Report of the Citizens 9 Committee on THE STATUS OF LIBRARIANS OF THE PUBLIC LIBRARIES OF THE CITY OF NEW YORK iEx ICtbrtB SEYMOUR DURST When you leave, please leave this book Because it has been said "Ever'thing comes t' him who waits Except a loaned book." OLD YORK LIBRARY — OLD YORK FOUNDATION Avery Architectural and Fine Arts Library Gift of Seymour B. Durst Old York Library Report of the Citizens* Committee on THE STATUS O LIBRARIANS OF THE PUBLIC LIBRARIES OF THE CITY OF NEW YORK THE UNITED STAFF ASSOCIATION NEW YORK 1939 .c5S CITIZENS' COMMITTEE on the status of librarians of the public libraries of the City of New York Hon. Ellwood M. Rabenold, Chairman Henry Bruere, Treasurer Spencer Miller, Jr., Secretary Marinobel Smith, Executive Secretary Dr. Gilbert C. Convers, Research Specialist Mrs. Eunice Fuller Barnard Arthur E. Bestor Bruce Bliven Mrs. John W. Callopy Morse A. Cartwright Dr. Harry W. Chase Ned H. Dearborn Miss Martha L. Draper Stephen P. Duggan Dr. John L. Elliot Dr. Israel Goldstein Mrs. William H. Good F.L.D. Goodrich Dr. John Haynes Holmes Roger Howson Alvin Johnson Frank E. Karelson, Jr. Paul Klapper Mrs. James Lees Laidlaw Mrs. Samuel A. Lewisohn Alexander A. Mayper Mrs. Robert H. McCready Mrs. Henry S. Pascal William J. Pedrick Mrs. Charles A. Riegelman Dr. Frederick B. Robinson Dr. William F. Russell Mrs. Robert E. Simon Miss Dorothy Straus Miss Ella T. Sullivan Miss Mary Van Kleeck Richard Welling - 2 ACKNOWLEDGMENTS The Citizens' Committee is indebted to the executives of the libraries of New York, Brooklyn and Queens: Mr. Franklin Hopper, Dr. Milton J. Ferguson, Mr. Louis J. Bailey and their staffs who provided the payroll data for the tables in this report. It wishes also to express its appreciation for the cooperation of the special committee of librarians who drafted the proposed new Scheme of Service, namely: Miss Fannie A. Boies, Mrs. Eleanore Clift, Miss Leona Durkes, Miss Helen T. Geer, Miss Cecilia Lynch, Miss Ruth Melamed, Miss Ethel Metzger, Miss Ernestine Rose, Mr. Francis R. St. John, Mr. Richard B. Sealock, Miss Corinne Sheppard and Miss Rae Stockham; and to Miss Grace A. Conway, who, as organizer and first presi- dent of the United Staff Association, gave invaluable assistance to this committee from the beginning of its work. December 30, 1938 - 3 - The UNITED STAFF ASSOCIATION of the PUBLIC LIBRARIES of the CITY OF NEW YORK OFFICERS AND COUNCIL MEMBERS Harry F. Koch, Queens Borough, President Grace E. McDowell, Brooklyn, Vice-president Edith F. Vermeule, New York, Treasurer Joseph W. Rogers, Queens Borough, Secretary Gerritt Fielstra, President, New York Staff Association Evelyn Kirkland, Member of the Council from Brooklyn Julia Tholin, Member of the Council from Queens Borough Irene Smith, President, Brooklyn Staff Association Bess Fay Shipley, President, Queens Borough Staff Association The officers, Council and members of the United Staff Association wish to express their appreciation of the invalua- ble work the Citizens' Committee has done and is doing for the welfare of the librarians of the public libraries of the City of New York. Harry F. Koch President - 4 - TABLE OF CONTENTS PAGE SECTION I Foreword 7 The Professional Status of the Public Librarian 8 The Committee's Recommendations 9 Titles, Present and Proposed Salary Ranges, and Qualifi- cations of the Administrative Service (Non-Graded). . . 14 Titles, Present and Proposed Salary Ranges, and Quali- fications of the Graded Library Service 15 Data Collected by the United Staff Association Indicating the Extent to which the Schemes of Service Are Not Enforced 16 Summary of Contracts Between the City of New York and the New York Public Libraries 19 Conclusion 21 Library Administration and Compensation Schemes around the Country (Table) 22 SECTION II Brief Analysis of Tables 24 Table 1 - Comparative Qualifications and Salaries, New York City Board of Education, Municipal Civil Service Commission, and New York Public Libraries 27 Table 2 & 2A - Distribution of Library Employees, Salaries, Numbers and Percentages, Grade 1, in Comparison with Board of Education, Teacher-clerk 28 Table 3 & 3A - Distribution of Library Employees, Salaries, Numbers and Percentages, Grade 2, in Comparison with Board of Education, Teacher Grade 1A - 6B 28 Table 4 & 4A - Distribution of Library Employees, Salaries, Numbers and Percentages, Grade 3, in Comparison with Board of Education, Teacher-Junior High 29 Table 5 & 5A - Distribution of Library Employees, Salaries, Numbers and Percentages, Grade 4 in Comparison with Board of Education, Teacher-Day High 29 - 5 - PAGE Table 5B - Distribution of Employees, Salaries, Numbers and Percentages, Board of Education 30 Table 6 - Distribution by Numbers and Percentages of Library Employees' Salaries in New York, Brooklyn and Queens 30 Table 7 & 7A - Library Employees' Income Levels (All Employees) 1937; Library Employees' Income Level (Graded Employees) 1938 31 Table 8 - Positions and Rates, 1938 Executive Budget and Library Segregations 31 Table 9 - Comparative Table of Salary and Service Statistics, 1937, Libraries Serving More Than 200,000 Population 32 Table 9A - Comparison of Salary and Service Statistics, New York Library Systems, Cleveland Public Library, and Chicago Public Library (Civil Service) 32 Table 10 - Distribution by Numbers and Percentages of Library Clerical Employees' Salaries in New York, Brooklyn and Queens 33 Table 10A - Library Clerical Employees' Income Levels in New York, Brooklyn and Queens 33 Table 11 - Salaries and Special