPA at a high level and to increase 

opportunities for employee's promotion m the 
WPA and for transfer to employment elsewhere. 

Training <m the Jo6.— Practically all jobs offer 
in themselves training possibilities for higher 
grade functions. As an employee masters the 
technique of a job and adapts himself to the 
work at hand, he undergoes an experience 
which may train him for additional and more 
difficult accomplishments. The Administra- 
tion necessarily provides instruction, super- 
vision, and methodology. The process cannot 
be a one-sided affair. It rests for the most part 
on the attitude of the employee, his potential- 
eapadty and the opportunity he has to learn 
while on the job. 


Service ratings of employees are made peri- 
odically. The method is that of the Civil 
Service Commission and employs the same 
form used by all Federal Agencies operating 
under the Chissification Act in the District of 

Pvrpose— The purpose of service ratings is 
to provide an impersonal and unprejudiced 
record of the work progress a woikw makes on 
his job. It is to serve both the employee and 
ihe Administration as a guide to training, and 
as a means to improve work performance and 
output. There is no mystery about the ratmg 

How Ratings are Ma<fe.— Employees are 
rated by a designated supervisory rating officer 
attached to the production unit familiar with 
the employees' work. Each rating is considered 


tmder three major subdivisions: Quality of 
Perfoimance, Productiveness, and Qualifica- 
tions Shown on Job. The final rating score is 
determined by a consideration of the job as a 
whole. The initial rating is reviewed by 
anoth«r ratii^ official attadied to the prodiMS- 
tion unit. The last step in the process is a 
review and final rating by the division chief. 
The employee is thai notified of his rating 
score by the first rating officer. Upon request, 
the rating officer will discuss with any employee 
eoneemed ^e final rating soore and noAke avail- 
able for his examination his rating fonu in its 

Appeals from Fiwd Bating.— Atk era^oyee 

dissatisfied with his rating may appeal for a 
different rating to the administrative officer in 
his dmsion. If a satisfactory settiement of the 
issues cannot be made throt^h the division 
administrative officer, the employee may appeal 
further to tiie Central Penomifll Office, pro- 

(a) The appeal must be in writing. 

(b) The employee and his administratiTO 

officer must have attempted to settle the case. 

(c) The appeal to the Central Personnel 
Office must be made not later than thirty (30) 
days after the employee has received his service 


The Administration will maintfun a policy of 
promoting employees from the ranks to jobs of 
higher caliber. The volume of promotions is of 
necessity restricted by the limited Mze of the 
WPA and by the employment opportunities in 
the general labcnr market which aSects normal 


tomover; it is further ooDditioned by the 

education and work experience of all employees. 

PramaHou Procedure. — As has been indicated 
in the section of this handbook dealing with 
Kecruitment, current employees are considered 
for job vacancies or new openings in the 
Administration before fonneriy employed or 
outside candidates are recruited. 

In this process the central Personnel Office 
examines the personal file' of the cunentiy 
employed possible candidates for promotion. 
(All employees have been requested to file with 
their personal history record a work preference 
on the I. B. M. Personnel Information Sheet 
(form 64) which is obtainable at the Personnel 
Office.) The affected empbyee is then inter- 
viewed by the staff of the central Personnel 
Office. The final selection is made by the 
employing unit from a number <d candidates 
nominated by the Personnel Office. This pro- 
cedure is appUed on an agency-wide basis; 
employees may be promoted in their own or to 
another division. 

Notice oj Job Openings.— openings of jobs 
on the administrative payroll of Washington, 
except those of a policy making character, will 
be posted on official departmental bulletin 
boards. The notice will ocmtain a description 
of the job and the minimum qualifications re- 
quired of eligible candidates. 

^mnltaneously with the job opening the pro- 
motional pohcy described above automatically 

» Employees should keep the Personnel Office posted 
concerning new skills or additional education, etc. 
Forms designed for that purpose are obtaiiuible from 


begins to operate. < However, any ^ployee 

having the required qualifications may apply for 
the job m vxriiing to the Pecsoimel Office. 


The Administration will cooperate with em- 
ployees whenever possible to facihtate their 
voluntary transfer from one WPA division to 
another and to other Government agencies or to 
private employers; provided that such transfer 
does not adversely affect the WPA. 

Other Transfers. — An attempt will be made by 
the Administration to initiate the transfer of all 
superfluous employees to other jobs before ter- 
niination takes place and during the process of 


When reduction of sta£E becomes necessary 
because of curtailment of work or for bu<%etary 
reasons the following procedure is followed in 
the termination of employees: The rule of sen- 
iority is the major factor whenever it can be 
applied without obvious injury to the Adminis- 
tration. Service ratings will also be considered. 
Exceptions to this policy are cited below. Sen- 
iority is measured by original date of employ- 
ment on the adxmnistrative staff of the WPA or 
its preceding organizations in Washington minus 
any time when separated from the payroll and 
time on leave without pay for period of 30 or 
more consecutive days compared with all other 
persons in the same class within designated 
units. (Examples of class are: Assistant Clerk 
Stenographer, CAF 3 or Statistical Qerk, OAF 
4, etc.) 


