UlttMA FINAL REPORT OF THE ILLINOIS WORK PROJECTS ADMINISTRATION IHE LIBkARY UMHt JL'L 7 1943 UNlVEJiSilY Of ILUNOLS mNZ^ZiXY OF IUIN0I8 URBANA THE U6RARY OF THE JUL 7 1943 UHiVERSJTY OF lUJNO'S FINAL REPORT 1935 - 19-^3 FEDERAL WORKS AGENCY ITORK PROJECTS ADMINISTRATION OF ILLINOIS CHAS. P. CASEY" STATE ADMINISTRATOR ^- 1943 UHlvEBSlTYjXltHSlOHj v\r-< r. 1943 APRIL 30, 1943 , -^A*ni} Federal Works Agency -[|->\ 3T / iy^oRK PROJECTS ADMINISTRATION of Illinois FOREWORD The greatest satisfaction which the Administrators of any program can have is to know that its objectives have been achieved. The purpose of the Works Progress Administration, predecessor of the Vfork Projects Administration, as established by the Relief Appropriation Act of 1935, was "to provide relief and work relief and to increase employment by providing useful projects." Behind this was the belief of the Administration that "every man should have the right to work for a living" and that such a program vrould contribute "^grer.tly toward repairing the damage to individual morale and public confidence . created by the depression years. "The task confronting the WPA was that of restoring to the individual worker his self-respect and self-confidence, and that of transforming millions of idle man-hours into productive labor for the common vrelf are. Today, when we ■ approach the end of the program, we can evaluate the results of our endeavors. Through planning and constructing useful public works and performing needed public services, vrarkers' skills have been maintained and nciv skills have been taught, self-respect and self-confidence have been restored, making it pos- sible for workers to return to their normal pursuits in public and private employment. This, then, is the success of the WPA; it has "bridged the gap between unemployment and employment"; it has accomplished the purpose for which it was created. The history of the vrork relief programs in Illinois is not dissimilar to that of other states of comparable size and characteristics. Only in spe- cific accomplishments and operating methods iixll differences be found. This report should in no way be considered a history, for volumes could be viritten of the far reaching effects of the vrork relief programs upon the v;ays of living of the peoples of present and future generations. The purpose of this report is largely that of recording how the WPA program vias operated in Illinois . Grateful acknowledgment is made of the thoughtful participation of the several State Directors, Staff Officers, and former District Managers in the prepara- tion of this report, and of the untiring efforts and loyalty which they and all administrative and project personnel have so freely given, ofttimes at great personal sacrifice, to make the WPA program a success. Also not to be forgotten is the important part played by the many sponsors of V^A projects, whose vision in projecting plans, providing materials, equipment and supervision, and whose sincere interest and cooperation have completed the partnership between Federal and local government so necessary to the success- ful conduct of the program. V7e of the Illinois WPA are proud of a job well done. Chas. P. Casejr""'/" State Adrainistravor 1- 1, CONTSNTS Page I BACKGROUND 1 Unemployment Problen and How It Was Met 1 II AfflflNISTRATION 3 General 3 Personnel Administration 12 Rating or Service Reports 14 Progressive Salary Adjustments 15 The Personnel Office 15 Office Management 1° Records and Control IS Records 1^ Control 20 Administrative Budgets 20 Procedures 20 Public Relations 21 Safety 23 In-Service Trsdning 25 Administrative Bnployees 25 Division of Engineering and Construction Division of Service Projects Inspection Division of Service Projects 28 Division of Engineering and Construction 31 26 26 27 Page III PLANNING 33 General 33 Engineering and Construction 33 General 33 Project Pi'omotion 33 Preparation of Applications 34 Plans and Specifications 35 Sponsor's Pai-ticipation 35 Review of Project Applications 36 Planning of Project Operations 36 Budgeting 37 Progress Reports 37 Types of Work as Related to Types of Labor 38 Service Projects 38 Local Program Planning Under Predetermined Broad National Policies 39 Experimental Planning 39 Planning of Consolidated Projects ' 40 IV FINANCE U General 41 Timekeeping 44 Payrolls 47 Compensation 48 Audit and Inspection 50 Fiscal Control 51 Reports and Statistics 52 Page V mFLCYHmT 54 Organization 54 Certification 56 Certification of Cases not Receiving Direct Relief 57 Certification of Non-Res idents 57 Certification of Phj'-sical Disability Cases 58 Review of Need 59 Liaison mth State and Local Welfare Agencies 59 Special Types of Certification 59 Requisition 61 Classification and Assignment 62 Snployee Relations 64 Unions 64 Racial 67 Veterans 68 Individuals 70 Records 72 Inspection 73 Separations 74 VI COAiUNITY RELATIONS 76 General 76 Engineering and Construction 77 Sponsors ' Attitude 77 Attitude of the Public 77 Service Projects 78 Media Throu^ Which Local Communities Participated 78» Value of Advisory Committees and Councils 79 Page VII FACILITIES AND B^UIHJENT 81 General -81 Facilities and Equipment for Administrative and Project Offices 81 Facilities and Equipment for Project Operations 81 Division of Engineering and Construction 8^ Division of Service Projects 85 VIII TRAINING AND RE-I^LOYI.iaJT 86 General 86 Vocational Training 86 Household Woricers' Training Project 87 Classes 88 In-Plant Training 89 Selection 90 Placement 91 IX OPERATING PROGRAMS 93 General 93 Engineering and Construction 94- General 94 Types of Projects Operated 95 PiL^'.vays, Roads, and Streets 95 Public Buildings 98 Parks and Recreational Facilities 100 Public Utilities 101 Airports 102 Conservation 103 Disaster Relief Program 104 Ems. Program of War Connected Projects 10? Improvement in Type and Quality of Work 108 Operation of Federally Owned Equipment 108 Division of Service Projects 108 General 108 DeveloFoent of Program 109 White Collar Workers 109 Professional Programs 110 Types of Projects Operated 111 Redirection to War Effort 112 Community Benefits 113 MAJOR PRGBLaiS AND CONCLUSIONS 117 Administration 117 Planning 118 Finance 119 anployment 119 Conraunity Relations 120 Facilities and Equipment 121 Training and Re-eraplpyment 121 Operating Programs 122 APPENDIX "A" A-1 Manual of Rules and Regulations of the Work Projects Administration and Illinois Procedures APPENDIX "B" B-1 List of Publications, Unpublished Manuscripts, Technical and Operating Manuals Prepared by the Division of Service Projects Publications B-1 Unpublished Manuscripts &-21 Technical and Operating Manuals B-25 APPENDIX "C" C-1 Partial list of Accomplishments of the Work Projects Administration in Illinois I BACKGROUND UIffi?.!?LOY:ENT x^RC3LS.! D^ STATE AND HOW IT u'AS IffiT Une.'uployrient vdth all its attendant evils was the most serious problem be- fore the State of Illinois when WPA was instituted in 1935. CWA provided a considerable means of helping the situation but that agency had been abolished and the FERA relief and work relief program substituted in its place. V/hile the FSPIA work program was a particularly successful one, it fell short of providing sufficient jobs for the large number of families needing public assistance. While a few types of business showed improvement over the years 1932, 1933) and 1934, the general economic condition in 1935 continued rather desperate and the demand for public work programs to meet the unemployment problem reached a peak. In order to more specifically analyze this unemployment problem in Illinois, the following percentages and figures are presented. In listing these fig- ures we wish to caution against their abstract acceptance. They are based upon surveys, statistical reports, and studies of various agencies includ- ing vVPA, and some intangible estimates have been added. Basically, we be- lieve the figures represent a fair picture of the actual conditions and are as factual as possible in consideration of the sources available. Year 1930 1931 1932 1933 1934 1935 1936 1937 -L^.p :jxx,wuu , ^ 1938 30.4 892,000 - 'Y/ 1939 1940 19U 1942 The Illinois WPA began functioning at the end of 1935. In plotting the index numbers of employment as reported by the Illinois Department of Labor and the index numbers of 'iVPA employment as derived from ^VPA employ- ment reports, for the years 1936 through 1942, it is evident that the Illinois Vvork Projects A±rd.nistration maintained a sensitive relationship between conditions in the private employment field and the employment load on VJPA projects. A decrease in the first of these series ?lmost always shows a simultaneous increase in the second series. Improved private em- ployment conditions almost invariably are reflected in decreasaa in the Percentage of gainful Est. No. of workers unemoloyed unemployed persons 16.5 469,000^ 28.4 810,000 42.4 1,215,000 40.7 1,171,000 32.7 946,000 30.5 885,000 25.2 735,000 17.5 511,000 30.4 892,000 ' *> 27.3 801,000 ' ^ 20.0 588,000 13.9 409,000 8.5 251,000 number of unemployed Average nimber of workers employed on Wk persons employed pro.iects (per cent) on 'TA pro.iects 24.5 180,000 26.7 137,000 2/,. 3 217,000 23.3 187,000 20.0 ia,ooo 22.1 91,000 16.9 42,000 index series for 'VPA employment within the following month. Based on the Illinois Department of Labor estimates of average unemployment throughout the year, the Illinois '"JPA employed approximately 20 to 25 per cent of the unemployed persons for the period 1936 through 1942. The figures for individual years are as follows: Proportion of estimated Year 1936 1937 1938 1939 1940 1941 1942 The Illinois Department of Labor estimates indicate that the greatest number of unemployed workers occurred during the month of July, 1938, at which time a lit- tle over 1,000,000 persons able and willing to work were seeking employment. The peak VJPA employment load occurred shortly after this, in Octber, 1938, with some 260,000 workers on the Illinois VifPA rolls. Although sporadic and spotty throughout the state, private employment conditions in Illinois began to show real improvement toward the close of 1941. These rains, however, were not consolidated until the middle of 1942, after which per- iod private emplojn.ient conditions were definitely on a more solid footing than they had been since the beginning of the "depression" in 1930. These im.proved conditions were reflected in '.VPA project employment. The winter of 1941-1942 did not sho.i the normal seasonal increase in employment that had occurred dur- ing previous years. Vi/PA employment was maintained at a fairly constant level from June, 1941 through February, 1942, after which it began its recent pre- cipitous decline, culminating in the current liquidation of the program. Illinois relief experience further bears out this picture of unemployment con- ditions. The peak load for the relief agencies occurred approximately Feb- ruary, 1935, with some 340,000 cases receiving relief assistance in the state. This total decreased gradually until November of 1935, with 290,000 cases, after which the I'/PA program was initiated, with the result that the relief load in the state rapidly declined to 140,000 in October of 1936, As liVPA employment quotas were revised to reflect changing employment conditions or changing congressional fiscal policies with respect to the 'VPA, the Illin- ois relief load thereafter fluctuated to high points of 210,000 during March of 1938 and 1939 and somewhat under 90,000 at the end of 1942. '.Vhile only 26.7 per cent of the total unemployed load in the state was on I'VPA at the peak of the program, the great majority of needy xinemployed (within the meaning of the ERA Act) was provided for. It is obvious that a much greater appropriation would have been required had Congress attempted to meet the total unemployment problem. II ADMINISTRATION GENERAL The person selected to be the first State Administrator in Illinois was at the time serving as Chairman of the Illinois Bnergency Relief Commission. Upon notification of his selection for the appointment, he instructed ceiv tain major executives of the Relief Commission to review the personnel files of the employees of the Commission to discover those persons vrtio, be- cause of their past experience, might well be shifted to the WPA adminis- trative staff. At the same time, a plan for dividing Illinois into seven administrative districts v;as sent to Washington and approved on May 25, 1935. This plan involved dividing each district into five to seven administrative areas, each carrying about 2^,000 relief clients. The plan was further developed to indicate the number, classifications, and qualifications of administrar- tive employees required in the U9 Area Offices, the seven District Offices, and the State Office to carry out a complete WPA program. The State Administrator, Assistant Administrator, Administrative Assistant, six of the seven ori^nal State Directors, nearly all of the Assistant State Directors, and large numbers of the clerical, typing, and stenographic staff were associated with the Relief Commission prior to their employment with •,VPA. As a result of the depression, large numbers of capable engineers, superin- tendents, and other persons of construction experience, and persons vdth professional training and experience in women's work and the Arts were ini- tially talcen into the relief agency and assigned to work which was to a large extent at variance with their experience in private industry. Because of the availability of a completely developed personnel file and occupar- tional finding system, it was possible to quickly locate such persons when the need occurred for their services by WPA. The work of the State Central Administration was carried on by an Executive Office consisting of: State Administrator Deputy State Administrator Assistant State Administrator Administrative Assistant State Director for Youth and seven State Directors, each in responsible charge of a Division, as follows: State Director, Division of Finance and Reports State Director, Division of Personnel State Director, Division of Professional and Service Projects (P & S) State Director, Division of Construction Projects state Director, Division of Labor Management State Director, Division of Intake and Certification Chief Clerk, Division of Office Management Within each Division there were established one or more major sections under the direction of principal assistants who were known as Assistant State Direc- tors. They carried individual responsibility for specific functions, activi- ties, or programs as follows: Assistant Assistant Assistant Assistf-jit Assist Pint Assistant Assistant Assistant Assistant Assistant Assistant Assistant State State State State Strte State State State State State State State Director Director Director Director Director Director Director Director Director Director Director Director of Fincince, for Control of Finance, for Reports of P & S Projects, for Women's Work Projects, for Recreation Projects, for Public Welfare Projects, for Research Projects, for Education & S & S & S & S of of of of of Construction Projects, for Planning of Construction Projects, for Control of Labor Management, for Labor Relations of Labor Management, for Assignments of Intake and Certification Other major assistants, such as a State Paymaster ydth his entire staff, reported to the Assistant Administrator. A State Safety Consultant was responsible to the Deputy Administrator. In accordance with instructions from the Federal WPA Administrator, the State Director of Youth was authorized to employ his own staff, including all neces- sary t3chnic?JL, stenographic, and clerical help, and the Illinois V/PA was au- thorized to placo such employees on the pay rolls of the State organization upon certification of the State Director for Youth. The Illinois WA provided the Eoi'viccs of its Personnel Division in registering, placing upon the pay roll, :jid r.dmirl storing the oath of office to such persons as the State Direc- tor for Youth appointed from time to time. The Illinois WPA did not develop personnel files for such persons. Incidental clerical help (to be carried on the State '.7PA pay rolls) and District Office space required by the State Direc- tor of Youth were also authorized as a charge to regular administrative ex- pense. The District Office organization followed closely the State Office pattern: District Director Assistant District Director District Supervisor of Finance District Supervisor of Personnel District Supervisor of P & S Projects District Supervisor of Construction Projects District Supervisor of Labor Management District Supervisor of Intake and Certification District Office Manager As in the State Office, the District Supervisors ■'nere assisted by Assistant District Supervisors in charge of each Division's severaJL major activities. Every activity within a district was directed in its entirety by the District Director, ivho was governed by Official Bulletins and Divisional liemoranda au- thorized by the Deputy Adiiinistrator. District Directors reported to the As- sistant Attoiinistrator. District Super\'iscrs were administratively responsible only to District Direc- tors. State Directors were considered as consultants to the Deputy Adminis- trator in the formulation of controlling policies and in preparation of Offi- cial Bulletins, and as advisors to District Supervisors. Representatives of the National, Regional, and Area Statistical Offices of WPA who visited Dis- trict Offices or Projects were regarded as qualified observers and analystsi and such modifications of policy or procedures as they proposed became effec- tive only vrhen embodied in Official Bulletins or Divisional liemoranda. Later, in order to strengthen the position of the State Directors, the State Administrator modified the relationship between the State Directors and the District Directors so as to place in the hands of the State Directors the re- sponsibility and authority comparable to that of Assistant State Administrar- tors, who, v.'hen they visited District Offices, were considered liaison repre- sentatives between the State Administrator and the District Directors. On February 1, 1936, the organizational structure -ffas revised as set forth below; Executive and General Office State .'