Compensation, Clerical Employees in Libraries Serving More Than 200,000 Population, 1938 34 Table 12 - Civil Service Clerical Salaries, New York City Board of Education, January 1938 34 Table 13 - Average Weekly Earnings of Office Employees in Representative Factories in New York State 35 Table 14 - Weekly Salaries of Office Workers in New York City, May 1937 35 Table 15 - Civil Service Clerical Salaries 36 SECTION III Tentative Scheme of Library Service in the Public Libraries of the City of New York 37 SECTION I FOREWORD The Citizens' Committee on the Status of Librarians of the City of New York is a private group of taxpayers, dedicated to the express purpose of finding a solution to the economic prob- lem confronting the public librarians in New York City. The Committee was organized in 1929 by the late Robert E. Simon at the instance of the United Parents Associations of New York City. Under the guidance of the late Professor Howard Lee McBain, as Chairman, a twofold survey was conducted: first, a legal study was made of the contracts existing between the City and the libraries; second, an inquiry was conducted to deter- mine the economic status of public librarians in the City. The city authorities, besought by librarians to establish a standard of salaries and a pension system, replied that they were unable to discharge this responsibility directly as the status of the librarian as a public employee was uncertain. The City repeatedly took the position that librarians were em- ployed by a private corporation, the Board of Trustees. The function, therefore, of the Committee of Citizens, pledged to study the problem, was that of an outside tribunal. The Com- mittee was required to arbitrate the financial discrepancy proposed by highly trained public servants, receiving compensa- tion far below the general professional level and not in any respect commensurate with the character and quality of service rendered to the community. While engaged in the study of this problem in the early years of its history, the Committee realized that an immediate need was the creation of a pension system which would provide security for retiring members of the library systems and would insure the continuous upward shift of personnel. While such a pension system eventually was obtained, on July 1, 1937 largely by the efforts of the trustees and the librarians them- selves, the Citizens' Committee cooperated with them and guided their efforts. The next task to be attacked was the study of wage sched- ules, classification systems, and promotional schemes. The results of the wage study have made it evident that New York City librarians are paid on a sub-professional basis, and that their economic level is far below that of teachers and other comparable groups. The study further revealed that this situa- tion was not warranted by the amount of professional training required of librarians, a college degree and one year of train- ing school being a prerequisite for entrance. Although completed in 1931 the Committee's report never was presented officially to the city authorities because of the - 7 - economic depression. The basic facts, in December of 1938 remain, and in proceeding to submit its findings to the City, the Committee incorporated an analysis of personnel problems in the New York Public Libraries and other data recently assembled, concerning establishment of a professional status for public librarians and the obtaining of adequate maintenance for these important city workers. In making certain recommendations to the City, it is es- sential to explain the basis for such conclusions. The Commit- tee took into consideration the training required of librari- ans, their basic economic needs, and the character of services rendered. Further, to obtain some norm, it made a study of conditions and practices in the non-civil service public libraries of other cities, in civil service libraries, in the New York City school system and in the State Civil Service. In order to give true meaning to a comparison of wage standards, the Committee had to consider carefully the cost of living in various cities. Its recommendations, therefore, are based on a detailed and fair deliberation of all the factors involved. During recent years, the library problem has become aggra- vated by the pressure of an increased public demand for library service on a personnel numerically insufficient. The Citizens' Committee believes that unless public-spirited citizens and community groups press for an immediate solution, both the morale of the library staffs and the high calibre of the ser- vice rendered to the community will be disrupted. It is hoped sincerely that the material in this report v/ill help to develop and agitate such public action. THE PROFESSIONAL STATUS OF THE PUBLIC LIBRARIAN Library work as a science was very late in receiving proper recognition. Librarians themselves were slow in estab- lishing their professional status- Since the organization of the American Library Association in 1876, librarians, however, have been in the forefront of educational activities. The Association has contributed to the training of librarians through the study of library practices throughout the country, and by preparing special text material for library schools. The American Library Association, the state library associa- tions, and individual public libraries in the large cities have pioneered in the preparation of reading lists, guides to cur- rent literature, and pocket editions of current topics. In the field of personnel