Exceptions to the seniority rule are: 

Any termination required by present or future 
laws such as the Hatdi Law,^ state quotas, etc. 

Termination of employees with veteran pref- 
erence status. 

Termination of employees with an established 
inefficiency record. 

Terminatiou of employees for any dismiaeive 


A Personnel Heplacemoit Service is main- 
tained by the Work Projects Administration. 
It operates to facilitate reemployment of em- 
ployees who are separated, without prejudice, 
or who resigned in good standing from agencies 
of the executive and legislative branch of the 
Federal Government in Washington, D. C.^ 

All agendes in the executive branch of the 
Government using non-civil service or emer- 
gen<^ employees have been directed by the 
President of the United States to use the Per- 
sonnel Replacement Service in the recruitment 
of new personnel in Washington, D. Dur- 
ing the year 1939 there were 2005 persons 
placed in jobs by the Personnel Replacement 
Service in the District of Columbia. 

How the Replacement Serviee Operates. — 
When employees of the WPA are separated 
without prejudice their names and occupational 
characteristics are automatically recorded on 
the replacement list of the Replacement Service. 

* An act to prevent pernicious political activity. 

' Employees must mtve been employed a minimmn 
of thirty (30) consecutive days at any time subsequent 
to September 1, 1935, aad must now reside in the 
vicinity of Washington. 

• Budget Buraau Circular No. 349, July 9, 1939. 


As c&Us come in from all agencies using the 
Service, candidsteB for jobs aro selected aeoozd- 
ing to their occupations from the Hst and 
referred to the employing agency for job place- 
ment. WPA employees are not giyen pief- 
erence (except for openings in our own Ad- 
ministration) by the Employment Service, but 
they are included with others on the register 
for reemployment consideration. 

The Personnel Eeplacement Service is guided 
by the incoming requests for employees from 
the interested agencies concerning the quali- 
fications of I4>plicant8, number sent for job 
interview, type of woricer, etc. Ordinarily, 
three or more candidates are sent by the 
Replacement Service to all job openings. 
The selectbn of candidates is made by the 
employing agency. 

Whai Em^^^yees Can Do Ahovi Beplacemmt. — 
All WPA employees eligible for replacenunt 
should check their status periodically (once a 
week) with the Personnel ileplacement Service. 
Factors of importance are: Proper address, 
telephone number, and notice of any change 
in same. When job openings come to the 
R^aeement Service, its office tries immediately 
to contact eligible candidates by telephone and 
secondly by mail. Wrong phone numbers or 
dianged addresses at this point often mean 
loss of job interviews. 

Adequate occupational information should 
be reooided with the Replacement Service. 
An employee's work record here may not show 
all of his occupational equipment. Employees 
themselves must see tibat they are properly 


Active and Inadive Registers.- — As persons 
registered with the Personnel Replacement 
Service are placed in jobs, their names are 
removed from the files. They are transferred 
to the iuactive Gle if they cannot be located 
by telephone or mail. Periodic surveys are 
made by the Service to keep its register active 
and up to date, but all persons interested should 
themselves see to it that they are propeiiy 
registered so long as tJiey want replacement 


Unions. — ^The right of empbyees to organize 

or join unions of their own choice is taken for 
granted. The Administration will recognize 
such employee oiganizatlons for the purpose ol 
adjusting complaints or for the discussion of 
personnel pohcy in behalf of their members. 
This means an employee choosing to do so may 
be represented by the accredited union in the 
adjustment of work problems with the Ad- 

Indimdvxil Action. — The Administration rec- 
ognizes the right of employees to adjust com- 
plaints on an individual baiBis. This means an 
employee may represent himself in the adjust- 
ment of his work problems with the Adminis- 

Negotiating Machinery. — The method now in 
use to deal with employees' work problems and 
which is described in the f ollowii^ section of 
this handbook under "Employees* Relations" 
operates impartially in so far as union and non- 
um<m action is concmied. In utihziiig the 
machinery of the Employees' Relations Unit, 


employees, witihout any direction from the Ad- 
mimstration, may or may not be represented 
by lihe unioii. The employeeB themsdves make 
the chcHice. 


The Administration has established auAori- 
tatiye machinery in the Fersonnd Office to 
handle work problems and grievances of em- 
ployees. The purpose of this procedure is to 
clarify and to adjust problems which arise 
around employees in. the performance of their 
work. The Personnel Section maintaias an 
Employees' Relatioiis Unit to cany out this 

Work Problems and Griewmces. — ^A work prob- 
lem affecting employees may arise fxom a mis- 
understanding concerning the policy or function 
of the WPA, physical conditions at the point of 
operations, or throu^ the work reUtionship 
attending supervision, and among general staff 
employees themselves. A grievance can grow 
out of a minor work problem or it can originate 
from other reasons. 

Procedure. — When an employee has a ques- 
tion in his mind that is related to his work or to 
the WPA as a whole the employee may consult 
the Employees' Relations Officer for an answer 
to that question. If an employee has a prob- 
lem, a complaint, or a grievance that is related 
to his work or to the Administration, he may 
also take that matter up with tiae Employees' 
Belations Officer. 