.dr?lnistrator Deputy State Administrator Assistant Administrator Administrative Assistant - CJeneral Administrative Assistant for Labor Relations State Director for Youth Di^i-sion of Operations State Director, Division of Operations Assistant State Director of Operations, for Project Planning Assistant State Director of Operations, for Project Safety Assistant State Director of Operations, for Work Camps State Paymaster Assistant State Paymaster State Supervisor of Tools and Equipment Division of 'iTomen' s and Professional Projects (W & P) State Director, Division of W & P Projects Assistant State Director, 71 Si ? Projects, for Planning Assistant State Director, \'I & P Projects, for '-Somen's Work Assistant State Director, W & P Projects, for Recreation Assistant State Director, W & P Projects, for Education Assistant State Director, W & P Projects, for Statistical Projects Division of Finance and Statistics State Director, Division of Finance and Statistics Assistant State Director, Div. of Finance and Statistics, for Control Assistant State Director, Div. of Finance and Statistics, for Statistics State Compensation Officer Division of Bnployment State Director, Division of Bnployment Associate Director, Division of Qnployraent Assistant State Director, Div. of Qnployment, for Assignments Assistant State Director, Div. of Qnployraent, for Liaison and Adjustment Assistant State Director, Div. of anployment, for Supervisoiy Labor The office of the Chief Clerk was placed under the direction of the Adminis- trative Assistant, General. The Division of Personnel became incorporated with the Division of Bnployment, with the State Director of Personnel as Di- rector of Employment. A new position. Associate Director of Bnployment, was established with the stipulation that the incumbent must be a social worker. Another stipulation was that the State Director of the W & P Division must be a woman. In the Division of Operations a staff was set up to handle Informa- tion and Progress Reports which included several photographers and writers. On October 1, 1937* in accordance vdth instructions from the Central Office, the position of Assistant State Director of Finance for Statistics was abol- ished and the Office of State Statistician vras created. It was set up as a Staff Officer position attached to the office of the State Administrator. The District Office organization followed closely that of the State Staff, with District Supervisors and Assistant District Supervisors in charge of ac- tivities as hereinbefore stated and reporting to the District Directors with lines of informational and advisory contact running back to the State Direc- tors. Budgetary limitations for administrative expense provided by the E.R.A. Act of 1939 made it necessary on August 1, 1939 to curtail and realign functions and to reduce the administrative staff. A complete revamping of the several districts in Illinois resulted in the number of districts being reduced from seven to five. Accounting functions had previously been centralized in the State Division of Finance and plans were made to effect further savings in administrative costs which might result from completely centralizing the processing of payrolls. In the District Divisions of Operations, Area Offices, as administrative units, were discontinued and all project reporting which had cleared through such offices went directly to the District Office. Much of the planning work re- lating to the writing of project applications was moved to the State Office; changes in the Safety organization involving the operation of the safety pro- gram by Zones ^/dthout regard to district lines were made. In the W & P Divi- sion project applications began to be processed by the State Office staff as described above for the Division of Operations. In the Executive Unit the positions of Assistant District Directors were abolished in all Districts, except in the Chicago District Office. An Administrative Aide, to perform the miscellaneous clerical duties involved in the preparation of the District's Administrative Budget Request, the mail and messenger services, supplies and equipment, and prescribed personnel documents was authorized for the Execu- tive Unit, District Supervisors of Operations were required to carry addition- al responsibilities also. The NYA, which previously had operated vdthin the WPA, was transferred by the President's Reorganization Plan I to the Federal Security Agency on July 1, 1939. On August 1, 1939, our organization was as follcuvs: Administrative Office State Administrator Deputy Administrator Assistant Administrator Assistant to the Administrator State Statistician Chief Clerk State Personnel Officer Division of Operations State Director, Division of Operations Assistant State Director, Division of Operations State Planning Engineer Chief of Construction Section State Safety Consultant ■«State Supply Manager Di\d.3ion of Professional and Service Fro.lects State Director, Division of P & 3 Projects State Supervisor of Project Planning State Supervisor of Production and Service State Super'/isor of Education Business Director of Federal Projects Division of Finance State Director of Finance Assistant State Director of Finance State Chief Accountant State Supervisor of Timekeeping and Payrolls Stats Compensation Officer ■estate Property Accountant Di\'ision of aiplqyment State Director of Ibplcyment Assistant State Director of Bnployment State Liaison and Adjustment Officer State Assignment Officer *Note: State Supply Manager and State Property Accountant vrere in the Supply Section, Supply Fund, but functioned under the Heads of the Divisions of Operations and Finance respectively. The District Office organization followed that of the State Office with the exception of the Division of Finance. This division was handled by a District Timekeeper who reported administratively to the District Manager and techni- cally to the State Director of Finance throu^ Field Examiners and Inspectors. Operating experience gained during the period for the fiscal year 1939-194.0, while operating on a five District Office basis, indicated the advisability of developing a plan for re-districting the State on a six District basis. Effective July 1, 1940, this was accomplished and made possible closer gener- al supervision and more frequent contacts with projects and sponsors. Under the new geographical changes the number of counties in each district and the number of workers and projects were more evenly divided, and travel distances to and frcm District Offices were shortened. Considerable iraprcvement in the Illinois organization was reali7;ed from Febini- ary 1, 1940, when the Regional Office established a Standard Administrative Or- ganization for all States in Region 4- This pattern was subsequently followed, vdth minor changes, when the Central Office later effected revisions in the National organization. The uniformity of organization accomplished by this move not only made it possible to issue and apply instructions with less diffi- culty; in addition, since all states in the Region operated under similar or- ganizational structures, ?:-eater equity of administrative budgets resulted. The State Adminict rater was the executive and directing head of the State WPA orgcinj.zation £ind, within the limits of rules, regulations, and procedures is- sued by the Central and Regional Offices, was responsible for decisions on all matters of policy ?nd for the efficient and economical operation of the entire State Administration, including all functions of the State and District Offi- ces. The State Administrator was also responsible for all matters relating to ap- pointive personnel and the general coordination of the work program in the State. He reported to the Commissioner, through the Regional Office, and was assisted by a staff of four Division Directors, each delegated ^"dth the au- thority necessary to csirry out the functions of his division in the State. The four functional Divisions, each headed by a State Director, were known as; Division of Operations Division of Professional and Service Projects Division of Enploymant Division of Finance In addition to the four Division Directors, the State Administrator was as- sisted by a Deputy Administrator who was delegated with full authority in the Administritor' s absence, and made decisions, in the first instance, on prob- lems rofe-'rad by the Division Directors. Reporting to the Deputy Administra- tor, and in charge of sections of 'vork in the Administrative Offices v;ere Staff Officers vdth titles of State Statistician; State Information Officer; Chief, Office Service Section; and State Personnel Officer. The only level of Administrative Offices below that of the State Office was the District Office, v/hich was in charge of a coordinating head knmvn as the District Manager. He was appointed by the State Administrator, subject to the approval of the Regional Director, and was responsible directly to the State Administrator for the proper coordination and promotion of the program within his district. He had direct supervision over all employees of the District Office insofar as was necessary in the performance of their assigned duties. The District Manager was assisted by a staff of four Division Direc- tors who were responsible to him for the proper execution of the Division's functions, but who reported to the State Directors of their respective Divi- sions on all matters involving methods, procedures and practices, planning, scheduling and prosecution of projects and other special problems. The four functional Divisions and the titles of the Division Heads were: District Director, Division of Operations District Director, Division of Professional and Service Projects District Ehiployroent Officer District Finance Officer A breakdovm of each Division shewing their respective Sections, Units, and Sub-Units in the State and District Offices follows: ADMINISTRATIVE ; State Office Districts Executive Office Statistics Section Information Section Personnel Section Office Service Section Supervisory Unit Service Unit Communications Sub-Unit Stenographic Pool Sub-Unit General Files Sub-Unit Supplies Unit Buildings Unit FINANCE; Executive Office Office Service Section Service Unit Supplies Unit Buildings Unit State Office Districts Executive Section Accounts Section SupejTvisory Unit General Ledger Unit Project Ledger Unit Encumbrance and liquidation File Unit Voucher Section Supervisory Unit Pay Roll Voucher Unit Supervisory Sub-Unit Time Report Sub-Unit Individual Earnings Record Sub-Unit Assignment File Sub-Unit Pay Roll File Sub-Unit Typing and Proofreading Sub-Unit Equipment and Miscellaneous Voucher Unit Travel Voucher Unit Field Examination Section Compensation Section ■*fi^operty Accounting Unit Executive Section Field Examination Section ■>*Property Accounting Unit OPERATIONS: State Office Executive Section Planning and Control Section Supervisoiy Unit Application Control Unit Engineering Review Unit Reports and Planning Unit Construction Section Safety Section ^Supply Section MPLOYMMT ; State Office Districts Executive Section Planning and Control Section Construction Section •"■Supply Section Districts Executive Section Intake and Certification Section Assignment and Labor Relations Section PROPESSIOK'AL AND SERVICE ; State Office Executive Section Planning;' and Control Section Coinraunity Service Projects Section Welfare Projects Section Research and Records Projects Section Executive Section Intake and Certification Section Assignment and Labor Relations Section Supervisory Unit Classification and Assignment Unit Labor Relations Unit Dnployment Files Unit District! Executive Section Planning and Control Section Conuminity Service Projects Section V/elfare Projects Section Research and Records Projects Section *Nota: Supply Section and Property Accounting Unit were in the Supply Fund organization, but functioned under direction of the Heads of the Divisions of Operations and Finance respectively. A Division of Training and Reemployment was established on August 1, 19A1, to develop plans and programs for training and reemployment of certified persons for private and other public employment. Positions of State Director and Dis- trict Directors were established, each provided ivith a minimum of necessary clerical staff. The Division v;as not divided into sections as in the case of other Divisions. The administrative and functional relationships of the Divi- sion of Training and Reemployment were the same as heretofore described for other Divisions. Effective February 15, 1942, the Division of Professional and Service Proj- ects, which had previously been called the Division of Community Service 10 Progranis, became the Service Division. On September 1, 19^2, in order to maintain an adequate administrative staff in every State and at the same time keep vrLthin the administrative appro- priation available to WPA for the fiscal year of 19^3, certain functions pertaining to accounting, vouchers, and reporting were transferred from the State Division of Finance to a Field Finance Office serving several states. On October 1, 131^2, further realignment of functions and change of organi- zational structure v/as effected. The principal change resulted from shift- ing certrin functions, previously mentioned, to the Field Finance Office. In addition, a new Division was established, knovm as the Division of Fi- nance and Control. This Division assumed the remaining finance functions, responsibility for application control, v;hich was previously a function of the Division of Operations, and the Office Management functions formerly under direct supervision of the Administrator's Office. At the same time the name of the Division of Operations was changed to Division of Engineer- ing and Construction, and the name of the Service Division to Division of Service Projects. On December 1, 1942, a State Division of Supply was es- tablished under the supervision of a State Director. The responsibility for all functions related to the acquisition, storage, issuance, mainte* nance, record keeping and disposition of property of the State Administrar- tion was transferred from the State Division of Engineering and Construc- tion and the State Division of Finance and Control to this new division. Accordingly, the administrative structure, vrhich had passed throu^ various stages of evolution, v^as, at the closing year of the program as outlined below: Office of the State Administrator State Personnel Office State Di\'lsion of Engineering and Construction Executive Section Sigineering Section Construction Section Safety Section State Division of Service Projects Executive Section War Services Section Defense Health and V/elf are Section State Division of Training and Reemployment Executive Section State Division of Finance and Control Executive Section Finance Section Control Section State Division of Employment Executive Section Intake and Certification Section Assignment and Labor Relations Section n state Division of Supply- Supply Section (Supply Fund) The district office organization closely followed that of the State office, except that there were no District Divisions of Finance and Control or Supply. PERSONNEL ADMINISTRATION At the beginning of the program in Illinois, in order to assure ultimate ef- ficiency of operation and in the interest of good administration, personnel processing was not restricted to the Administrative staff. Candidates for assignment to supervisory positions on projects as well as timekeepers, cost and material clerks, stores clerks and, in general, persons having primary responsibility in conduct of projects or in the handling of fiscal reports and property were subjected to personnel investigation, to determine loyalty, reliability, and technical qualifications, as well as their sympathy and general interest in tho program. From July 1935 to February 1, 1936, this vrork was carried by a Division of Personnel mdth a State Director. The Division was broken dovm into major sections, such as Recruitment, Testing, File Development and Investigation, Placement, Staff Standard Control, District Office Processing, Certification, Reclassifications, Transfers, Job Analysis and Specifications, etc. A com- plete registration system covering every person making application for a position v;as established and maintained. At one time there were 275,000 such registrations and files in the Division of Personnel. For administrative positions a Position-classification plan, which consisted of an arrangement of all positions in classes by segregating positions of equal difficulty and responsibility and \vhich required similar qualifica- tions, v;as administered in this Division for the entire State. By special arrangements vdth the United States Civil Service Commission, the Commission sent a representative to Chicago to instruct our technicians in the adminis- tration and grading of actual Civil Service tests of essential skills. Clerical, typing, stenographic, statistical, timekeeping, and comptometer tests were given. At the beginning tests were given in the State Division of Personnel at Chicago, and in each of the District Offices by the Dis- trict Personnel Supervisor. The District Supervisor of Personnel also ar- ranged with Superintendents of Schools and Business Colleges in every county in his district to hold examinations of all types in order than an opportu- nity could be afforded to people frcm all over the district to qualify for employment in tho District Administrative Office and for project positions. Administrative positions in the State and district offices were divided into major and minor categories. Positions in the State Office beginning at the level of Assistant State Director and in the district offices at the level of Assistant District Supervisor vrere regarded as major positions. Nomina- tions of candidates for these positions required clearance with the State Administrator and the appropriate State Director prior to the submission of appointing personnel documents to the Division of Personnel. If, in the light of general personnel practice, there appeared reasons why the ^point- ment should not be allowed, the Division of Personnel advised the State Ad- ministrator by memorandum stating its objection. After revievdng the facts 12 presented to him, the State Administrator advised the Division of Personnel of his approval or disapproval of the nomination. In the State Office, requisitions for personnel for positions considered as Ednor were initiated in the office of the requisitioning State Director, for- warded to the State Ad-ninistrator for his approval signature, and then routed to the Division of Personnel. The Division of Personnel identified the best qualified person on its list of available persons, taking into account his sympathy •••dth the objectives of the program, examination grades, training and experience, and other factors relative to the placement, and referred the per- son so identified to the requisitioning executive. In the district offices, division heads requiring administrative personnel ad- dressed memoranda to the District Manager outlining the duties of the position. If the District Manager approved he conferred vdth the District Supervisor of Personnel, v.-ho designated the proper occupational classification and salary for the position. The District Manager then selected for appointment a quali- fied person from the available file of the Supervisor of Personnel. The ap- pointment forms, a copy of the complete personnel file, snd a transmittal mem- orandum from the District Supervisor of Personnel were then sent to the State Division of Personnel for approval of qualifications and processing. Similar proced\ire was followed in the selection of project supervisory person- nel. Persons nominated for certain selected positions required review and ap- proval of the State Director of Personnel in conference with the appropriate State Director. All others T.'ere controlled and processed in the district of- fice. In the Chicago district office and in the district office serving Cook County, all requisitions for supervisory personnel vrere processed by the State Division of Personnel. All personnel files of employees of these two dis- trict offices Trere developed and housed in the State Division of Personnel. In 1937 the functions of the State Personnel Office were transferred from the State Division of Qnployment to the Office of the State Administrator, v/here this -.-ork rdth respect to project supervisory positions, continued until early 19/VO. From that time on, all State Office review of project supervisory posi- tions -733 the responsibility of the Division of anployment. In January, 19'!tO, responsibility for the preparation and processing of admin- istrative pay rolls, which previously had been in the office of the Chief Clerk and later in the Division of Finance, was placed in the State Personnel Office. This also involved the maintenance of individual earnings and sick and annual leave records. On January 24, 19^2, v/hen V- tral Office included narrative and detailed discussion of circumstances sur- rounding the request. V/hen the duplicate of the Position Classification Sheet was returned to the State Administrator, the title and assigned grade indicated thereon became final. On August 1, 19i*2, complete responsibility for classification action, except for a few selected major positions, was returned to the states. V/hile it was realized that this change was made to effect economies in operations, never- theless it is believed that all classificr.tion action should properly be under Central Office control. If a classification plan is to have the standing and competence essential to sound administration, it should be administered by a Central Office authority vrhose review and action in establishing class titles and grades v.lll be thorou^ily impartial and not influenced, as the State's may be, to consider the cost involved. In the event it is not possible for a Cenr- tral Office to actually do the work of allocating positions to classes and grades, it is believed that broad policies and rules should be established and that a field staff of Classification Auditors be made available to check the work of the several State Administrations for uniformity of action. Rating or Seirvice Reports Probably no personnel practice is more constantly utilized and more generally unsatisfactory than ser\'ice ratings. There is a need however for some sort of a validated measuring stick that will bring to ligbt deficiencies, errors in judgment, and limitations of capacity, as well as the more favorable traits of emplpj'-ees. A rating system will often aid in a training program by indicat- ing v/eakness that should be corrected. It ^vill also aid the Personnel Officer in revierdng his recruitment program. Any such system should be introduced by the Central Personnel Office, as it will be of material assistance in using the system to be able to advise employees that it is being universally applied. Ratings should be issued at least tvdce a year and should be discussed vith employees in an effort to assist their progress and to cut down excessive turnover. Wisely used it is a means of keeping the working force on its toes. U Progressive Salary Adjustments It is believed that the relationship between the classification plan ai^d a compensation plan is so intimate that a single head should administer both. Compensation is the most important employee incentive and a well adminis- tered Personnel Division should be in a position to see that salaries are adjusted promptlj' to changing economic and employment conditions. A fiscal executive has a different approach than the Personnel Director and is often inclined to regard a salary problem as one of pure expenditure rather than in terms of the provision of personnel incentive. Few tasks of a State Ad- ministration ere fraught v/ith so much difficulty as the capable handling of requests for salary increases. The adoption of a periodic salary increase plan, based upon satisfactory performance on the job, as reflected by employee service rating reports, mil serve as an incentive to maximum employee effort. A small percentage of the approved monthly administrative budget should be allocated for this purpose . The Personnel Office Personnel administration is a major staff executive responsibility. The Director acts in an advisory and consultative capacity to the State and Deputy Administrators, and to the State Directors and District Managers. As the administration of a sound personnel program cross-cuts authority, it is believed that recognition of his position as a representative of the State and Deputy Administrators would free the office from any possible in- fluence or prejudice of any one of the major divisions. Moreover, his pres- ence in the administrative organization, attached to the office of the Ad- ministrator, should assure his inclusion in the top councils where the human aspect of administrative problems will receive adequate consideration before final decisions are made vdth respect to policies and procedures. The Personnel Officer should be permitted to employ a staff of qualified technical assistants to satisfactorily discharge the duties and responsi- bilities of his office, which should include: Development and administra- tion of a Position-Classification and Compensation Plan; minimum qualifi- cation standards; testing program; recruitment; selection and placement; re- view of proposed reclassifications, promotions, reinstatements, demotions, and transfers; in-service training program; salary adjustment plan; system of employee ratings; employee relations; preparation of administrative pay roll; maintenance of leave and retirement records; maintenance of personnel files; occupational classification files for anployees and applicants; and personnel control records. On his staff should be at least one full time field representative whose du- ties vjould involve liaison woric vdth District Managers and division heads. The lack of such a person v;-as a serious defect existing in Illinois WPA. Such service as he could have rendered would have repaid the expenditure made many times over. The personnel officer should have technical supervi- sion of a District Personnel Supervisor and his staff, in order to assure uniform application of high standards of personnel administration. 