study and library administration, the work of the librarians in the American Library Association and in state associations can hardly be overestimated. Today the major function of the public librarian is educational - studying the readers' needs in order to meet them intelligently, and stimulating and guiding reading inter- ests. The public libraries of the great cities have all the - 8 - characteristics of educational institutions. Their work in the field of adult education - preparation of materials, exhibits, lectures, discussion and study groups, broadcasts, etc, - has placed them in the vanguard of the movement. In the field of research - particularly industrial and governmental - there is hardly one industry or profession in any large city which does not require their skilled assistance. For these reasons, wealth of material in any public library will prove ineffectual if the service is inadequate or of a subprofessional type. The best index of the professional character of the work of public librarians can be found in the constantly broadening curriculum of the library schools, and in the expanding demand for formal academic training in addition to library school training. In its 1938 library statistics, the American Library Association reports an increase in the number of professional employees in the libraries covered. St. Louis, Pittsburgh, Cleveland, Minneapolis, Los Angeles, Seattle and other large cities require a college degree in addition to one year of library school. The public libraries in New York City today require a college degree and one year of library school. In the case of New York City, however, the Citizens' Committee made a study of the librarians' educational background (based on professional equipment of those who entered the system before the require- ments were raised) . This study reveals the high professional training of these employees. Answers to a questionnaire show: (a) 37% of the entire graded staff have had more than four years of professional preparation in addition to High School education; (b) in Grades 2 and 3, which hold over 67% of the entire graded staff, 42% have had more than four years of academic training in addition to High School education. THE COMMITTEE'S RECOMMENDATIONS Study of the compensation and classification practice in effect in the public libraries of the City of New York revealed a very confusing picture. The Committee found three separate and distinct schemes of service being used, each different from the other. Neither the entrance requirements nor the salary range for each grade was the same in all the systems. Like- wise, no uniform tenure policy could be found. It became clear to the Committee before the conclusion of the personnel analysis that this confused situation was one of the greatest obstacles to the establishment of a competent pro- fessional service, and one of the strongest factors working for insecurity and demoralization. The Committee, therefore, recommended to a small committee of the Council of the United Staff Association that it make a study of the several schemes of service and draft a new and unified system which would function smoothly within the three library systems in the city. - 9 - This library committee has completed its work. The new scheme, when adopted by the three library systems, will establish uni- form policies as to requirements, salary ranges, tenure and promotion. The Citizens' Committee earnestly recommends the new scheme of service based on an objective study of the existing problems. RECOMMENDATION NO. 1 - The Citizens' Committee recommends that the City take immediate steps to eliminate the present practice of filling positions of one grade, as outlined in the existing Schemes of Service, by staff members of lower grades without concomitant compensation by allocating sufficient funds to each of the three library systems so that all positions can be filled in accordance with the provisions of the existing Schemes of Service; to officially recognize and fill all library positions in accordance with such Schemes of Service as have been or may be adopted by the Library Boards of Trustees; and furthermore, to make provision, in accordance with such Schemes of Service, for the required personnel to properly staff and maintain any new agencies as they are established. RECOMMENDATION NO. 2 - The Citizens' Committee recommends also that immediate automatic annual salary increments be es- tablished. Besides raising the morale and efficiency of the staff, the existence of a system of regular annual increments, based on proved merit, and the consequent economic security, would put the library profession in this city on a career basis. Furthermore, the system would tend to abolish favorit- ism as a basis for promotion, and the more timid in the profes- sion would be reassured. The system would also solve two of the most discouraging of present situations: first, grade movement would become automatic; and secondly, the present high turnover would be decreased, since members of Grades 2 and 3 would be more willing to wait their turn on the eligible list for higher positions. The Citizens' Committee believes that opinion is unanimous that the establishment of these regular annual increments would enhance the morale of the system and constitute the only just and efficient way for a librarian to reach the maximum of her grade. The executives of the three library systems have provided the Committee with a computation of the cost of establishing the following increments for the period of