The employee may attempt to settle his 
problems with his sui>errisor8 or his division 
administrative officials before the Employees' 


Relations Unit is consulted or he may initiate 
discussion and negotiations directly with the 

What the Officer Does— The Employees' Re- 
lations Officer may not be able to answer all 
questions or solve all problems, complaints and 
grievances satisfactorily to the employees but 
he can initiate the operation of the Administra- 
tion's machinery which di^>oses of such mattera. 

How Grievances Are Handled. — Some griev- 
ances are settled by the Employees' Relations 
Unit tiirough discussion and negotiations be- 
tween the parties concerned in an informal 
manner. Others require formal hearings at 
which the employee and administrative officials 
involved discuss the issue, present data, wit- 
nesses etc., to clarify the facts. A verbatim 
record of such hearings is made and becomes a 
basis for settlement of the 

Settlement. — Ordinarily, complaints are ad- 
justed by the Employees' Relations Unit but 
those which it cannot settie to the satisfaction 
of the employee may be appealed by the em- 
ployee to the Assistant Commissioner's Office, 
and from there it may be taken to the Office of 
the Commissioner. 


The Administration maintains a Welfare 
Service to protect the health of employees. 

Aeddents. — ^Persons injured on the job are 
given first aid treatment and if necessary are 
hospitalized by the Public Health Service 
through our Wdfare Service. 

Sickness.— The Welfare Service also gives 
medical first aid to employees who are ill; it 


gives health ooiisiiltatioii to such employees 
and when necessary puts thB employee in touch 
with his own physician or upon request recom- 
mends physicians. 

When employees are ahsent from woik 
because of sickness, their employing unit 
reports such absence to the Welfare Service. 
After two days of sick leave • the affected em- 
ployee is visited by a registered nurse attached 
to the Welfare Service. The Welfare Service 
maintains emergency rooms in the Walker 
Johnson Building, Tempoirary Building, and in 
the Auditorium. These rooms are staffed by 
vegistered nurses with equipmoit to meet 
emei^ency situations. 

CompMMHonJor Injuries, — ^In case of injury 
sustained while in the performance of duty an 
employee may be entitled to assistance under 
the United States Employees' Compensation 
Act. Employees so affected may have the 
service of a compensation ofl&cer in our Admin- 
istration. There is a posted notice concerning 
this subject in all our office buildings. Em- 
ployees should familiarize themselves with its 
contents and act aocordioi^y. 


Employees of the WPA are eligible to partici- 
pate in various beneficial welfare organizations 
which function in Washington. The organiza- 
tions operate on a monthly payment plan. 
Fees may be paid by members to designated 
collectors attached to our offices. The organ- 
izations of this nature that soUdt membership 
in the WPA are: 

• Or on the first (toy if requested by the employee. 


Group HospitaZization Incorporated. — The serv- 
ice of this oi^anization is to provide hospital care 
for individuals and famihes. 

Group Health Associatio7i, Inc. — This oi^an- 
isation's program is for "the prevention and 
cure of iUnees and improvement of health of 
Federal workers in Washington." It has a 
service for individuals and families. 

Mviual Health Service of ti^e Dietria cf Cohm^ 
Ha, — This organization provides medical service 
to groups of individuals and famiUes whose 
salaries fall within certain specified limits. 

Group Life Insurance. — The WPA Employees 
Beneficial Association was organized by the 
employees. Its purpose is to provide "life 
insurance at a minimum cost." All employees 
of th© WPA (and other eUgible Government em- 
ployees) between the a^es of 15 and 60 years 
may apply for this insurance. The pohcies 
cany from $1,000 to $5,000 insurance. 

The insurance you obtain throu^ this Asso- 
ciation does not terminate if you leave the WPA. 
It may be contiaued in force by paying the 
regular association rate. 

WPA Credit Union. — A Credit Union, oper- 
ating under Federal charter, has been organized 
by administrative wnployees of the WPA in 
Washington for their benefit. Its function is 
to promote thrift by installment saving, making 
loans to members at reasonable rates of interest, 
and helping members use their savings and 
credit most effectively. 

The Credit Union, life Insurance, Health and 
Hospital Organizations are represented by des- 
ignated members of our staff and each group 
issues literature -whieb. ei^lains in detail their 


services. For further infonaaticHi orauroit Hie 

Personnel Office. 

Miscellmieow Information. — This handbook 
does not pretend to ocmtain all the informatwn 
employees need to know. For instance, it is 
assumed that employees are familiar with their 
sick leave and annual leave privileges and sueh 
items as starting and quitting time of the regular 
work shift. Questions concerning tardiness and 
leave without pay, etc. can easdy be clearod 
with unit supervisors and administration offi- 
cers of the divisions. 

We have omitted also reference to ^ployee 
recreational activites. The administration does 
not sponsor or participate in the management 
of these activities although the employees do 
so and frequently advertise them throughout 
the WPA. Notices on various bulletin boards 
cany information concerning the above and the 
Employees' Relations Officer will attempt fur- 
ther to answer your questions about any mat- 
ters whidi are not now clear to you. 












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Labor AppMl 



220029 — 40 (Faoe p. 16)