15 Office La:inageuent was organized at the inception of the program in Illinois under the jurisdiction of a Chief Clerk ivho had initially the standing of a State K-visicn Head and was accountable to the Deputy Administrator. In ad- dition to being responsible for functions attendant to office management, the Chief Clerk v;as responsible for the processing of administrative pay rolls and of travel vouchers. Subsequently, realignnent of functions re- sulted in the transfer of administrative pay roll and travel voucher proc- essing to the Division of Finance. Under a later reorganization, the Chief Clerk's division became the Office Service Unit in the Administrative Division and in 19A2 the functions re- lated to office management represented a part of the functions assigned to the Control Section of the Division of Finance and Control. At the start of the organization the Chief Clerk was represented in Dis- trict Offices by an Office Manager who was under administrative supervision of the District Manager and technical supervision of the Chief Clerk. Af- ter several years, reorganization of the administrative sections resulted in abolishnent of the position of Office Manager, the related duties be- coming a direct responsibility of the District Manager. 'rVhile it was often necessary to abolish certain functions deemed essential due to budgetary limitations, and in Illinois the abolishment of the posi- tion of Office Manager in the District Offices vfas agreed to for this rea- son, it is recommended that the position of Office Manager be included in the budget of any organization employing approximately 50 or more persons. It is a fact of long standing in commercial and industrial fields that a well qualified Office Manager, carrying an appropriate level of adminis- trative authority, has a definite place in the organization structure. The position of Office Manager is a profitable investment in that it pro- vides for studied consideration of factors of econcoy and efficiency in establishing and coordinating office services to the general program. An Office Manager will also relieve his supeirior, who in a large federal agen- cy is usually an administrative Head, of matters extranecxis to the broad operating responsibilities attendant to the position of his superior. Initially the Chief Clerk did not attend all conferences called by the Administrator or Deputy Administrator ivith State Division Heads. Often, advice concerning office management services in connection with plans in- itiated and developed in such conferences was not furnished to the Chief Clerk sufficiently in advance to provide effective and efficient service. This was corrected by the attendance of the Chief Cleric at all conferences of State Office Di\-ision Heads. It is believed that there are few opera- tions in any large organization which are not of significance to scane ex- tent to office management. It is therefore recommended that the person responsible for office management be attached to the Executive Office in order that seirvlces may be anticipated and coordinated to the requirements of the program. Vfhile the Chief Clerk was responsitj.e for the acquisition of premises for occupancy by administrative offices only, it is recommended that adminis- trative contirol be exercised over the acquisition of all space, inasmuch 16 as the t}'OU/:hts and activities of an operating head are largely taken up with operating problems, and those factors entering into the determination of ap- propriate fiiid suitable quarters do not always receive appropriate considerar- tion. PV.riiier, centralized space control will insure that pre— negotiations are handled '.vithin the scope of regulations. The desirability of obtaining space free of charge for occupancy by adminis- trative or project offices is questioned, particularly when the lessor is a sponsor. This question is raised on the basis that, notwithstanding emphatic expressions to the contrary at the time such arrangements are made, free space is in effect sometimes construed by the lessor or his representatives as an implied obligation; thus presenting the possibility of an attempt being made to secure arrangements or special concessions not compatible with the best in- terests of the organization. The Chief Clerk was charged with the responsibility for the acquisition of furniture, office equipment, and office supplies for both administrative and project use. It is reccmmended that the acquisition of such properties be the responsibility of an administrative head to insure the acquisition of equip- ment most suitable for the job to be done. Generally, an operating Head is not familiar with the various types of office machinery and their uses 3nd often requests the purchase of a certain piece of equipment on the basis that it :vill do the job but without knovdedge of other equipment more suited or economical. As an example, a requisition was initi- ated for nine accountia^ type machines at a cost of approximately $7,200. An analysis of the job to be done showed that the desired result could be accom- plished satisfactorily v.-ith equipment costing approximately $2,700, which was, of course, ordered. At the start of the program, office furniture was largely secured on a loan basis from the Illinois Bnergencj'- Relief Commission. The furniture so loaned was fabricated by the relief commission in their workshops approximately five years prior to this time. The furniture was not in good condition and, in ad- dition to causing irritation to the employees using it, a heavy maintenance cost was experienced in keeping the furniture in repair. This furniture was used several yeai's before being replaced vdth new furniture purchased by the Wk. Initially, office supplies were requisitioned throu^ the Treasury Procurement Office by individual, projects and administrative offices. Hov;ever, shortly after the start of the program it was readily recognized that the requisition- ing of office supplies by individual project units was resulting in the pur- chase of stock not required nor suited for the job. As a consequence, a sys- tem was instituted whoreby the acquisition and warehousing of all office sup- plies, in the first instance, vfas carried on under the Chief Clerk. This was done bj.- means of establishing a revolving fund from which the initial purchase was made and vd-thdrawals from the central stock were charged to participating units at cost plus lOo which covered the operating cost of the arrangement. Later procedure provided for the centralized purchasing of office supplies as a function of the Supply Fund vdth stocks madntained in the several district warehouses. As a result of decentralized stocks and the absence of adminis- trative control over purchases, excessive quantities and items not essential 17 to the operating prograrn. were subsequently brou^t to light. This condi- tion was, in a measure, corrected by the termination of decentralized stor- age in favor of centralised stocks in the State Supply IVarehouses and fu]>- ther by administrative approval of requisitions for purehase of supplies for stock. In this connection, it is again recommended that the acquisition of all of- fice supplies be under the jurisdiction of an administrative head. This recommendation is based on the apparent fact that the matter of office supplies is seemingly too insignificant for any particular attention or control by operating personnel. Acknovdedging that office supplies by in- dividual items and nominal quantities do not involve appreciable sums of money, the overstocking, misuse, and purchase of inappropriate supplies amounts to an appreciable figure when viewed in terms of a state-vade basis. Initially, reproduction work in connection with the duplicating of instruc- tional n?terial, forms, special releases, etc. was furnished by the Repro- duction Unit of the Illinois Qnergency Relief Commission, quartered in the same building v.-ith the State Administrative Office. Mimeograph machines were furnished to the District Administrative Offices for the reproduction of instructional material originated '.vithin the District. As the volume at the State Office level reached considerable proportions, the staff of the Reproduction Unit of the lERC was inducted into the VJPA State Office and the equipment of the shop was transferred to VvTA on a loan basis. Later, mimeograph machines were recalled from District Offices and all du- plicating required for the entire state, '.d.th certain exceptions, was done in the Reproduction Shop maintained in the State Office. Under subsequent reorganization, the Reproduction Shop was transferred to the jurisdiction of the State Supply Section. However, administrative control of mateirial reproduced and quantities thereof was maintained. It is firmly recommended that such administrative control be maintained over any and all types of reproduction inasmuch as a unit, other than the administrative office, tends to furnish such vrork solely in the light of service and vathout regard to the propriety of the reproduced material. Prior to the inception of the Supply Fund, the responsibility for inventory control of office furniture and equipment was vested v/ith the Chief Clerk by virtue of the responsibility for the acquisition thereof. Inventory control of office furniture and equipment passed to the Supply Fund at the time this activity was originated. RECORDS AMD CONTROL Records At the inception of the program a file system was instituted in the State and District Offices predicated on a Central File for each such office. The method installed was the Remington-Rand subject file system. V/ith the abolishment of the position of Office Manager in the District Offices, the Central File in District Offices vras disbanded, each division assuming re- sponsibility for the maintenance of its files. Tliis resulted in a disin- tegration of the Remington-Rand subject system for the reason that the av- erage departmental typist or cleric used the most expedient means of filing. 18 irrospectivG of practicability. A multiplicity of "system;-;" v/as developed which made good control and vrorkability of files difficult. Many such files were developed on the basis of individual name of the addressee or the ad- drossor. Such a syst=^m vKJrked as long as the person building tne system re- mained on duty and had a good recollection. Acknowledging that central files versus divisionjJ. files is a debatable subject, it in recommended that a uniform system be installed. Regardless of whether the system be Reming- ton-R.ind, Dewey Decimal, or others, it should be mandatory that all material ^vith the exception of certain typos such as schedules, finance records, etc., be filed by subject. Furthermore, file systems should be devised to permit orderly retirement of inactive records and those of no value. During the early stages of the program little attention was paid to the r;^- idly mounting collection of records in field offices until such accumulc^- tions presented major problojns in connection rnth storage. While the major portion of field records arc of only transitory value, it was difficult to obtain the release of inactive material for centralized storage. As the ac- cumulation became burdensome at the project site, the records would be placed in some nearbj- location, supposedly for ready reference, instead of being released for storage in the Central Archives. This practice resulted in the accumulation of inactive records in many locations and various types of premises vathin the state, i.e. in the basements of City Halls or other municipal buildings. In such instances the storage vrould be secured on a personal basis by project personnel. At the termination of the activity or chang? in location of the project office, t?ie records so stored vrould remain 'without further consideration. Later it was necessary to enlist the aid of key field personnel such as Area Engineers and Field Examiners in ascertain- ing these locations to permit appropriate disposition. It is therefore recommended that a positive system of record control and fixed periodic retirement of inactive records be actively maintained in any organization, particularly those with multiple offices. In this connection it is stated only briefly, due to the possible adaption of most sxxy file system, that a document should not under anj' circumstances be placed in file vdthout first being appraised as to its record value, per- manent or transitory, and such appraisal so indicated on the docvmiont. The file arrangement should of course provide for the segregation of material of permaiient record value from that of only transitory value. Thus, the files arc in ]30sition at all times for orderly retirement. With respect to multiple copies of forms, it would be desirable that each copy carry an in- dication of the file significance, established at the time the form is orig- inated. In most instances only one copy of a report or form is essential for the permanent record. Under the arrangement stated above, additional copies would not become a file burden. During 1940 the process of microfilming vdth Rocordak equipment was insti- tuted for the preservation of important records. This activity was carried on as a project under administrative supervision. While the actual filming of dociunents is relatively simple and production is limited only by the capacity of the equipment, the processing of documents prior to filming represented a costly procedure in eliminating unimport'int documents and rcTrrangoment of documents in prescribed sequences. Under a 19 uniform system of filing' and the segregation of important and unimportant records pidor to filin;^, there should be no need of "processing" records at the-'time of their ranoval frcn active status. It is believed that the meirit of presGr\'inf important records on microfilm is beyond question. However, a co.^nprohcnsive index to the subject matter is of paramount importance. Qnphasis is so placed due to the fact that, on microfilm, there is a total loss of normal visibility of the complete dociimentary file. In other vrords, r.-hon searching i filr>, only the imago of one or possibly' sevsral documents arc c^q^osed in the viewer, whereas the coiaplote file is available vrhcn in documentary form. Control Administrative Budgets The Head of Office Management r:as responsible for the determination of over- all propriety of oblig?.tions incurred and the control of administrative ex- penditures rath respect tc "Other", "Travel", .Jid "Communications" expenses 'vithin monthlj"- budgetary lirdtations. In this connection, rll such obli- ^tions stato-^svide, char/?eablc to the administrative appropriation, were cleared and requisition^^d by the Chief Clerk. With a fluctuating need for administrative funds and the variance of need bt;t-vcen oporitinf di\'i3ions •md districts, a centrrJLiLed point of clearance and encumbering facilitated maximum control and permitted nocess^jy flodbility in the use of budget rndfund allocations. While the State Administrr'tor maintained continuing jurisdiction over per- sonnel actions concerning the adrini strati vo st:iff , the record ccxitrol of such during the early period of th3 program was largely in terras of corre— sj-ondence. Later, the Deputy Administrator a:id the Chief Clerk devised a system of a more formal tyr:e concerning authorized positions, the record control bcinj maintained by the Chief Clerk. An adaptation of this system T.-as made effective in I94O by the Regional Office wherebj- the status of every authorised position and its significance in terns of budgetary/- status was- immediately available. This projection of positions in relrtion to budgets r.l30 included a con- tinuing record shc»«.'ing at all times the amount owed, by months, for final fjinual leave. The value of accrued annual leave is sometimes judged to be of minor importance when bud£^ts are established. However, as an organi- zation continues in force and expands, the value of accrued annual leave mounts ir.pidly to sums of major importance. "Without nn 'uthontic record by months of the amount ovfcd, sound budget estimate crnnot be prepared. Our ejgDerience prampts the recommendation for the maintenance in the State Office of a positive position control record in relation to budgetaiy al- location and a running record of the amount owed for final leave. Procedures During the primary period of the organization, procedural and instructional material released at the State Office level was initially' prepared by the division concerned and cleared State Division Heads prior to approval of the Administrr.tor. In this connection, -J.1 instructional materi?! origi- 20 nated in the State Office was released in the form of Official Bulletins in numerical sequence. This was later changed to the use of divisional re- leases when the subject matter was of concern to only one division. Offi- cial Bulletins being used only when the subject related to more than one division. Subsequently, and following in general the pattern established by the Central Office, technical and non-recurring instructions and infor- mational material were released in the form of Divisional Letters numbered in Divisional sequence. This Divisional Letter system vfas devised at the time the Central Office promulgated the use of the Manual of Rules and Reg- ulations. \Vhile the Divisional Letter system provided for technical and non-recurring instructional material, recurring instructions were released in the foiro of Supplementation to the Manual of Rules and Regulations. Supplementation to the formal Manual of Rules and Regulations was accom- plished by mimeographing; the pages being numbered by digit significance to the number of the page of the Manual containing the subject matter. It is acknovTledged that the frequent change of emphasis and recurring re- vision of basic regulations necessitates revision of operating instructions. While this may be accomplished with a minimiom amount of work by the is- suance of supplements to the original letter, the use of such supplements has proven to be of particular concern to field personnel responsible for applying the provisions of the instructions. It is often difficult to cor- rectly interpret a release which has been supplemented or amended several times and, \*ere this media is used, field personnel are never sure they are in possession of complete instructions. In order to overcome this prob- lem, we adopted, at the same time we instituted the Divisional Letter series, the practice of issuing no supplements. Instead, whenever a given numbered procedure required modification or additions, the original proce- dure was completely superseded. Written procedures for field use played an important part in administration of the '.'JPA program. Proposed instructional material originated in the sev- eral Divisions in the State Office, was cleared first mth other Divisions to effect coordination; it was then administratively reviewed in the light of over-all propriety, format, and to insure that the material was not in conflict with other regulations or policies pertinent to the subject, after which it was cleared with the Administrator's office, where changes were recommended or approval given. There was little complaint from the field that procedvires were not clear, but it was a common complaint that they were too voluminous. It is be- lieved a better job could have been