the first year: an annual increment of $240 for each member of the administrative staff and an annual increment of $120 for each of all other employees. The figures provided by the three libraries are as follows : New York Public Library (Circulation Department) $92,035 Brooklyn Public Library 52,800 Queens Borough Public Library 58 .460 Grand Total $183,295 - 10 - RECOMMENDATION NO. 3 - The Committee recommends that either Grade 1 be converted into a purely clerical group, with- out professional librarians in it, or that only a small per- centage of such librarians be retained there from year to year. These professional librarians should be moved on to Grade 2. It is true that this change would mean a larger salary budget for Grade 2 at first, but the gain in improved service and the savings in paying only clerical salaries to the whole of Grade 1 would amply compensate for the procedure. It cannot be emphasized too strongly that such procedure would be in conso- nance with the general tendency throughout the country to pull all trained librarians out of the clerical groups and release them for badly needed professional service. At present, the general practice in the three systems is not to separate the clerical from the professional staff. While Grade 1 in theory should hold the lowest or most recent entrants into the professional staff, in reality this grade is a mixture of professional and clerical workers. It seems un- sound and wasteful administrative procedure to keep a large number of highly trained professional librarians doing routine clerical work when there exists a real demand for their profes- sional services elsewhere. It is true that some Grade 1 librarians do fill in for Grade 2 and are called upon for work involving contact with the public, but the number is too small. Certainly it cannot be maintained that a college education is essential to the clerical and mechanical work involved in this grade, and unquestionably the main effect in the long run will be demoralization and obstruction of the development of a sound professional attitude. RECOMMENDATION NO. 4 - The Committee recommends that the salaries of all employees of the public libraries of New York City, paid out of public funds, be so adjusted as to be brought into proper relationship with salaries received by other em- ployees paid by the City and have comparable responsibilities and similar educational and experience requirements, in conso- nance with the City's agreement to maintain these libraries in "adequate" fashion and to enable librarians to maintain a stand- ard of living in keeping with their professional position; a suggestive schedule of specific increases, based on a study of all problems involved, being provided in this report. (Page 14) The estimated cost of putting the proposed increases into effect for professional workers in each of the three library systems, as provided by the executives of the several libraries, is as follows: New York Public Library (Circulation Department) $110,000 Brooklyn Public Library $ 80,080 Queens Borough Public Library $ 30,095 SPECIFIC RECOMMENDATIONS FOR THE IMPROVEMENT OF LIBRARY SERVICE Among the most important professionals are the School and Reference librarians doing work requiring special knowledge and aptitude. From the personnel analysis it was apparent that this group is in the main composed of librarians with more than four years of academic work in addition to a High School diploma. Yet the important work of these librarians is being handicapped at present by a lack of available positions. The Committee feels that in order to take care of this work in the 44 branch libraries of the New York Public Library, there should be 28 Grade 3 positions available. Twenty of the branches will need a full-time reference and school librarian, while the other 24 smaller branches could use one for every three. At present there are nine appointed reference and school assistants, all in Grade 3. The Committee further recommends in connection with this group that at least four Grade 3 librarians be placed in Grade 4, and the following positions should be created: 1 Reference and School assistant in charge of continuation schools; 1 Ref- erence and School assistant in charge of the Bronx Reference Center; 1 Reference and School assistant assigned to the Extension Division; 1 Reference and School assistant assigned to Staten Island. While these positions are in the New York system, the policy is equally desirable for the two other systems. The creation of these new positions can easily be defended, since they constitute work of a supervisory capacity above that of the regular Grade 3 School and Reference librarians. The Citizens' Committee believes that because of the problems inherent in Grades 2 and 3, alone, a high maximum salary should be established for each of them. Answers to our questionnaire revealed the fact that these two grades - 2 and 3 - hold the largest number of trained librarians with a fine professional equipment. Few of these workers ever reach Grade 4. On the other hand, the fact that there are so few vacancies in Grade 3 at any one time limits the opportunities for advance- ment of Grade 2. Reports showed that over 20% in Grade 2 have remained in it for more than ten years, while in Grade 3, 33% have been frozen in the grade for over ten years. High maximum salaries for Grades 2 and 3 will not only give scope for adequate recognition and remuneration, but, equally important, in the case of Grade 3, a high maximum will take care of those