done had there been a small procedures section attached to the State Administrative office, headed by a competent person who could devote his full time to preparation of procedures. Also, since there was a pronounced tendency by operating personnel to build up excessive procedural files, it was essential that periodic review be made of mailing lists to maintain distribution commensurate vdth actual require- ments. PUBLIC REUTIONS One of the principal duties of the Administrator was that of maintaining good public relations. This duty was exercised through contact vdth the press, by correspondence and personal contact with public officials and 21 agencies, private individuals and groups. It was the policy of the State Administration that release of information through the press and similar media v/as justified. This policy was based on the premise that the public had a right to knov: for vrhat and how its funds were being expended. The purpose of releasing public information is sometimes misconstrued as a method of pronoting self interests in order to perpetuate a program. Actually, public understanding is a necessary part of administration without virhich programs cannot operate efficiently and bring a maximum return on the taxpayer's dollar. The State Administrator held press conferences as occasion required, ansv/ered questions of the press upon call, and prepared or directed preparation of press releases concerning important projects, program changes, accompli shraents, etc. In the Fall of 1935 a large public information staff was established to facilitate these activities. A photographic staff, clerks and typists, were assigned to the Division of Operations under a State Consultant for Progress Reports, v;ho reported to the State Director of the Division of Operations. In addition, there was an Administrative Assistant reporting to the State Admin- istrator whose job it v/as to contact nev;-spapers for the purpose of obtaining favorable publicity and counteracting unfavorable publicity. Under this person there was an Information Officer in each District Office who carried similar functions at the district level. Great numbers of news releases were issued concerning the VffA prcgi'am, both at the State and district levels. This devel- opment, part of a national program, became exceedingly top-heavy and expensive, to the point where there was danger of justifiable criticism on a national scale of the amount of funds being expended for so-called publicity purposes. In the Fall of 193*6 , by directive of the Central Office, this grandiose setup was dissolved. Subsequently the Information staff v/as reduced to one Informa- tion Officer, a secretary, and a photographer in the State Office, and a simi- lar staff in the District 3 office, Chicago. In 19A1 the information program was expanded to include tvro additional Information Officers, each serving t-TO distiricts of the dcr.vnstate area. Because of need to effect administrative economies, all Information Officers were eliminated in July of 19'!f2, and di- rect responsibility for public information, news releases, etc. was placed upon the State Administrator. During the greater part of the program, press releases sent out from the State Office were of a state-wide character. V/hile occasiond state-v.'ide releases were of value, experience proved that local news concerning community projects or activities stimulated greater interest and carried greater vreight in devel- oping good public relations. District Managers maintained good relations with the press at the district level of organization ond made occasional press re- leases; hoi'/ever, the amount of activity in this regard varied vdth the person- alities of the respective Managers. Experience showed the fallacy of a public information program developed on too large a scale, and proved the value of one which was conducted on a planned but moderate basis. The maintenance of friendly relations with public officials on the part of the State Administrator and District Managers, to whom similar responsibility was delegated, played an important part in the operation of the program. Confer- ences and correspondence vdth such officials afforded an opportunity to plan 22 prograjns, explain regulations and clarify policies. Occasionally it was necessary to settle controversies; more often to clarify a problem and ar- rive at a mutual understanding before a controversial stage had been reached. Inspection of projects in company ^vith sponsors' representatives, and attendance at dedications of completed projects and occasional public addresses afforded a further opportunity to cultivate good public relations. While the majority of labor relations problems were handled conclusively either by project superintendents or by the Saployment Division, the State Administrator and District Managers occasionally found it necessary and de- sirable to listen to and deal vn.th organized labor groups, groups repre- senting individual complainants, and to individuals whose complaints had reached an ^peal status. However, this time vias usually vrell spent and went a long way toward maintaining good relations -.vith vrorkers and averting labor difficulties. During the life of the program there were few labor difficulties that could be called really serious in Illinois, and fevr groups or individuals -whose appeals were refeirred to higher levels of adr- ministration than the State Administrator. SAFETY Because of the magnitude of the program and the speed 7ath vrhich it was nec- essary to put thousands of people to work in occupations for which many of them v:ere not trained, it was essential that a Safety Organization be es- tablished simultaneously with the assignment of project supervision and vrorkers. Few experienced Safety Engineers were available in relation to the number required to provide immediate and adequate coverage of project operations- Even for the key administrative positions needed in the Safety Organization, such persons were not readily available and it became necessa- ry to boiTow from industry persons experienced in safety work to assist in organizing the Safety Department. The initial Safety staff of the State Office consisted of a State Safety Consultant who reported directly to the Deputy Administrator, an Assistant State Safety Consultant, and necessary clerical staff. In each District Of- fice there was a District Safety Consultant. He was administratively re- sponsible to the District Manager, but operated under technical direction of the State Safety Consultant. Project Safety Inspectors were employed on the various v/ork locations employing 100 or more workers, or where the type of work performed was of a hazardous nature regardless of the number of workers. They were administratively responsible to the Project Superintend- ent and technically responsible to the District Safety Consultant. On February 1, 1936, the entire Safety organization was transferred to the Division of Operations. The State Safety Consultant becane an Assistant State Director of Operations for Project Safety. The District Safety Con- sultant, later known as District Safety Inspector, reported to the District Supervisor of Operations and was charged to the District Office pay roll. The control of any safety program rests heavily upon the accuracy of its accident reporting system. Under a decentralized type of administration, with the Safety Representatives administratively responsible to the dis- tricts, there vias a tendency to -.vithhold submission of accident reports or to temper them because persons preparing the reports hesitated to send 23 report? to the State Office which would reflect upon their superiors at the district level- A^ a result of this experience, and with the view of further improving th^ Safety Program, a change was made in May, 1939> to a centra]j.zed admirastration under which the District Safety Inspector and all Safety Repre- sentatives werj transferred to the State Office pay roll and were made adiiin- istratively as well as technically responsible to the State Safety Consult- ant. Under the ne'v plan of operation, safety education, inspection and re- porting were activated by conducting safety meetings throughout the State, emphasizing the responsibility of administrative operating heads and superin- tendents for safety and interpreting policies and regulations laid down by the Central Office for explication in the field. Administrative and technical supervision of safety personnel vested in the State Safety Consultant resulted in a truer picture of operating conditions; of where, v/hen and why accidents occurred which resulted in injuiy to workers. ■ In order that t}icse occurrences could be reviewed by the various operating division ciiroctors, an Accident Control and Inspection System was inaugurated in Illinois and given a one year trial, after which it was adopted nationally for tliis AdiTiinistration. Under this system all accidents are coded for cause and recorded by classification by period of occurrence and location. Frequency of inspections cind relationships between causes of accidents and recommendation thus recorded enabled State Office personnel to direct in a large measure the itineraries of field personnel with regard to the need for immediate ro-inspec- tions or investigation of serious accidents on projects. All fatal and serious accidents were investigated by a district Accident Con- trol Board to determine cause, fix responsibility, and recommend corrective measures to be ta-c-^n to prevent reoccurrance. These Accident Control Boards consisted of the Jictrict Manager, acting as presiding officer, Director of the operating di-vnlsion concerned. Director of Employment, SaXety Representa- tive, and Area Sv.prcanter.dent. Though not members of the Board, the project superintendent or supervisor of the project on which the accident occurred and one or more employees who vdtnessed the accident v/ere required to assist in connection vrith the accident investigation. A State Accident Control Board, consisting of the State or Deputy Adr.iinistrator, acting as presiding officer, the State Director of the operating division concerned, the State Director of Qnployri.ont, and the State Safety Consultcjit, revievred and passed upon the findings rjid recommendations of the District Accident Control Board, regardless of '.vhether the decision of the latter Board vfas unanimous. The State Administrator took whatever administrative or disciplinrry action was necessary to carry out the recommendations of the State Accident Control Board. At the beginning of the program, the lack of qualified Project Safety In- spectors, familiar vdth accepted Safety practices on construction and other types of vrark, resulted in failure on the part of supervision to whole- heartedly accept the Safety Prograjn. An administrative error vfas made in an attempt to secure v/ide coverage of projects vath Safety Inspectors vrhen a sufficient number of qualified persons was not available. Only those 7^0 -.■;ere well qualified should have been assigned and others should have been trained for assignment later. After this situation was recognized, the num- ber of Project Safety Inspectors v;as drastically reduced. Safety meetings -.vere conducted during the early years of the program by 2U Adrainislrative safety personnel, during which construction workers were inr- structed in safe practices. V/ith the reduction in the safety organization, responsibility for conducting safety meetings was transferred to project superintendents. The material for these meetings was developed by the State Sar^o-oy Consultant, but the conduct of the meetings was solely in the hands of the :..ioject supervisory staff. As a result, a new and more direct approach to saf sty problems v;as obtained, and, generally, IVPA project su- perintendents and foremen who engaged in these safety meetings gained a more ohorou^r;!! nndersoanding and appreciation of safe construction practices thm is usually had by similar workers in private industry. Practically all superintendents and project foremen were given first aid instructions through the American Red Cross, the &ireau of Mines and liiner- als, or through a number of WPA-employed first aid instructors. Through cooperation of the educational project operated by the Division of Service Projects, arrangements were made for employment of a number of first aid instructors. Lack of sufficient numbers of qualified first aid instructors necessitated training of additional instructors. As a result, v/orkers pre- viously unfamiliar vath first aid practices emerged from the Wk program as qualified first aid instinictors. These workers vrere required to pass exam- inations given by either the American Red Cross or the Bureau of Mines. An excellent instructional staff was developed, making it possible to conduct an extensive first aid training program on projects throughout the State. IN-SERVICE TRAIMING Administrative anployees Selecting a person for a particular type of work and bringing him into a productive relationship with it are tvro entirely different things. There did not exist in the Illinois ^VPA a recognized definite plan of In- Service training for administrative employees. Without being recognized as such, training did occur as a natural by-product of administrative func tioning, but it was not as effective as it might have been. It was found that too often supervisors, at both the administrative and project level, did not properly instmct new employees or fully develop the potential su- pervisory or productive capacities of old employees. ^Thile it vfas not our general experience, it is a known fact that many appointees assumed, once they were appointed and assigned to a job, they needed only to perform per- functorily to hold their positions indefinitely. The lack? of a definite In-Service training program for administrative em- ployees vfas offsst in a large measure by the fact that at the beginning of the program we had a large staff v/hich, after reaching an early peak, was progi'es sively reduced in number because of limitations in administrative funds, and natural instinct to keep the remaining staff as strong as possi- ble caused inefficient personnel to be successively eliminated. Neverthe- less, it is believed that a definite well planned In-Service training pro- gram, together ^•ri.th application of the probation system, would have im- proved the character and efficiency of the administrative staff. There should be included in any organization an early program for training of su- pervisory and subordinate employees. The most economical and feasible way to train employees is by utilizing the services of regular operating supei>- visors after they themselves have been properly trained. 25 Division o f S n^n --eiung and Construction Even thou^i In-oei-vi-ce training as a part of the activity of the Division of Engineering and Construction was not officially recognized, it did exist, not only because of the necessity to furnish projects with skilled workers not otherv'dse available, but also because of the inherent aptitude of many workers to assimilate additional knowledge and the desire, the ability, and the will- ingness on the part of project supervisoiy personnel to L-npart such knowledge. Workers possessing qualities of leadership v;ere advanced to minor supervisory capacities, and in many instances, after years of experience on 7fPA, became su- perintendents of work in which they had never before engaged. On many occa- sions loss of skilled vrorkers to private industry and lack of other skilled v.'orkers in the community necessary to continue project operations required in- tensified development of skills by project workers while engaged in project operations. The need for training workers in construction work vfas cmphasizod at the outbred-c of war when a considerable amount of construction work devel- oped in ccniiainitios v;hero w.gr industries were located. Carpenters, brick- layers, bottom-«ien, tractor drivers and truck drivers •.vcrc required in vrar coi>- struction and manj' of these roquiroments were filled by workers who had devel- oped such skills entirely on 'VPA projeciis. Division of Service Projects ^he training of employees of the Division of Service Projects became a major objective with the opening of the first project and continued to the end of the program. While it was true that some project woriters came to the program with special sldlls and talents, nevertheless it v;as necescary to give atten- ticm to the adaptation of their skills to the needs of the particular project activity. During the first years of the program the responsibility for In- Service training was left in the hands of project supervisors with advice and some direction being given by technical consultants from the State, Regional and V/ashington offices. As projects developed it became apparent that to apply uniform standards and improve service, moiv? direct training of project supervisors was needed. Technical and professional personnel of the highest caliber available was sou^t for the State supervisory staff, and technical manuals and training courses were developed for use of unit and county supervisors. As the program expanded and demands for the services of various projects were received from more and more communities it became increasingly difficult to secure from the professional market sufficient technically trained persons to fill ?11 supervisory positions. This made it necessary to train non-technical supei^sors with respect to technical standards and details of operation in order that they in turn might train workers under their supervision. Beginning in 1939 a state-wide training program was established under the di- rection of the Personnel Training Staff to assist in developing a smoothly vforking, streamlined organization and, further, to assist project supervisors with personnel problems and supervisory techniques. Training supeirvisors were assigned to several projects and there began a period of intensified super- visory and employee training. 26 In 191^2 the position of training supervisor on each of the raanj' project phases was eliminated because of the reAicing program and consolidation of projects. The three sections of the Division of Service Projects became two major projects - Defense Health and '.Velfare, and War Services. A training supervisor '.vas assigned to each at State and District levels. These super- visors v;orijid cost of work performed in the current month, and the quantity and cost of vrork performed up to date. They also contained the project super- intendent's forecast of estimated cost of completing the remaining work on the project. Reports were constantly checked against project authorizations to determine whether the project could be completed within the funds avail- able, and also to reveal any inefficiency in project operations which needed 37 the attention of the State and district office field engineers. Through this sj^stem of reports a close check on project operations was maintained and bad situations were detected and corrected before they became too in- volved. Types of Work as Related to IVpes of Labor The selection of types of work to fit the type of labor in any community was a most difficult task. Most every type of construction work carried on re- quired skilled mechanics of one type or another. To- require the sponsoring agency to furnish anj' skilled labor which was not available to the Wk from the certified relief rolls did not always meet the situation. A good project usually required all of the sponsoring agency's funds for materials or equip- ment, leaving the WPA to furnish all labor required. This frequently required the transportation of special or skilled workers for long distances to reach the project site. It also frequently made necessary the training of workers on the site to perform simple tasks within several skilled trades which were represented. Inasmuch as the majority of workers available to the Wk were in the unskilled classification, the most logical type of work to be performed consisted of the grading and surfacing of roads and streets. In these opera^- tions a considerable quantity of unskilled labor could be employed. Next in order in employing unskilled workers was the installation of sewers and water- mains and development of parks and recreation areas. These latter types of work, however, v;ere somewhat limited, and in order to employ a fair percentage of workers available within any given coimnunity, it was frequently necessary to underta'ce v'ork requiring a higher percentage of skilled mechanics. Many good projects were constructed in the state where the entire labor force con- sisted of men who wore originally qualified only as unskilled labor. Through teaching by competent project super^'ision, selected laborers were successfully assigned to skilled labor duties and the projects were successfully completed. SERVICE PROJECTS There w-is no predetermined pattern of planning for the Division of Service Projects, such as provided by the blueprints of the engineers. The types of workers to be employed determined in a large measure the types of serv- ice projects to be developed. However, there were present in all planning situations certain major factors which controlled the nature of the activ- ity planned and the tecliniques of planning. These controlling factors were: a. /ivsilability of workers and the range of qualifications and skills possessed by these workers b. The need in a given community for a particular kind of pervice or activity c. The recognition by the communities of the existence of such a need and the desirability of initiating action to meet it d. National and State operating policies and regulations, governing the eligibility of work to be done, and the method of preparing the project proposal 38 Working within the liirats L-nposed by these factors, there was an opportunity for planning on the nationil, state, district or connunity level. ".PA staffs participated on all of these levels in greater or lesser degree in the proc- ess of planning programs and projects. Represent -itives of the comiaunities participated on the local level, and to a limited extent on the state level. Local Progr=^. Planning under Broad National Policies Certain types of projects in the Service Division were planned and operated under broad general policies and directives which originated in the Central Office, adapted on the State and District level to meet loc^J. needs. The Education Program is a good exanple of this type of planning. On the basis of experience with the Energency Education Progran of the FERA, the Central Office, at the beginning of the ^'.TA program in 1935, l?ld doivn the broad plans and policies for operating an education prograin. Under these plans and policies local district officials developed with local county superintendents plans for separate county education programs, thus bring- ing into the planning at the bef^innirif^ sufficient local participation to r.alce the plans realistic in terras of what the CQni."tunity desired and could actually assist in operating. These local cconty plans were later consoli- dated into district-vdde project proposals. They in turn were assembled in the State Office, consolidated into a master state plan for operation, and submitted to the Central Office for approval. This plan for developing state-rdde project proposals later became an ac- cepted procedure for the l:irge majority of Service Division projects. It had the merit of giving properly balanced consideration to all of the major controlling factors affecting project planning. It revealed the necessity for having at both the state and district levels a carefully selected ad- ministrative unit fcr handling the highly technical problems and interpret- ing community needs in terms of an acceptable project plan which would meet the -pproval of the Central Office. Z>;je rimental Planning By far the largest segment of the Service Division program grew out of planned experL-nents developed on a local basis and later e:cpanded into state- wide projects. Since it vra.s not always possible to know either on the state or national level what types of activities were needed or acceptable in local ccramunities, it was essential that local committees and sponsoring groups take part in the initial planning of c^JLl programs. Many activities were planned locally and started on an e:xperimental basis to see what could or could not be done by the types of personnel available. Not all of our early efforts wero satisfactory. However, this approach was sufficiently success- ful to fully justify the procedure. The Library Extension Project was an ex- c -client oxampla: The first rural extension library centers were carefully planned on a local project basis in Cook County. The original planning called for a county-wide project. On the basis of a county project severil librrj-y centers were es- tablished in cooperation with local communities. -Vorker requirements were analyzed and techniques and procedures were v/orked out and refined. 39 Sucoassfixl opern.tion in Cook County established certain f.'vcts as to the need for this type cf service, the extent to which community p;Articipation could be secured and the effectiveness with vfhich -'.vailable workers could be trained to do the necessary/' vrork. "Alth these facts as a basis for further planning, the Libr.ary program was expanded .and carried into all ^iistricts of the state as an integrated state-wide prograin of library service sponsored by the Illinois State Library. It vms a vdse administrative policy th".t pernitted a substantial aiaount of ex- perimentation ivith new ideas and ne"« activities. This policy made possible a he.althy grov;th of the Division and a gradual exp:^jision of activities on a planned and tested basis. Vathout such a policy in effect, the prograjn of the Service Division coul.d have been a severely narrow and restricted one. Pl^uining of Consolidated Pro.jocts During the later stages of operation Service Division projects wtre consoli- dated on a state-wide basis and operated under broad general plans. Two principal considerations dictated such consolidation of activities; the need for economy of supervisory costs under declining employment loads, and need to effect more econor.iicjil use of personnel in providing services to any given coirjnunity. In the course of operating state-wide programs as separate proj- ects, with separate project organisations and staffs, it was found that there was considerable duplication of effort and a lack of flexibility in the use of v/orkers in a given community. Rigid project lines and labor classifica- tions tended at tines to k-^ep certain workers idle for periods of time in a given coLununity wliile the same connijnity had work which the idle workers were capable of doing. Such situations could be traced directly to the lack of consideration for the total needs of the community and to the too rigid project break dov.-n vrfiich characterized our early planning. During the last year of the prograrr all welfare and health activities were consolidated under one over-aU. State-wide Defense Health '.nd -Velfare Project. All research and records projects and all such activities as Recreation, Education, Music and 'Vriting were consolidated into one state-wide project called the 'Var Services Project. Full operation under this plan did not get under v,-ay until September, 1942, and the period from then to the close of the program was not long enough in which to determine fu].ly the merits of the plan. In addition, during the final six months the program did not operate under normal conditions - a fact which prevents any valid conclusion being dravm. Experience, however, v/as sufficient to raise considerable doubt as to the practicability of programming which is too broad in character. There was a tendency to develop cumbersome machinery of organization v^rhich could be a source of as much wasted effort as is the duplication of effort of small- er units. There was some evidence that combining, under one project frame- work, such divergent types of activities as simple record work and highly technical programs of Research, Visu-.-J. Aids and Music, had disadvantages which outweighed the administrative benefits of centralized finance and timekeeping controls. Experience indicated that better results might have been obtc.ined through planning and consolidation within one state-wide project of only those activities which '.vere of sirailar nature. AO IV FINANCE Due to the geographic scope and magnitude of the unemployrient problem in Illinois, the plans for inauguration of WPA in this State in 1935 provided for a coinpletely decentralized organization within the Division of Finance and Statistics. Patterned vdth the other administrative divisions for op- erational pirposes, the Division of Finance and Statistics was initially established on a district basis. At the State Office level the functional organization of the Division was lindted to procedural and technical advisory functions. Lines of adminis- trative authority from the State Administrator were projected both to the State Director of the Division and, throu^. District Directors (District ilanagsrs), to District Supervisors of Finance and Statistics. Lines of technical authority were maintained from the State Director of the Division to the District Supervisors of Finance and Statistics. Similarly, for the operation of projects within the districts, lines of administrative and technical authority were maintained from the District Directors (Distract Managers) and the District Supervisors of Finance and Statistics to Finance personnel on projects. In actual practice, however, the lines of technical authority at both levels became virtually, if not formally, lines of admin- istrative authority and direction. Each successive organization chart form- ally recognized this administrative and technical authority but it was not until late in 1941 that these lines were effective in practical operation. In retrospect, it is extremely doubtful that any practical application of the lines of authoirlty could have been otherwise, due to the multitude of problems and resulting pressure of operation. The first organization within the Division of Finance and Statistics was established for operation in July 1935, as follows: State Office State Director of Finance and Statistics Assistant Director for Control State Supervisor of Timekeeping and Payroll Preparation " " of Accounting " " of Tool and Material Records State Compensation Officer Assistant Director for Statistics District Offices District Supervisors of Finance and Statistics Assistant Supervisor for Control Supervisor of Payroll Preparation Unit Supervisor, as required for time report receiving and rate checking, pr>-audit, earn- ings record posting, payroll typing and proofreading and assignment files. a 3upervd.sor of Accounts and Records Supervisor of Tool and Material Records District Coinpensation Representative Field Claims Inspectors District Timekeeper Field Supervising Timekeepers Assistant Supervisor for Statistics Seven district offices were established for operating purposes vath full divi- sioncl staffs under the direction of a district director. Additional numerical designations were assigned four accounting and budgetary purposes only in order to segregate encumbrances and expenditures for Federal Project No. 1, State op- erated projects, relocation of Shavmeetovm, Illinois, and administration. A large percentage of the personnel in this first organization was recruited from the Illinois anergcncy Relief Commission (F. E. R. A.), especially for the key positions. In general, training and experience in accounting, auditing, payroll, statistics, and administrative supervision wore necessary qualifies^ tions for filHng the key positions. This first organization was maintained with minor changes until September 1937, vfhen the Area Statistical Office, servin,' severnl states in addition to Illinois, was abolished, at which time the office of State Statistician was established. Statistical reporting functions were transferred from Finance to the State stat- istician, a staff officer reporting directly to the State Administrator. As- sistant Supervisors of Finance for Statistics in district offices vrere elimi- nated through centralization of all statistical reporting in the office of the State Statistician. Shortly following this change in the organization a cor>- solidated Finance Unit was established in the State Office to take over all Di- vision of Finance activities and functions formerly performed in the suburban Chicago District No. 2 and the Chicago District No, 3. The Division of Finance at this point is reflected in the foUov/ing key positions: State Office State Director of Finance Assistant State Director Supervisor of Accounting Supervisor of Reports Supervisor of Tools, Materials and Equipment Supervisor of Timekeeping and Payrolls State Timekeeping Inspectors State Compensation Officer Assistant State Compensation Officer Supervisor of Consolidated Finance Unit Assist.ant Supervisor of Consolidated Finance Unit Sub-unit Supervisor, Accounting " " " Payroll Preparation " " " Tools, Materials and Equipment " " " Tinekeeping Assistant Sub-unit Supervisor, Timekeeping Supervising Timekeepers Sub-unit Supervisor, Federal Projects Supervising Agent Cashier Field Auditor 42 District Offices District Supervisors of Finance Assistant Supervisor of Finance Supervisor of Fcyroll Preparation Unit-Supervisor, as required for time report receiving g and rate checkings, pre-audit, earnings record posting, payroll typing and proof- reading and assignment files. Supervisor of Accounts and Records Supervisor of Tools .ind Material Records District Timekeeper and Compensation Representative Field Supervising Tir.iekeepors In July 1938, a revolving fund was established for servicing projects throu^ the centralized purchasing, storing, servicing and delivery of tools end ma- terials, and for performing other related services. The organization of the Supply Warehouses and the relationship of their prop- erty accounting units to the Division of Finance are described in anothor part of this report. Tool and material records sections in the Division of Finance organisation were eliminated. The resulting organization vdthin the Division of Finance in the Stato end District offices was maintained vrith only minor ad- ditions and eliminations through the peak of WA operation in Illinois, which was reached in the fall of 193^. Early in 1939 major changes 7;ere begun v/hich were to result in the complete centralization of Division of Finance administrative functions in the State Office by February 1940. In April 1939 all State Office sections and units vrere housed together for the first time and included talcing over the Finance functions of the Rockford District No. 1. The centralizing of Finance func- tions of the remaining district offices was begun in July 1939 with the con- solidation of all accounting into the State Office. District Supervisors of Fin.ince v/ere eliminated in the same month in anticipation of the completion of the centralization which v^as effected for payroll preparation on a staggered basis in January and February of 19^0. District Finance Officers were established in the new centralised organization, which was operated with key positions as follows: Stato Office State Director of Financo Assistant State Director Chief of the Accounts Section General Ledger Unit Supervisor Project Ledger Unit Supervisor Encumbrance Liquidation and File Unit Supervisor Chief of the Voucher Section Payroll Voucher Unit Supervisor Time Report Sub-unit Supervisor Earnings Card Sub-unit Supervisor Assignment File Sub-unit Supervisor U3 Typing and Proving Sub-unit Supervisor Payroll File Sub-Unit Equiprient and liLscellancouc Voucher Unit Supervisor Travel Voucher Unit Supervisor State Compensation Officer State Property Accountant Field Examiners Agent Cashier District Offices District Fin,ijice Officers Ar.ea Finance Officers The centralized organization v;as operated vdth complete success through 1940, 1941 ?jid 19A2, v/ith only unit changes made to fit the adoption of mechanical equipment in the Accounts and Voucher Sections. The use of rae- chcnical equipment is discussed in another part of this Chapter. In July 1942 reduced appropriations of funds for administrative expenses necessitated .the establishment of Field Finance Offices serving several states. The State Division of Finance functions performed in the account- ing, voucher and compensation sections were absorbed by the Field Finance Office established in Chicago to serve the States of Illinois, liichigan and IJifisconsin. The office of State Statistici?ji v;as abolished October 1, 19-^2 and the functions of that office were divided between the State Division of Finance rjid Control and the Fiold Fin.?jicc Office. Also, on October 1, 1942, the remaining functions of the State Division of Finance were consolidated vdth functions which were formerly the responsi- bility of the administrative and operating divisions; namely. Application Control, Property Survey, Office Service, Administrative budget, Adminis- trative and Supply Fund payroll preparation. The State Finance organizar- tion became the State Division of Finance and Control. In December 1942, vdth the establishment of the nev; Division of Supply, the Property Account- ing Unit of the Supply Section was brought under the administrp^tive author- ity of direct line reporting to the State Director of the Division of Sup- ply. The final organization maintained during liquidation of the program was as follows: State Director of the Division of Finance and Control Chief of the Control Section Application Control Unit Supervisor Office Service Unit Supervisor Chief of the Finance Section Payroll Unit Super\dsor Reports Unit Supervisor Field Examiners Area Project Examiners TIMEKS5PING Accounting for the time and payment of wages for a perk load of approxi- mately 257,000 (November 1938) project employees constituted a tremendous 44 task. It was one of the major tasks, if not the most important task, of the Division of Finance and Statistics when reviewed from the standpoint of effi- ciency of project operations as effected by the morale of project employees. It may even be said that the ability and capacity of Finance personnel to ac- complish this tremendous job, with viholly untrained personnel at the point of greatest pressure, namely, the project site, w.-vs a major factor in effecting the success or failure of the initial efforts and objectives of the program. As thousands of workers were assigned to projects actually overni^t in Novem- ber 1935, the Division set up an organization in each district, comprised of a District Timekeeper ?Jid Supervising Timekeepers. Supervising Timekeepers were given the job of organizing timekeeping staffs on as many as 50 to 75 projects. In Chicago, certain projects at their peak employed in excess of 15,000 work- ers. Supervising Timekeepers in many instances recruited timekeeping staffs from the laborer classifications on the projects. Later, qualified personnel v;as re- cruited after examinations and background investigations were completed. At first, systems of checking workers in at the start of the day, during the day, and out at the end of the day were for the most part designed at each lo- cation to fit the conditions e:d.sting. Underlying timekeeping records were centrally prescribed and consisted of D.