librarians who specialize but to whom Grade 4 is closed. Among these specialists are the School and Reference librarians, Children's librarians, Cataloguers, and Foreign Language librarians. This work requires special train- ing or knowledge, and in fact 55% of them proved to have had more than four years of academic training in addition to High - 12 - School diploma. At present, the only way these Grade 3 spe- cialists can obtain financial promotion is by being taken into the administrative positions of Grade 4. It would seem, then, that if these special librarians were offered a salary ample enough to meet their professional status they would be satis- fied to stay in their grade. Otherwise the administrative service will absorb them eventually. The Citizens' Committee did not send questionnaires to the members of the administrative and supervisory staffs since the number was too small. Instead, each of them was requested to supply information concerning requirements for their positions, and nature of their duties. It must be observed here that the character of the service rendered by these two groups cannot be easily compared with that rendered by supervisory officers of the public school system. Furthermore, since the character of the work and the responsibilities involved differ in different cities, it is again quite difficult to make any accurate com- parison between the salaries paid in New York City and those paid in other cities. - 13 - CO w H (U <; CO p W CO CO o W P-I Q o K Pn 53 < « •a! 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UJ -1 CJ o C5 < CJ X o 32 - TABLE 10 DISTRIBUTION BY NUMBERS AND PERCENTAGES OF LIBRARY CLERICAL EMPLOYEES' SALARIES IN NEW YORK, BROOKLYN AND QUEENS Present 1 New York Brooklyn Queens Total-NYC Scheme of Service Salary No. % No. % No. % No. % Grade Cl-540-960 820 — 9 31.03 9 3.69 840 12 9.30 9 10.47 21 8.60 880 — 4 13.79 4 1.63 900 15 11.63 3 3.49 18 7.37 ( Queens 840-1140) 960 28 21.70 1 1.16 29 11.89 1000 3 2.32 2 6.90 5 2.04 1020 5 3.88 5 2.04 1060 1 0.78 1 .41 C2- 1000-1260 1080 15 11.63 9 10.47 24 9.84 1100 3 2.32 3 1.23 ( Queens 1200 and 1120 4 3.10 4 13.79 8 3.28 up) 1140 2 2.33 2 .82 1180 1 0.78 1 3.45 2 .82 1200 21 16.28 3 10.34 47 54.65 71 29.16 1260 5 3.88 5 2.04 1300 3 2.32 2 6.90 1 1.16 6 2.46 1320 10 11.63 10 4.10 1360 1 0.78 1 .41 1380 6 4.65 6 2.46 C3- 1300-2020 1420 2 1.55 1 3.45 3 1.23 1500 1 3.45 1 .41 O 1 3 1.23 1600 1 3.45 1 .41 ( Queens 1200 & up) 1740 1 1.16 1 .41 1800 1 3.45 1 1.16 2 .82 I860 1 1.16 1 .41 1900 1 0.78 1 .41 1980 1 1.16 1 .41 Total 129 100 . 00$ 29 100.00$ 86 100.00$? 244 100.00$ Average Salary $1066.51 $1071.72 $1180.23 $1106.51 #119 Clerks on a substitute basis 16 working part time (Salaries are indicated on a full time basis) TABLE 10A LIBRARY CLERICAL EMPLOYEES' INCOME LEVELS IN NEW YORK, BROOKLYN AND QUEENS Range No. $ New York Brooklyn Queens 1800-1999 5 2.05 1 1 3 1600-1799 2 0.82 0 1 1 1400-1599 7 2.87 5 2 0 1200-1399 99 40.57 36 5 58 1000-1199 50 20.49 32 7 11 800- 999 81 33.20 55 13 13 Totals : 244 100$ 129 29 86 - 33 TABLE 11 Salaries and Special Compensation, Clerical Employees in Libraries Serving More Than 200,000 Population. American Library Association, Bulletin, April 1938 No. Library Clerks Salaries Special Compensation Number Days Allowed Min. Max. Sundays Holidays Vacation Holiday New York (Manhat- $2045 $2.00 (1) 1 "T \ D T"> J _ 1— tan, Bronx & Kicn- $540 $1.50 & j- j. mond Circulation) 3.00 (1) & 4.80 Brooklyn 10 1120 1900 No No 1 R OP. Queens 38 840 1980 Closed Closed OP dO Philadelphia 14 950 1700 No Closed OO dd None St . Louis 14 720 960 No No n q op. ( o \ 1x5— do ( d ) Q Pittsburgh (old city] 31 540 1500 No No 12 (3) 8 San Francisco No Closed St. Paul 46 ( 1 HQP* ± t yo rjo 13 11 Detroit 118 1020 2220 - (4) - (4) 15 6 Cleveland 203 840 2000 10^ pr. hr • 10^ pr. hr • 12 10 Bait imore 49| 720 1320 - (5) - (4) 12-18-24 (6) 8 Washington, D. C. 23 1260 2040 - (4) Closed 26 8 Seattle 25 840 1140 No No 13 8 Chicago 74 900 1800 Yes Yes 18 8 Los Angeles 19 50^ pr.hr. Closed 12 7 Buffalo 22 832 1800 $3.50-$5 $3.50-$5 12-18 (7) 12 Kansas City 8 741 912 No No 6-12-18 (8) 5 Medians (9) 14 840 1500 15 8 Central Circulation Branch only Graded by Length of Service, Special allowance for Long Periods of Service Extension may be granted for excellence and length of service At week-day basic rate One and one-half times week-day basic rate Depending on rank and length of service Under 7 years of service, 12; over service 7 years, 18. Six months to one year service, 6; one to 5 years, 12; over 5, 18. These medians cover 43 libraries. Table 12 Civil Service Clerical Salaries - New York City Board of Education January 1938 Grade Range First Year Second Year Third Year Fourth Year 1 858 1014 1170 2 1326 1482 1638 1794 3 1950 2106 2262 4 2470 2640 2820 5 3096 3312 3528 and over Note: Board of Education employees are not subject to the McCarthy Law. The Board sets up its own annual rates. - 34 - TABLE 13 Average Weekly Earnings of Office Employees in Representative Factories in New York State. By Industries. New York State Department of Labor. Industrial Bulletin . November, 1937. October 1928 October 1929 October 1930 October 1931 October 1932 October 1933 October 1934 October 1935 October 1936 October 1937 $36.37 #36.94 $37.48 $35.49 $31.86 $31.85 $32.45 $32.71 $33.05 $33.93 (1) 46,475 employees, including office clerks, stenographers, bookkeepers, ac- countants, cashiers, stock clerks, office managers, superintendents, etc. Industries: stone, clay and glass; metals and machinery; wood manufactures; furs, leather and rubber goods; chemicals, oils, paints, etc.; pulp and paper; printing and paper goods. MEN WOMEN Total State N. Y. City Up-State Total State N. Y. City Up-State $44.76 $45.25 $44.48 $22.41 $23.80 $21.50 Average Weekly Earnings of Men and Women in Factory Offices. Oct. 1937 Ind. Bull. Nov. 1937. TABLE 14 Weekly Salaries of Office Workers in New York City, May 1937, and Percent, of Change, July 1935 to May 1937. Study made by the New York Merchants Assn.* Number Weekly Salaries % Change (1) Occupations Employees In Av. Sals. Covered Low High Average (1) July 1935 to May 1937 (2) All occupations 43,592 $ 9. '50 $575.00 $30.89 + 6.11 Accountant s 1,061 $18.46 $225.00 $52 . 14 + 10.83 Auditors 491 19.80 208.00 51.91 + 21.30 Bookkeepers, Mach. Op. 926 15.00 71.15 26.81 + 27.14 " Non-Ma ch. Op. 1,306 12.00 90.00 31.35 + 4.08 Stenos. & Secret. Males 342 15.00 140.60 35.52 0.51 ■ " Females 5,413 14.00 100.00 31.28 + 7.89 Typists 2,838 10.00 47.30 22.67 + 0.16 Dictaphone Operators 435 15.00 54.17 25.29 + 4.26 Telephone " 1,079 15.00 75.00 25.83 + 10.25 Office Mach. " 2,178 12.00 65.76 24.92 + 0.21 Chief Supervising Clks. 3,034 15.00 575.00 54.45 + 11.12 File Clerks 1,904 11.00 61.22 22.77 + 0.17 All Other Occupations 22,585 9.50 225.00 28.85 + 3.06 *U. S. Dept. of Labor, Monthly Labo Review January 1938. (1) Weighted (2) 66 Companies Note: The representative groups, in terms of largest number of employees are: $15 - 19.99 - 7,147 employees $20 - 24.99 - 8,699 " S25 - 29.99 - 8,131 " $30 - 34.99 - 7,554 " - 35 Table 15 Civil Service Clerical Salaries Grade Range First Year Second Year Third Year Fourth Year Fifth Year 1 840 960 1080 2 1200 1320 1440 1560 1680 5 1800 1920 2040 2160 2280 4 2400 2520 2620 2740 2860 5 3000 3120 3240 3360 3480 Under the McCarthy Law of 1936, annual salary increments of |>120 are mandatory for salaries the minimum for which is $1800 and under. There is pending in the Council an amend- ment to include salaries above this minimum. - 36 SECTION III TENTATIVE SCHEME OF LIBRARY SERVICE IN THE PUBLIC LIBRARIES OF THE CITY OF NEW YORK This Tentative Scheme of Library Service was formulated by a committee of librarians from the staffs of the New York, Brooklyn and Queens libraries at the request of the Citizens' Committee. It is based on an analysis of the existing Schemes of Service with a view to equalizing requirements and permit- ting latitude for the adjustment of such differences among the three libraries as have resulted from local conditions. Its terms incorporate the following changes: (1) the abolition of Grade 1, advancing to the next group those pro- fessionally qualified. Those appointed in Grade 1 before and unable to qualify for the professional service as outlined in the Scheme shall be retained in their present status as established under the State Certification Regulations of April 17, 1930; (2) the substitution of descriptive names or titles for grade numbers; (3) a material simplification of the set-up of the Scheme, omitting specific titles for the positions within each group; (4) the abolition of general cultural and informational examinations. The candidates for promotion would receive special assignments, or tests suited to the positions in question; (5) higher initial requirements, both academic and technical; (6) the inclusion of a clause stipulating that within the limits of the requirements and regulations of the Scheme, each library be empowered to make its own specific rulings. TENTATIVE SCHEME OF LIBRARY SERVICE IN THE PUBLIC LIBRARIES OF THE CITY OF NEW YORK BROOKLYN PUBLIC LIBRARY NEW YORK PUBLIC LIBRARY QUEENS BOROUGH PUBLIC LIBRARY Formulated in accordance with Regents' Rules for Certification. GENERAL STATEMENT Library service in the five boroughs constituting the City of New York is rendered by three library systems operating under separate charters from the University of the State of New York, and serving as follows: the Brooklyn Public Library for the Borough of Brooklyn; the New York Public Library for the Boroughs of Manhattan, Bronx and Richmond; and the Queens Borough Public Library for the Borough of Queens. - 37 - All members of the staff appointed after July 1, 1938 are required to join the State Employees' Retirement System, of which the three libraries are members. Note: (At this point brief paragraphs on each of the three library systems, will be supplied by each library for the finished Scheme of Service.) PERSONNEL CLASSIFICATION PROFESSIONAL SERVICE JUNIOR LIBRARIANS LIBRARIANS SUPERVISING LIBRARIANS AND SPECIALISTS PROFESSIONAL AND GENERAL ADMINISTRATIVE 1. PROFESSIONAL ADMINISTRATIVE 2. GENERAL ADMINISTRATIVE CLERICAL SERVICE JUNIOR CLERKS SENIOR CLERKS STENOGRAPHERS CLERICAL SPECIALISTS SECTION I APPOINTMENTS, PROMOTIONS, AND TENURE IN EACH LIBRARY. 1. Appointments, promotions and removals are made by the Board of Trustees upon the recommendation of the Director or Chief Librarian, and the appropriate committee or committees. 2. Appointments and promotions are based upon educational and technical qualifications and tests and service reports. (See Section III) 3. Appointments in the professional service are made at the minimum salary rate of each *group, except where special training and experience warrant the payment of a higher rate within the group. 4. All permanent appointees to the Staff shall be informed by a printed statement as to appointment, promotion and terms of permanency. 