--ily Chock Sheets, Daily Attendance Records, and a Card Record of employees' earnings. Daily check sheets used provided space for workers' identification numbers, "In" and "Out" checks and two "Intermediate" checks, hours worked, hours lost, remarks and signatures of the timekeeper and superintendent. Daily attendance records were used on lo- cations where no timekeepers v;ere available to check vrorkers' time and pro- vided space for workers' "In" and "Out" signatures, together with starting and quitting time and number of hours v/orked. To facilitate checking of vrorkers, identification numbers were allotted to each vrorkcr by tim.ekecpers. The number vras indicated on the worker's identification card*rpd also on the earnings card. This method of identifjrrng workers was not successful because in the movement of these vrorkers between projects, the cards became filled vdth various numbers. This caused difficulty in determin- ing the correct numbers and, as a result, errors by timekeepers caused over and under payments to vrorkers. This method of numbering workers was replaced early in the progrcm by pennancnt numbers v/hich appeared on documents assign- ing vrorkers to projects. Since the pennnnent numbers assigned were as high as 90,000 opposition arose because of the length of time needed to check vrorkers out at night. After a short period, however, the use of the permanent numbers v^as -.vholly successful as vrorkers and timekeepers became accustomed to the larg- er numbers. Also at the start of the program, the lack of proper organization of gangs within projects employing l?Tge groups of workers presented a serious problem to the timekeeping staffs. Projects ^/dth large numbers of ivorkers vrere spread over considerable distances, requiring all timekeepers to cover the entire project in order to obtain the necessary time check. Later, gangs vrore organ- ized, permitting assignment of timekeepers to one or more particular gangs. This permitted preparation of check sheets in advance by gangs, and made it quite simple for timekeepers to check vrorkers in the field, and at the same time, permitted "vrindow lanes" hy gongs to be set up in offices to facilitate 45 both the "In" and "Out" checks. During the fiscal year ending in June 1936, workers were paid for hours lost because of inclement v/eather and other interruptions beyond the control of vrorkers. Time so lost was recorded on check sheets as unv/orked time for vMch payment v;as made, provided the worker had reported for duty on the day or days involved. V/orkers were not required to raalce up this time at a later date. This practice, while entirely justifiable for the part it played in the economic objectives of the program, was a disturbing factor from an oper- ating standpoint. Disturbances on projects arose due to the reluctance of certain workers who did not want to work and questioned the decisions of su- perintendents regarding the continuance of work. During the year ending in June 1937, this practice v^as discontinued. Workers were permitted to accumulate "allowable" hours vMch --vould not be paid for until the worker had v/orked or "made up" the time at a later date. The new method of handling time lost, due to inclement weather, required timekeepers to control each worker's hours. It became necessary to show on the daily check sheets the remaining hours each worker had to vrork at the be- ginning and end of each day. In this manner, field timekeepers had control of hours at all times. In the early days of the program, timekeepers were instructed through the group meeting method because of the necessity for blackboard explanations. Changes in procedures and methods were in most instances made effective dur- ing a single semi-monthly or bi-weekly payroll cycle. Tliis required holding county meetings, with follov/ ups on each project made by Supervising Time- keepers. County meetings were held at regular intervals for the purpose of improving the accuracy of time reports. As the program progressed from year to year, timekeeping procedures became more detailed and more complicated for both experienced and new timekeepers. It became necessary to introduce a timekeeping manual for use by timekeepers for instruction and reference. The use of the manual removed the necessity for the regular county meetings. The presently used underlying timekeeping records were introduced late in the program and changed the system frcm a daily check sheet basis to a payroll period check sheet basis. The new method greatly simplified the keeping of time. Under the old method it v/as necessary to maintain largo office staffs to make postings of the daily sheets to time reports. Under the new method, posting staffs Vifcre abolished. The new forms used on the period basis con- tained sufficient information so that, as a further economy, they could have boon easily substituted ivith very little change for the time reports submit- ted to the Payroll Preparation Unit. Throughout the history of the program from year to year as each new Relief Act was passed by Congress, major changes in the program were made. In most in- stances individual workers ;verc affected and as a consequence major changes were necessary in timekeeping control procedures. One such major change dis- continued the payment of the prevailing hourly rate which varied the number of hours worked according to the hourly rate. This and all other changes were absorbed by the timekeeping staffs vdthout major difficulty. ^6 Basically, the timekeeping system was retained i-rith improvements until the procedures, forms, and methods used at the end of the program constituted an excellent system. PAYROLLS In keeping with the administrative restriction prohibiting the use of ma- chanicil equipment, which was in effect at the start of the program in order to provide vrark for a greater percnntagc of the unemployed, the DixrLsion of Finance was required to adopt manurJL methods throu^out in the processing of time reports and preparation of payrolls. Since only manual methods were permitted, large payroll staffs were neces- sarj'- in each district office. Due to space and equipment limitations it be- came necessary at the start of operations to use ni^t shifts in all of- fices. Tliis step was necessary in order that payrolls could be processed vdthin the required 2L, hour period allowed for processing after receipt of tLiie reports in the district offices. With the assignment of thousands of workers overnight during November and December 1935 » hurriedly organized, inexperienced payroll staffs were all hut ovcrv/hclncd in the effort to prop- erly record the earnings and secure pnymcnt of the employees. Determined attempts to simplify pryroll preparation reiTuircments in the effort of re- lieving the pressure, ;vere counteracted by the conflicts vihich were arising daily between V^fPA --uid Treasuiy regulations, and betv;ccn interpretations by the tv;o agencies of the roquiromonts of the Relief Act and the General Ac- counting Office. Those conditions were contributing factors in the serious del.?y in payroll processing v:hich occurred in December 1935. Only the com- bined 2A hour efforts and loy.alty of the State and District Office Divisions of Fin.'ince staffs working together prevented a complete collapse. Early in 1936 as a further step toward prompt payment of workers, and to elJ-Tiinate the necessity for suspension of incorrectly prepared payrolls, U. S. Treasuiy Branch Accounting and Disbursing Offices were set up at each WPA District office location. These offices were operated for approximate- ly a year and then abolished. ImHediately follov/ing the centralization of payroll operations in the State Office in January and Februciry 19^0, electrofile card selecting equipment was installed for the pulling and filing of earnings card records. The in- stal.lation was immediately successful for cards filed by county for all counties in the State except Cook County. In Cook County (Chicago) approx- im.-:.tely 80,000 workers were ejnoloycd at the time and the frequent transfer of workers and other assignment and termination actions presented a flow problem in the handling of the earnings cai'ds. Cards being temporarily out of file for posting of assignment or termination information ?nd for payroll preparation v;here earnings on another project were involved in the case of tr,''nsf erred workers, caused a serious slow up in the flow of time reports to the payroll typing operation. This condition was eventually corrected, first, through the medium of sorting the backlog of assignment documents and posting them according to earliest project payroll period ending dates, and second, by flagging cards of transferred workers for immediate payroll typing and return to the earnings card file. In February 19A-1, Underwood Elliott Fisher flat bed accounting machines were installed to further mechanize the operation of the Payroll Unit. This in- stallation required major revisions of the time report form in use at the tine, as well as in the method of controlling hours assigned, worked, lost and allowable. All audit, posting, computing, typing and proofreading oper- ations -vera reorganized to fit the mechanical processing. Under the machine method of preparing paj'-rolls earnings records formerly posted manually were produced as a by-product of the typing of the payroll. Payroll typists on the staff vrere given a period of advance training in the operation of the machines and after a comparatively short period the majority of tham became efficient machine operators. Considerable reduction in the cost of producing workers* checks v^as accom- plished as a result of these two machine installations. At this point in the program a major advancement toward improving the effi- ciency of payroll operations was accomplished. Previously, project workers' wages were paid on the basis of a semi-monthly payroll period. Payroll end- ing dates v.'ore staggered over each of the 15 days in the semi-monthly period. Peak loads resulted due to the double up days 7;hich -vere necessary to proc- ess the time reports for projects vdth S?iturday r-nd Sunday ending dates. These peaks were increased v.-hcn holidays occurred on Friday or Monday. Con- version of the basis for pa;y'nent to a four-v;eek fiscal peirLod consisting of tv/o bi-T;eekly pajToU periods and the lengthening of the time .allowed for processing of payrolls eliminated the double days except in the case of hol- idays. 7/ith the elimination of the U. S. Treasury Accounts Office, beginning on January 1, 1942, the Payroll Voucher Section assumed complete and final re- sponsibility for all detailed examination of payroll and miscellaneous vouchers vdthout difficulty or increase in the number of General Accounting Office exceptions. Finally, in August and September 1942 the Illinois Voucher Section absorbed the -Tork of the voucher sections operated by the Michigan and Wisconsin Ad- ministrations and continued through to final liquidation as a part of the Chicago Field Finance Office. COiJFSNSATION At the start of the program, each district office organization in the State of Illinois included a District Coapensation Officer who was responsible for processing all forms in connection with injuries to workers, -and public li- ability and property damage. The district compensation officer carried out this vrork vri.th the help of claims inspectors and compensation representa- tives v;ho were responsible for preparing compensation forms, investigating accidents, obtaining statements fron rdtnesses, medical reports from doctors and all other detail in connection therevath. These persons ;7ere adminis- trative employees working under the supervision of the district compensation officer. After several years the duties of the claims inspectors and compensation rep- resentatives were transferred to the project timekeepers irith the State Com- pensation Officer having tcchnic'J responsibility throu^ the supervising timekeepers, later called Area Project Examiners. These duties vrere given 48 to the project timekeeper vdthout advance notice or warning. Meetings of all timekeepers were held Vjy the supervising timekeepers at which time the State Compensation Officer or one of his assistants instructed timekeepers in the preparation of the compensation forms. Sample copies of all forms properly filled out were given to each timekeeper attending the meeting. In addition, some of the former district compensation representatives were employed by the larger projects and for sometime supervised the preparation of these forms ty the timekeepers on one or more projects. It was the responsibility of each foreman to have in his possession a book of Foreman's Accident Report forms which were made in triplicate. The original copy went to the State Safety Consultant, the 1st copy to the project time- keeper, the 2nd copy remaining in the book. This form was required to be pre- pared for all injuries regardless of how minor, and constituted the history of how the accident occurred, names of witnesses, and whether or not the vrorker v;as sent to a doctor. Upon receipt of the timekeeper's copy, entry vms made in a claim register of compensation cases. This register provided columns for all forms necessary and reflected the dates forms were forjwrded to the State Com- pensation Officer. i/Vhen the accident report forms showed the worker returning to vrork vdthout having been sent to a doctor, no action other than entering the form in the register ,and sending it to the State Com.pensation Officer was nec- essary. IThen it was necessary to send the injured worker to a doctor, an authorization was prepared by the tii.iekeeper and the worker v/as sent to the nearest doctor on the list of approved doctors furnished by the State Compensation department. It then became the duty of the timekeeper to follow up the case with a series of compensation forms provided for this purpose. In all cases where the work- er v;as referred to a doctor or hospital, it vras necessary for the timekeeper to issue an authorization, together with a voucher for services of doctors or hos- pitals. If the worker returned to work within 3 calendar days, the required form v/ould be processed, closing the case as payment of compensation did not begin until the 4th calendar day of disability. If the worker did not return to vv'ork vdthin 3 days the timekeeper processed the worker's claim for compensa- tion to cover the days lost. This form was processed at the end of 18 days re- gardless of v;hether or not the worker returned to work. Further claim for com- pensation was prepared every 15 days until the worker was released for vrork by the doctor. Wlien these duties wore first taken over by the tir.iokeepers, con- siderable difficulty was encountered in that vrorkers were being sent to doctors by foremen or superintendents vdthout the Icnowledge of timekeepers. The first notice timekeepers would have of this condition v;as v;hon the State Compensation department v/ould request forms. Other difficulties of the timekeepers involved injuries to vrorkers while they were enroute to or from vrork, caused by third parties. In some cases it was several days before timekeepers would be av^rare of the accident and as it en- tailed getting statements from \dtnesses, diagrams, etc., it required consider- able time to complete the papers. At the same time, it vibs necessary for them to carry on regular timekeeping duties. This probl'em did not exist on large projects as in most cases an Assistant Chief Timekeeper v;as assigned for this vjork. But on small projects where one timekeeper was assigned, this presented quite a problem. In addition to regularly prescribed forms, tim.ekcepcrs received requests from the State Compensation department to obtain from the claimant other information -^9 such as medical and work history for 10 years, type of home remedies used, statements from the worker's nei^bors and other information vMch required considerable time to obtain. Most injuries occured on the project and the timekeepers were usually able to complete forms immediately and forward them to the Compensation depart- ment ivithiri 96 hours after the accident occurred. Hov^ever, as a precaution against laxity by the timekeeper, he was required to submit with late forms a memorandum explaining the cause of delay, copy of which would be forwarded to the Supervising Timekeeper. At the end of each month it was also the duty of timekeepers to send to the Compensation Officer a report of distribution of cases to doctors. The pur- pose of this report was to guard against timekeepers sending all cases to one doctor instead of distributing cases among all doctors in the vicinity of the project, appearing on the approved list. In the event only one doc- tor was used, an explanation was made by the timekeeper as to why cases were not distributed to other doctors. A copy of this report was sent to the American Medical Society. . Handling compensation cases presented no great problem to timekeepers who had h( experience in handling a great number of cases, as they knew exactly what . forms and statements were necessary. They also learned that handling cases immediately saved them considerable time and eliminated visits to hospitals and workers' homes. Most of the problems and delays occurred on projects which had no timekeep- ers at the location of the accident, and on projects where timekeepers did not have a sufficient number of cases to enable them to gain experience or knowledge of the required forms. In such cases the majority of the work was performed by Supervising Timekeepers. The vrork of completing injury claims, unlike timekeeping, remained unchanged throughout the program. The same forms are used today that were used when the program started. AUDIT AND INSPECTION During the year 1936 the State Director of Finance and Statistics established the position of Field Auditor on the State Office staff '.vith responsibility for inspecting records and operations of District Division of Finance offices. The Field Auditor was required to raalce a detailed inspection of the applica- tion of Federal procedures and methods used. In addition, the work of the Field Auditor was intended to provide a means for maintaining uniformity in the operation of the district offices as well as coordinating the efforts of the offices at all levels. District office operation required the use of Supervising Timekeepers in the field. The organization, methods of operation and functions of these per- sons are reviewed elsewhere in this Chapter. However, it viras found neces- sary to augment the work of the Field Auditor in order to cover the work of Supervising Timekeepers and project timekeeping and compensation staffs, from an audit and inspection standpoint. This was accomplished in April 1937 through appointment of State Timekeeping Inspectors. 50 IniticQ-ly, two inspectors wore assi,^ed to cover the State, mfiking exami- nations of field timekeeping and compensation records, spot checking proj- ect workers, checking and coordinating the work of Supervising Timekeepers. Detailed reports of project examinations vrero submitted to the State Office for administrative action where necessary. The independent nature of these examinations was lar.gely responsible for their effectiveness in maintaining a high level of project record keeping and uniformity of methods. The work of every Supervising Timekeeper and every project timekeeping and compensation staff was subject to those exam- inations at any time, usually un.uinounced. This system of continuous audit and examination has been maintained vdthout interruption, and to a great extent has been responsible for the success attained in maintainj.ng strict adherence to Central and State Office regulations and procedures. The State Timekeeping Inspectors initially carried responsibility for exam- ining timekeeping and compensation methods .and records. Later, the work of the Inspectors was expanded to include responsibility for examinr.tion of all procedures and methods used \vhere the expenditure of funds or account- ing for property were involved. The inspectors became State Field Exami- ners, directly representing the State Director of Finance. They were used to conduct special investigations in the field ^vhere necessary and effected in 1942 the installation of a cost accounting system on all projects of the Div3.sion of Operations. During the period follo\\ring the elimination of District Finance Officers and until the present dr.te, the throe State Field Ex.aininors have been the only direct contact bctvjeen the State Office and the field staff. FISCAL CONTROL Initially, the theory of executive pre-audit of voucher documents by an in- dependent department of the Government was applied for all expenditures of the WPA. In keeping with the principles of this theory the U. S. Treasury Depai-bnent established a State Accounts Office in Illinois, charged with the final responsibility for maintaining the detailed accounting records and for financial reporting of the operation of the WPA. While in the first instance recognizing the final responsibility assumed by the Treasury State Accounts for protection of, first, the funds appropri- ated for operation of WPA, and, second, the limitation of individual proj- ect expenditures established by the President, the Wk nevertheless estab- lished its own system of detailed budget, fund, and project accounts and financial reporting. The integrity of these accounts in the Illinois Administration was main- tained from the opening entries through to the final liquidation of proj- ects. The accuracy of the ViTPA accounts in Illinois w?5 verified during a long period of det -oiled reconciliation, project by project, vdth the ac- counts of the Treasury Office. This reconciliation was completed during the year 1939 and was performed entirely by V/PA personnel vath the aid of de- tailed tabulations of unliquidated encumbrance and expenditure transactions furnished by the Treasury Department. Thereafter, complete agreement was maintained through current reconciliation on a monthly basis. 51 Introduction in 1939 by the Illinois Accounts Section of a continous cycle, daily audit of encumbrance, obligation ?Jid expenditure documents, vras in- strumental in keeping: the unobligated and unliquidated accounts at a mini- mum. At the inception of the program, the use of mechanical equipment in the Di- vision of Finance v;a^i prohibited by adnrinistrative restriction. Since the program vfas initiated to provide employment, all functions of the Division were required to be performed manually. Manual operation in the Division of Finance was continued until reduced ap- propriations for administrative o:jqDenses forced the removal of restrictions on the use of equipment. Steps were imraediately taken in Illinois, upon completion of centralization of accounting functions into the State Office, to convert to mechanical methods of accounting. After a period of investi- gating the adaptability of the available equipment, Nationcl Cash Register accounting machines were installed in the Accounts Section in March 19A-0. Increased overall efficiency and ultimate reduction of personnel costs have justified the conversion to the type of equipment selected. All of the foregoing factors led to Illinois being the first state to par- ticipate in the accounting experiment conducted in May 1941 '-nd subsequent months. The successful ccanplction of this experiment vms climaxed by the final elimination of thf; Treasury Accounts Office in December 1941* On Jan- uary 1, 1942 the Illinois Accounts Section assur^ed complete responsibility for all detailed accounting and financial reporting of tnc operation of the program. The accounting system of control established in January- 19A2 was continued in operation vdth progressive steps of improvement through the final stages of liquidation of the program. REPORTS AIJD STATISTICS As reviewed in the first part of tliis Chapter, the original plan for operar- tion of the Division of Finance and Statistics included the establishment of .