5. Appointments: A. PROFESSIONAL : 1. One year probation: Reports from at least two persons shall be made during year on the work and * See Section II, Outline of Service. - 38 - Section I, continued suitability of each candidate. If one of these reports is unfavorable the candidate shall be transferred and his work shall be reported upon by a third person. If at any time during the probationary period, a can- didate proves unsatisfactory, he shall not be retained. Satisfactory experience as a substitute shall count toward the required experience. 2. Two year appointment, if the first year's service is satisfactory: If at the end of the two year appointment, the appointee has proved unsatisfactory, he shall not be reappointed. 3. Permanent appointment if 1 and 2 are satis- factorily completed. B. NON-PROFESSIONAL : 1. One year probation: Reports from at least two persons shall be made during the year on the work and suita- bility of each candidate. If at any time during the probationary period, the candi- date proves unsatisfactory, he shall not be retained. 2. Two year appointment, if the first year's service is satisfactory: If at the end of the two year appointment, the candidate has proved unsatisfactory, he shall not be reappointed. 3. Permanent appointment, if 1 and 2 are satis- factorily completed. C. CLERICAL : 1. One year probation: Reports from at least two persons shall be made during the year on the work and suit- ability of each person. If one of these reports is unfavorable, the candidate's work shall be reported upon by a third person. If at any time during the proba- tionary period, a clerical worker proves unsatisfactory, he shall not be retained. 2. Two year appointment, if the first year's service is satisfactory. If at the end of the two year appointment the candidate has proved unsatisfactory, he shall not be reappointed. - 39 - Section I, continued 3. Permanent appointment, if 1 and 2 are satis- factorily completed. D. PAGES : The position of page is primarily suitable for young people and, by its very nature, is temporary. 1. One year probation: At least two reports shall be made during the year on the work and suitability of each page. If at any time during the pro- bationary period a page proves unsatisfac- tory, he shall not be retained. 2. Annual appointment, as long as a page is satisfactory and suitable for the particular type of work. E. BUILDING FORCE : 1. One year probation: Reports from at least two persons shall be made during the year on the work and suit- ability of each employee in this group. If at any time during the probationary period an employee in this group proves unsatisfactory, he shall not be retained. 2. Two year appointment if the first year's service is satisfactory: If at the end of the two year appointment the appointee has proved unsatisfactory, he shall not be reappointed. 3. Permanent appointment, if 1 and 2 are satis- factorily completed. 6. Promotions: A. All promotions shall be provisional for at least one year. A report shall be made at the end of the year on the work and suitability of the ap- pointee in the higher group. B. Permanent appointment to the higher group shall be made, if the service during the provisional period has been satisfactory. 1. If the appointee has proved unsatisfactory in the higher group, he shall be returned to the former group, after a provisional period of not more than' two years. (The appointee may be given a second opportunity at a future date . ) - 40 - Section I, continued 2. If after permanent appointment to the higher group and a longer period of service, the appointee, as reported upon by three quali- fied persons, shows inability to sustain the work required for that group, he shall be returned to a lower group where less respon- sibility is entailed. 3. If for any reason, e.g., ill-health or age, the incumbent of a higher group becomes un- able to sustain the work required, he shall be given the opportunity to apply for an as- signment to a lower group where duties are less taxing. 7. Tenure: Permanency of position for all members of the Staff shall depend upon sustained satisfactory service. 8. Removals: 1. Removal for inefficiency: If the work of a member of the permanent staff proves unsatisfactory, he shall be given warn- ing. If within a reasonable time three quali- fied persons then report failure to improve, he shall be required to show cause why he should not be removed. Upon his written request a hearing before representatives of the Boards of Trustees of the Administrations will be given before removal. 2. Removal for cause, i.e. conduct criminal, infa- mous, dishonest, notoriously disgraceful, or otherwise harmful to the service: A member of the permanent staff charged with offense justifying removal for cause, shall, if he so desires, be notified in writing of the charge and of the date of a hearing before rep- resentatives of the Board of Trustees or of the Administration. At least seven days shall elapse between the written notification and the hearing. At the hearing shall be present the person fil- ing the charge and the accused. Each may be accompanied by no more than three witnesses. 9. A month's notice is required from all employees in case of resignation, and is given by the Library in case of removal for inefficiency. 10. Members of the Staff who resign in good standing may be reappointed to the group for which they qualify under - 41 - Section I, continued the Scheme of Service effective at the time of reap- pointment . 