\rea Statistical offices, serving several states. These offices were charged vath the final responsibility for assembling material and accumu- lating data necessary to .rrovide statistical and management reports required nationally by the Central Office. The Division of Fin.ance and Statistics, through the Assistant Director of Finance for Statistics, was responsible for directing the activities in the State and District offices, adm^.nistratively and technically. In addition to the function of coordinating the work in the District offices to insure the final accuracy rjid completeness of all docum.cnts and material furnished to the Area Office, tho Assistant Director of Fimince for Statistics v/as re- sponsible for certain weekly employment reports ^nd local management releases. Follovri.ng the elimination of t.hc Area Statistical Office, final responsibil- ity for asserably of all material and acciunulation of all statistical data was placed vath the State Statisticirm. Development of rJLl currently prep-arod statisticcl reports was begun vdth the establishment of the office of State Statistician. Copies of all documents, 52 necessary to establish control of data to be collected, assembled and tabula- ted, vrere accumulated for setting up the control system. A continuous flow of voucher documents, accounting trial balances, reports of certific£ition, .^sign- ment and termination of project employees, together vrith activity and physical accomplishment reports from operating projects, provided the basic source of all statistical reports required by the Central Office and the State adminis- tration for management and public release purposes. In 1938 a transcript card system was established for the purpose of accumula^ ting b}'- project the monthly trial balance totals of all encumbrance and Federal and sponsor expenditure figures recorded in the accounting records. In March 1940, siinultaneously with the installation of the National Cash Regis- ter accounting machines in the Accounts Section of the Division of Finance, the McBee Key Sort Card system was installed by the office of the State Statisti- cian. The McBee card was posted mechanically as a by-product of the accounting trial balance operation. Through the system of code punches on the card and a simple mechanical sort, statisticr-.l tabulations wore developed for expenditure data, cumulative or current month, by source of funds, fiscal year, district, county, city, and type of work. These tabulations were the source of all re- quired expenditure reports -.vith the exception of reports on the expenditure of non-labor funds by type of expenditure which were prepared throu^ analysis, coding and tabulating of voucher documents. Data for the vrcekly employment report in the first d^s of operation of the program v/ere collected on a telegraphic basis, originating on individual proj- ects. A card system v/as introduced early in 1936. The cards reporting employ- ment on projcots each week ^vere submitted from projects to the District offices where summaries v:ere prepared for submission to the State Office. In July 1942, vd-t!: the elimination of District Finance Officers, the cards were pre- pared on projects and submitted direct to the State Office for stimmarizing, tabulaiin/^ and reporting. On October 1, "-942, the functions of the Office of State Statistician vrero ab- sorbed hj the ^ield Finance Office and the State Division of Finance and Conr- trol. Since the Field Fin,-jnce Office accounting records and voucher files con- stituted thj basic source of all tabulations for the j-^quired expenditure re- ports, the related statistical functions vrere transferred to the Field Finance Office. Responsibility for accuraulaticai of data and tabulation for employment, physical accomplishment and activity reports was transferred to the State Divi- sion of Fincince and Control. In November 1942, it was necessary to provide for the cards reporting employment on projects to be submitted to Area Project Examiners for summarizing and sub- mission to the State Office. This latter pr-^.ctice was successful and was con- tinued through final liquidation of the prograjn. I 53 V EMPLOYMENT ORGAI'JIZATION The Division of Employment in Illinois was composed of staff recruited at the beginning fron the ERA Relief and 'Vorlc Relief Prograiis. ITiis provided a staff well educated in the fundamentals of government service as well as experienced in Employment practices. Practically all major executives in the division v/ere persons with good academic background and several years of practical experience in the fields of Eniployraent and Social Service. Practically all major executives had one or more college degrees and fron three to ten years' experience in the fields of Welfare, Relief, or Work Relief Administration. As a result, there were comparatively fev< personnel problems within the division itself because the employees were seasoned workers, accustomed to working in large organizations .and carrying major responsibilities. Such difficulties as did arise v;ere not the result of personnel selection but rather of the early character of the organizational structure. A't the beginning of the WPA program fi pattern of organization was establish- ed which provided for two divisions to serve the operating divisions in em- ployiaent matters. Briefly, the functions of the Intake and Certification Division had to do vri.th all matters of intake, that is, to determine which people were eligible and available to work, and the functions of the Labor Management Division had to do with placing people from the available lists on jobs best suited to their skills and employee relations. Tlie relief and work relief programs preceding '.VPA, v^hich derived assist- ance fron the Federal Government in the form of grrants to the states, provided an opportunity to demonstrate the advantages of a work program for employing persons who were physically able and qualified to work. This v.'as not done, however, without concerteQ effort in establishing new and sound social work practices at the local welfare level, V/ith the establishment of the Vi/PA there was a change in concept, in that the Federal G.'Tvernment v;as no longer to assist the states in furnishing direct relief to unemployable persons. The ''/FA was to operate solely a work program, utilizing as a source of employees those employable persons who could be certified as in need of relief. Therefore, while the 'VPA was to operate a work program, the source of persons it was to employ made it necessary to sustain the evolved social aspects of the former programs and in doing so to maintain proper relationships vrith the certifying agencies and the Federal and State employment services (United States Em- ployment Service and Illinois State Employment Service). The intake and certification functions were considered sufficiently important and singu- lar to require handling by a separate administrative division staffed with qualified social workers. The Intake and Certification Division and the Labor Management Division, acting in separate capacities, sought to keep clear lines of demarcation between the responsibilities with which they were charged. However, the 54 referral, certification, acceotance, classification, assignment, employee re- lations, 'adjustment of cases, etc., were all so inter-woven and inter-depend- ent, that separation of responsibility for then under two administrative divi- sions proved unsound practice. In 1936, the Division of Intake and Certification and the Division of Labor Management were consolidated into one Division known as the Division of Employ- ment. In order to continue special emphasis upon the social aspects of the program, a State Social "iVorkor was appointed as Associate State Director. In 1935 there was a special division of personnel which handled appointments to administrative positions and the selection of project supervisory personnel. During the year I936 this Division was consolidated with the Division of Em- ployment, the then Personnel Director becoming State Director of Employment. As a result of these consolidations, the Division in the latter part of I936 was composed generally as follows: Executive Section - State Director Associate Director (State Social 'Uorker) Secretarial personnel Assignment Section - Assistant Director Field Representative Steno -graphic and clerical personnel Liaison and Adjustment Section - Assistant Director (Assistant State Social Worker) Field Representative Stenographic and clerical, personnel Supervisory Labor Section - Assistant Director Stenographic and clerical personnel Special Unit for Handicapped Workers - Assistant Director Special Assistant Stenographic personnel Special Clerical Unit - Senior Clerk Secretary In 1938 the title of Associate Director was abolished and the State Social Yorker became the Assistant State Director. The Assistant State Director, who, in Illinois, was a qualified social worker, continued to carry a major respon- sibility for intald.dely scattered, and proximity to the project site must be considered. Examp?Leo of this class are deaf-mutes and blind persons vjho must be protected from the hazards of traffic and raoving machinery. In Cook County we were, for a time, able to assign deaf-mute laborers to the Mosquito Abatement project, and many of the blind were used as Braille transcribers. However, the certification, and particu- larly the assignment of such persons, constituted a serious problem to the end of the program, especially in downstate areas. 58 In general, physical disability problems were met by requiring detailed in^- formation at the point of certification, by information secured from private physicians, clinics, and dispensaries, and from the worker himself, and case histories were gradually developed v/hich enabled the correct assignment of many of the handicapped. Review of Need . In February, 1939, Federal regulation required that there- after a semi-annual review be made for each certified employed worker. '/Mle primarily intended to determine the individual's economic need for ''''IPA em- ployment, in actual practice it included review of all phases of eligibility, such as citizenship, employ ability, et oetera.. For the first since the inception of the progr.ara, the certification staff was brought into direct contact with the project worker. These contacts were invaluable in obtaining information on education, training, e:;^erience, and physical condition of the individual, which resulted in more effective work placements, 3nd became the nucleus of data later developed by the Division of Training and Reemployment for placing VffA workers in private em- ployment. Liaison tvith State and Local Welfare Agencies. The certifying agency was the official medium by vrfiich contact was maintained with the local relief authorities. PJhile this method had its advantcjes in relieving the 'APA Certification Staff of much local pressure, it did result in delay in the transmission of information and misunderstanding on the part of the workers as to the exact function of the three agencies concerned in their certifi- cation. Many difficulties v;ere eliminated by interpretation of Wk retail ations and policies to the certifying agency, ivhich cooperated by requiring compliance on the part of local relief authorities in referring for certification only such persons as met State and Federal eligibility requirements. However, it was not until the Review of Need and the Training and Reemploy- ment staffs were established that the inestimable value of detailed informa- tion on individual workers became fully apparent. Case histories of pre- vious private employment and medical histories v;ere developed which enabled the assignment of an individual to -.vor': which he was able to perform, and better public relations were established by interpreting to the individual and the community the policies and directives of the Work Projects Adminis- tration. In the light of e^erience, it would seem that direct contact between the individurl and the Wk certification staff at the point of certification would have eliminated mr-sxy of the difficulties experienced in the early days of the program. Special T\^pes of Certification . One specicl program, affecting the certification processes in Illinois, requires particular mention. In 1939 the Illinois Legislat-ore passed a law which provided for the conversion of Relief Appropriation funds into YIPk Sponsor's Contribution v^rhere such con- version would reduce total relief costs. Basically the la.^' provided that: 59 "The Commission, with the consent of the Oovernor, an.y be the Agent of State for the receipt and disbursement of any Federal Funds or commodi- ties for relief purposes, and upon the consent of the Governor may use or permit the use of Relief Funds to cooperate in such governmental projects as are intended for the purpose of lessening the relief burden in the State (Illinois Revised Statutes - 194-1, Chapter 23, Paragraph 39U)." Therefore, if a given project sponsor could not raise the required 25 per cent contribution. Relief Appropriation funds could be diverted to the sponsor by the Illinois Public Aid Commission, in those cases where the cost per case for Sponsor's Contribution was less than the cost of con- tinuing the case on the direct relief rolls. In practice, a figure of approximately -^7.00 was determined as the dividing line. Cases v\rtiose direct relief cost was less than this amount were certified for employ- ment on those projects on which sponsors could provide adequate funds. Cases whose relief budgets exceeded $17.00 v;ere specially certified for work on '«PA and vrere designated as vVork Relief Contribution cases and could only be assigned to projects maintained by V.TIC funds. Cases certified for W£ employment (Work Relief Contribution) required special handling in the Employment files to insure assignment to vVRC projects only. Regularly certified cases could not be assigned to these W.C projects, since the sponsor could not provide funds for them. At the point of conversion of a project to Relief Appropriation Funds for financing operations, those cases not certified as "Work Relief Con- tribution Cases" had to be transferred to other projects or separated from emplojTTient and made available for future possible employment on re- gularly sponsored projects. In other instances, the Illinois Public Aid Commission would mthdraw Re- lief funds for cases where the family situation changed to the extent that its relief budget fell below $17.00. This made necessary the separation of such cases from so-called liVRC projects. Vifhile the methods used in the WRC program ran contrary to normal policy and procedure and presented administrative problems of great difficulty, it resulted in the following benefits: 1. The fact that needy unemployed persons were required to accept v/ork rather than the dole resulted in considerable saving to the City of Chicago, the State of Illinois, and the Federal Government. 2. Persons who were in greatest need (those who v/ere in immediate receipt of relief) were given an opportunity to produce wages, in general giving their families a greater monthly income than they received while on the relief rolls. 3. It provided an opportunity to apply the work test to all physically qualified persons v/ho were in receipt of relief. 4. For a period of time the City of Chicago and a few sponsors in other areas of the state did not have sufficient resources to meet the 25% sponsor's contribution requirement. By using only a small portion of the relief funds (less than would have been expended 60 per case for direct relief), it was possible for the sponsor to aug- ment his o^vn resources in the purchase of materials needed to make up his required contribution and continue operating many large and im- portant WA projects. The VfflC program became operative in December, 1939, and in Chicago and certain otlier areas in Cook County was terminated in the Summer of 1941. In one downs tate area it continued until the final liqui- dation of the Vi/PA program. TOiile it was the basic intent that the work relief program should bene- fit any needy unemployed person who was unable to secure private employ- ment, the limitations of available funds under the Appropriation Acts and local circumstances did not always make this possible. ?Jhere em- ployment was denied to needy persons not actually in receipt of relief, an injustice was imposed upon those who underwent extreme hardship rather than apply for relief, those ineligible for relief because of a technicality, and those who, because of local prejudice, were denied relief. REQUISITION Requisitions for personnel, properly autnorized by operating heads or their delegated represent^itives, accurately and adequately describing the vYork to be performed and workers' qualifications required and prepai'ed suffi- ciently in advance of needs, provide an orderly means for intelligent selection and placement o';' workers and the meeting of job labor require- ments . One of the major problems confronting the Employment Division in the early phases of the progr.im was that of securing accurate and adequate information on requisitions with reference to the specific duties to be performed by workers in the designated classifications including the qualifications (training and experience) desired in the worker; and special problems peculiar to the job, such as transportation difficulties, unusal hazards, etc. This problem was made more difficult of solution because, under the pressure of work, operating personnel had little time to think through a careful and complete job description and employment personnel had no time to visit job sites to get a clear visual picture of jobs and over- all operations. Also, operating personnel assum.ed, in many instances be- cause of their first-hand acquaintance with the work, that the job title alone was sufficient information for the selection of qualified workers. These 'difficulties resolved themselves in time through efforts to arrive at a better understanding of the problems by joint meetings and conferences between operating and emplo^.anent staffs, by periodic visits to jobs and viewing of work by placement personnel, by development and use of standard job descriptions, and by returning requistions for additional information when necessary. One of the problems never completely worked out was that of preparing re- quisitions sufficiently in advance to allow the Employment Division to make selections of the best qualified personnel. By suggesting that the operating divisions clear by 'phone with the Employment Division on any 61 emergency or unanticipated labor needs, this problem was cleared up. This method enabled the Qnployment Division to review occupational records for qualified personnel prior to receipt of requisitions in such emergencies and thus allow adequate time for selection of workers. It was found necessary early in the program to establish a definite routing and provide for clearance of requisitions with operating heads or their delegated representatives, in order to keep employment within the establish- ed quota and budiget for each job. The Employment Division accepted only those requisitions indicating proper authorization by the designated operating official. As the program continued and private employment opportunities increased, a shortage in certai.n classifications of personnel occurred. Therefore, when the requisitions for axxy one classification exceeded the supply, it was essential to determine which jobs should bo filled first. One solution to this question was the designation of certain jobs as necessary to the national defense. Requisitions for such jobs were stariped "Certified National Defense" and were given priority over other reouests. Among non- defense requests, clearance was made with the rsspective operating heads for determination of preference in assignment of personnel. As requisitions came to the Employment Division, they viere time-stamped and distributed to the Assignment Section. Here they vrere reviewed for accuracy, completeness, and proper authorization and routed to the repec»» tive personnel technici.'^ns responsible for selections and placement for the job. vVhen tho vola-rie' warranted it, requisitions were divided into groups by division and geographical area. They were recorded in and check- ed out of a register and ^^iven a number to facilitate finding them and for control over work flow. vrnile requistions for personnel were merely pieces of paper set up in form, their effectiveness depended in large measure upon a realization of the importance of piving a clear, understandable picture of the job and its requirements by the requisitioning official and the ability on the part of placement officers to interpret those requirements so that the placement of qualified -.vorkers resulted. Considerable training and experience was required in order to accurately analyze the elements of a job and to develop that information into a com- plete job description wiiich could be cle.arly understood and interpreted by those responsible for matching men and jobs. CLASSIFICAnON AITO ASSIGNIvISNT The original method of securing occupational information was based on in- formation secured by an occupational survey of all employable persons on relief during the Month of May, 1935* The great amount of information obtained was of no great value due to the fact that the m.any individual interviewers were untrained in occupational interviewing and unskilled in evaluation of information once it had been secured. The result made nec- essary a plan to secure occupational information from the records of the United States Employment Service office, by forwarding a copy of the form used by the Work Projects Administration (with the worker's name and other 62 identification) to the United States Employment Service where it was Matched with records of that agency. The work history, education, training, and other data was posted and the forms were returned to Wk. This method (during a period v;hen thousands of assignments were being made) overtaxed the USES which was unable to keep up with the great number of requests for informr.tion. This resulted in the Division of Employment relying on the very meager occupational information submitted by the certifying agency at the tine of certification. Occupational data v/as only a part of the information required to determine eligibility. In many instances information from the certifying agency provided little more than a job title, because of the meager information secured by the interviewer. The desire of the relief client to obtain work caused him to overstate or incorrectly describe his ability. In some cases the worker would be classified as a laborer although later, upon securing a complete history of qualifications, it would be determined that the worker would have other s'tills needed by projects. Some persons represented themselves as being skilled workers in order to secure a job at the highest v;age rate. Because of the great need of workers on projects, it was necessary to assi.