11. Substitutes are employed to fill temporary vacancies, preference being given those eligible for appointment. SECTION II OUTLINE OF SERVICE Within the limits of the requirements and regulations of the Scheme, each library is empowered to make its own rulings. Specific titles for positions are omitted, permitting each library to create necessary positions within each group accord- ing to its set-up. THE PROFESSIONAL SERVICE There shall be four general divisions, as follows: JUNIOR LIBRARIANS DUTIES Members of this group perform the more important gener- al work or do specialized work under direction. QUALIFICATIONS Graduation from an ^approved college or university plus one year of training in an ^approved library school, or Graduation from an approved college or university including one year in an approved library school and not less than two years of experience in a library of recognized standing. SALARIES $1500-$2160 (as proposed by the Citizens' Committee) LIBRARIANS DUTIES This general group covers many possible duties or services: advisory, scholarly, community, etc. and also affords an opportunity for persons who do not wish to specialize but whose general ability warrants pro- motion. * "approved college or university" shall mean one approved by an accrediting association of more than state-wide standing. * "approved library school" shall mean one accredited by the American Library Association. - 42 - Section II, continued QUALIFICATIONS Graduation from an approved college or university plus two years of training in an approved library school, including the possession of the Master's degree in Library Science and not less than two years of appro- priate experience in a library of recognized standing. or Graduation from an approved college or university plus one year of training in an approved library school and not less than four years of appropriate experience in a library of recognized standing. or Graduation from an approved college or university, including one year of training in an approved library school and not less than five years of appropriate ex- perience in a library of recognized standing. SALARIES $2220-$3000 (as proposed by the Citizens' Committee) SUPERVISING LIBRARIANS AND SPECIALISTS DUTIES This group includes branch librarians, regional workers and specialists in subject fields. QUALIFICATIONS These positions require intensive training through for- mal education and experience and specialized knowledge requisite for each position. The minimum requirements are as in Librarian ' s group, but with experience in- creased to four years, five years and six years. SALARIES $3060-$4000 (as proposed by the Citizens' Committee) ADMINISTRATIVE, PROFESSIONAL AND GENERAL PROFESSIONAL ADMINISTRATION DUTIES In this group are the Chief Librarian and heads of departments. QUALIFICATIONS The minimum requirements as in Librarian's group, but with experience increased to four years, six years and eight years. It is recognized that the duties and responsibilities of the positions in this group are such that a definite statement of the years of service required to qualify becomes academic. In the positions in this group per- sonal qualifications and proved ability should outweigh number of years of experience. - 43 - Section II, continued GENERAL ADMINISTRATION DUTIES This group includes the general administration officers other than those included in the professional group. QUALIFICATIONS Adequate experience and training in an appropriate spe- cialized field of work. THE CLERICAL SERVICE There shall be four groups, as follows: JUNIOR CLERKS Requirements: High school graduation. Salaries: * SENIOR CLERKS Requirements: High school graduation plus appropriate training and experience. Salaries: * STENOGRAPHERS Requirements: High school graduation and training in business school of recognized standing. Salaries: * CLERICAL SPECIALISTS Requirements: the same as for Senior clerks, plus added appropriate experience. Salaries: * SECTION III EXAMINATIONS, SERVICE RATINGS, AND ELIGIBLE LISTS No general examination for admission to the separate li- braries is held since library school graduation is a prerequi- site for admission. Nor are general cultural examinations required for promo- tion. Such promotion is given on the basis of training and * A study of the salaries of non-professional library employees is now being made by a committee of the United Staff Associa- tion; the report of this committee will contain recommenda- tions regarding these salaries. - 44 - Section III, continued experience and of required assignments* suitable for the positions in question. Those assignments are subject to the individual decision and supervision of each library system, since special positions and requirements for the same vary according to local condi- tions. For this purpose there is a Local Examination Board ap- pointed by the administration of each library. It is the business of this Board to review service ratings, and to pre- pare the above assignments and to pass upon the eligibility of all candidates, and to submit recommendations for promotion. There shall be a Union Examination Board composed of rep- resentatives from the Local Examination Board of each library. They shall formulate the general policy of promotions subject to the approval of the separate administrations. The candidates who qualify are placed upon an eligible list. After three years, eligibility ceases, except in such cases as eligibility is continued by action of the individual Boards of Trustees. * The assignments may be individual research on a problem, a bibliography, or a general thesis or a more formal test when considered desirable. - 45 - J