^n with only meager occupational information and without a proper reinterview by trained occupational interviewers. However, -idjustments in assigned jobs v.'er'.^ made as quickly thereafter ls possible. Before this could be done there were many requests from individuals for changes in assigned classificrtions as well as many requests from supei^i^ors ani superintendents. Because of the administrative cost involved, it was impossible to conduct a reinterview, and an alternate plan was adopted of sending a blank occupational form to each worker to be completed by hiri rmd returned to the Division of Em- plojTnent (for inclusion in the records used for assignment and reclassification purposes). V.T-iile this method was far superior to the previous one used, it was inadequate in many instances because of incompleteness, inadequacy, and some falsification of information. The method of submitting an evaluation of work performance by project super- intendents and supervisors proved of little value because a practice arose virhereby such information was submitted only at the time of reclassification (usually involving higher classifications). Requests were frequently dis- torted and contained work history ojid occupational information contrary to that which the worker had already submitted. It was necessary for the Division of tinployment to study the needs of the proj- ects with special emphr.sis on requests from projects performing work not ordi- narily perforaied in private industry; for example, in recreation progra;ns, mounting museum specimens, specialized educational programs, special "studies, surveys, and other related fields. In many cases persons selected for assign- m.ent to certain projects may have had no directly connected work history of edu- cation in the field in which they were placed but were assigned to such projects becausu of interest, hobbies, avocations, aptitude, or related skill. For example a salesman would be assigned to a survey project because of his ability to meet ' the public; a carpenter xvould be assigned to a handicraft class because of his hooby m building ship models. A common difficulty occurred '.;hen a worker was skilled in more than one field; for exainple, where it became necess-^ to as- sign the worker who was a secretary and typist to the skill paying the lower wage rate. 63 At the inauguration of the Training and Reemployment program, the plan of occupationally intervievdng each worker by trained occupational inter- viewers tvas started and resulted in the best information as to the -.vorker's qualifications and physical ability. The results of this intervieiring program were properly evaluated and resulted in better referrals of v/orkers to private emplojrment, proper placement in vocational training courses and assignments to projects. In qualifying, selecting, and assigning project supervisory persons, the Division of Emploj^Tiient functioned as a personnel office. In the early stages of the Work Projects Administration, the Division of Personnel carried responsibility for these functions and developed the original tech- ique. The candidate's work history for the previous 15 years was verified and evaluated, and verification of education at high school and colJLege levels was secured. In the lower levels of supervision, including such jobs as Foremen, Cost and Material Cl.erks, and Ti-mekeepers, the same meth- od of verification and evaluation of work history and education was follow- ed. Simple clerical tests were developed to determine thj essential skills of project wage Timekeepers and Cost and Material Clerks. For highly technical placements, such as for Engineers, Dieticians, Safety Engineers, etc., administrative staff members from tho operating divisions were used as technical consultants to assist the Division of Employment in determining qualifications of the workers. As the program progressed and supervisory persons continued in ennloviuent on the progr-^iii, evaluations of their work performance were secured and included in the personnel file. During the entire progr-jn in Illinois, the Administrator, at the recomr.ien- dation of the Division of Employinent and the respective operating divisions, reserved final approval of persons carrying mrjor over-all administrative responsibilities for project operations at the district level as well as the State level. Experience showed the weakness of the earlier methods of securing occupa- tional information through other agencies, as these methods failed to make adequate information available at the time it was required. Failure to secure adequate information prior to assignment resulted in additional, unnecesssr;-^ administrative costs for hearing and revievdng complaints and grievances from workers, comitiittees, and interested persons, and for time required to m.-^ke ad,iustments because of poor initial assignments. An early program should have been developed for securing accurate occupational in- formation vdthin the agency prior to assignment. In order to secure complete and accurate occupational data prior to assign- ment, experience proved the soundness of employing only employment inter- viewers who v;ero voll trained in occupational interviewing iind qualified to evaluate and record such information on employment records. EMPLOYEE RELATIONS Unions The 1/VPA program probably placed the Union organisations in as critical a dilemma as any other movement in the history of Unionism. A National Emergency had been declared in order to feed and clothe a depression-ridden 64 people. A federal work program was instituted to provide work to all needy- persons, without distinction es to Union membership. The wages paid were called "security wages" and ;vere not the Union scale. The wages were also ©o monthly earnings and not prevailing hourly vjages at the outset. There were insufficient jobs for Union workers in private employinent, thus forcing Union workers to accept security wa,qes on V-/PA. Some Union leaders suggested that the sheep be separated from the goats so that the Union workers could get one wage and the non-Union workars a lower wage. Such suggestions were obviously unsound and contrary to the very nature of the program. The fundamental basis of Union operation — collective bar^^^aining — was not applicable to I'VPA, since citizens cannot bargain with their government, or vice versa, in the sense applicable to private industry. The Constitutional right to petition the government for redress of wrongs, the presentation of grievances, cooperative conferences around a council table — all these placed the Union in the same position as the organizations of the unemployed or other citizens groups. Likewise, and by the same token, the Union vjeapon of the strike was without any real and continued force since, basically, the citizens cannot strike against their government. Only the workers woald suffer from such attempts, since back wages could not be adjusted or paid during the non- working periods. The government cou].d not recognize closed shop situations in any classifica- tions, since Federal raoney v/as for the employinent of anj' needy eligible work- er. From the Union standpoint this v^-as rjn intolerab],e dilemma. To work be- side non-Union workers and have non-Union vrorkers performing tasks heretofore wholly within the jurijdiction of Union men, to receive sub-Union pay, the resultant failure of rany Union workers to pay their dues when they were not securing any of the usual benefits of memberships — the reduction of total Union income resulting therefrom — , all these were considered as threatening the life of Unionism, if continued too long, and immediate attempts, were made by the Unions to soften the effects of the situation. An early method was to get the sponsor to employ the skills so far as possible, as a sponsor's contribution. Special engineers, equipment operators, survey- ors, etc., could work with some degree of segregation from non-Union workmen. Many sponsors joined in this effort, particularly those having regular agree- ments with the Unions. Other sponsors divided their work (particularly in the construction of buildings) between non-VvPA and 'VPA portions of the work. In some cases a ViJPA project would involve excavating and ground work, with construction of the basement up to the ground level; thereafter, the masonry and framework would be accomplished by other than Wk means. Such possibilities for the protection of regular Union practices, however, were too few in comparison to the mass of unemployed Union members. The Unions soon despaired of segregation policies by projects and turned to possible segregation by classification. This, of course, bordered on an attempt for "closed shop" by classification. Union carpenters, for ex.ample, might w£>lk off the job if a non-Union carpenter appeared on the job through the usual selection processes. Sympathetic walk outs of Union members in other classifications followed, care being taken to withdraw those workers whose removal would most seriously imp-air the operation of the project; such as, equipment operators, and those hauling or processing materials needed by the unskilled and intennediate 65 To all these methods the Wk in Illinois took the position that the Feaeral '.Vork Program v/as for the benefit cf all unemployed vrorkers and that no special recognition of a particular organized ,'^roup could bo made to the exclusion of others; also, that it vi-xs our duty to protect equally the right to work of those who did not have the benefits of such organized effort. The walk outs did not persist. The Unions could not, because of the condi- tions of the times, provide other work and the fcuidly needs of the workers soon brought pressure upon the leaders for a return to vrork. The next step was an appeal for some understanding, whereby so mfny Union workers would be employed in a given classification for a certain number of non-Union workers. Into this picture came the organizations of the unemployed (particularly the Illinois Workers' Alliance), which became definite conflict groups -.dth or./^aniaed labor unions in opposition to any such novement. Al- though the application of such a proposal may have proved satisfactory to the Unions, the YiPA early took a position a/:;ainst it. The Unions then contended that Union workers v.'ere superior to non-Union work- ers, generally, and therefore should be employed first by virtue of occupa- tional fitness. In order to sustain this position, the Unions presented their records, work histories, and other credentials for the individual 'ATA record of their members. If pertinent facts were not already found in the records, they were added by IVPA wherever v/arranted, in the same manner as from any other source. The results were not expected by the Unions, since the regular interview program of the Division of E;riployraent continued to show that many non-Union members were equally qualified. The demands of the Unions for prevailing '.vages on ''JPA brought results in the passage of the Emergency Relief Appropriation Act of 1937 (Fiscal Year), which so provided. The resultant attitudes were varied. Some leaders thought that all IWA workers should now join the Unions, in recognition of the benefits of higher V/PA wages brought about by Union demand. More often there was a feel- ing that Union members should get all jobs in the skills and crafts which now paid the scale. (In most large cities the Union scale was prevailing.) In the highly organized cities, nost skilled workers were Union members or "permit card workers", but those not falling in these categories were assigned, if qualified, and some dissatisfaction persisted with a few flare-ups here and there. ■It is to be noted that the short hours worked at prevailing wages (monthly wages continued to be limited) left considerable time for outside work by 'iVPA workers, especially in the skilled and professional groups. V/PA workers were thus taking outside jobs which might have gone to other unemployed persons, thereby hindering the spread of work. This is one reason for the lack of se- rious opposition to the elimination of prevailing wages on Wk later. The economic upsvirge in 1937 drew some Union workers into industry and relieved some of the tension, but the recession of 1938 revived them. During the years 1939 to 191,1, the National Defense needs and the "lend-lease" program had so dra^.vn upon Union workers that Wk began to be a forgotten issue with them. When the application of prevailing wages on Wk projects was eliminated by Act of Congress (July 1, 1939), there v;as very little actual opposition by the 66 Union organizations. The foregoing is written as an analysis of experience and must be interpreted objectively. Gains in wages and hours, secured over long periods of time and attained at the great sacrifice on the part of labor, were felt to be at tt stake. True, had there been no Work Program through the lean years of the de- pression, those same gains would have suffered. In such a dilemma, the attempt to superimpose Union practices upon the Work Program to tide them over was understandable, even if not permissible in the nature of the Program itself. On the whole, the Unions were as cooperative as possible, and the Program cer- tainly would have failed without the assistance of the top leaders who worked with V/PA to smooth out misunderstandings. In the main, they did not criticize the '.'.PA authorities, but v^rked with them and recognized the encountered dif- ficulties as arising from conflicts in policy between Unionism itself and the over-all nature of a "work relief" program. Obviously, the PVVA Program, work- ing under contractual agreements, did not present so many problems to Union labor policies. Racial Racial problems did not reach any serious proportions in the operation of the Illinois Work Projects Administration and they arose only infrequently. Bas- ically, the problems were related to matters affecting white and negro groups. In the early stages of the program some of the white workers objected to negro foremen or supervisors. In the distinctly negro areas some white foremen and supervisors were used, and there was some objection on the part of the negro workers. As the program developed, this type of complaint subsided and the problem entirely disappeared during the latter years of WPk. Many of the negro workers occupied top personnel jobs and maintained the respect and fa- vorable consideration of all the white workers supervised. For example, the chief interviewer of the Chicago District Office, and later the State Office, was a negro lad of fine character and ability who handled all complaints and interviev\rs at the Central Information Office. At first the greater proportion of workers above unskilled and intermediate classifications were vrhite workers. The disproportionate ratio came about because, on an average, the v;hite workers had enjoyed better opportunities for higher education and work experience. Customary occupational selection on this basis alone would necessarily result ttt in assignment of the better fitted. As industry began withdraiving the white workers in 1940-41-42, this situation was changed until in 1942 and 1943 the negroes in many classifications were the better workers. This was particularly true in the clerical and office worker group . I A similar situation was evident in the membership and representation of un- employed groups. By 1942 most of the members and leaders of such groups were negroes. Evidences of discrimination for or against the negro on the program in Illinois have been slight. Some segregation did exist, but both, discrimination and un- warranted segregation, were dealt with and corrected whore found. An example of warranted segregation was the negro choral group knovm as the "Jubilee 67 Singers" and there were other like situations. In such a case, the presence of kviiite singers obviously would nullify the effects of the entire performance. An example of unwarranted segregation e;d.sted where a given sponsor either did not want negroes or did not v/ant white workers on the project merely because of whim or personal desire. These caused a considerable racial problem, and there were frequent complaints before the WA succeeded in eliminating the con- dition. The cause was probably that some of the early sponsors looked at the project too much in the light of it being entirely their own rather than as a joint sponsor-government enterprise to provide work for the needy unemployed (as well as to accomplish a physical result). 3y 19A2 our workers had practically lost the feeling of race consciousness so far as working together was concerned. The ability of the negro to perform the tasks set before him - from the labor- er in the sevier to the expert craftsman - is well Icnown to anyone vfho has worked in the program. The miles of streets v/hich he has built - his contri- bution to writing - to the arts and crafts - to music - the Mikado - all com- prise a lesson which he has humbly taught to those who may have sought to discriminate against him. On several occasions request vras made of the Illinois 'Vork Projects Adminis- tration to appoint a negro to a special racial relations position to be created in the State Division of EriplojTnent . Our conclusion was that this would be unsound - that race relations problems should be handled by the re- gularly constituted s'taff - otherwise o'or position of assigning workers to jobs and of hmdling labor matters uniformly without reference to race, color, nationality, creed, etc., would have been weakened by special recognition of one race as against another. We believe experience has proven that position correct. There were practically no other so-called minority groups a^^ainst whom there was any evidence of discriminatory practice. E^iporience points to the need for exercising caution to avoid the selection for supeirvisory positions of individuals who cry discrimination. Often such persons were the first to practice it for their own group when installed in positions of responsibility. Exp<=;rience also indicated the need for a well rounded training prograin for foremen and other supervisory workers which would stress the fundamental purposes of the program and the rights of workers of all groups to their proper place in the program. Veterans Veterans' preference in the emplojmient of workers on WA projects was not an established fact until so provided by the Emergency Relief Appropriation Act of 1938. Prior to the passage of this Act the position of veterans' organ- izations v/as the same as any other special interest group seeking considera- tion for its members. In Illinois this position was not acceptable to the veteran groups who felt that special preference to IVPA jobs should be given by virtue of war service as in the case of the regular government depafcmeats and burcpus recruiting through Ci-'ri.l Service. The existence of large unemployed organizations which sprang up all over the state like mushrooms in the night disturbed the veterans considerably. They considered many of the leaders of such .groups as distinctly radical and inter- preted their motives as sinister and Unamerican. The American Legion posts and the local units of the Illinois Vforkcrs Alliance became conflict groups in many communities of the state requiring the most careful handling in the matter of labor relations. The e.''j:'ly methods of large unemployed organizations were demonstrations, mass meeting,'-:;, picketing, literature distribution, ovcr- crov/ding the conference rooms of ''ifPA authorities, presentation of excessive demands as a device for gaining lesser ends, etc. 7ifhile these groups later learned to deal in more deliberative conference methods and to treat the V/PA as an organization friendly to their needs, the changed practice cajne too late to affect the attitude of veteran groups generally. It was their feeling that high pressure groups under radical leadership were gaining ends not attained by those who by virtue of w,?!* service records should have special consideration as in other fields of government employment. The result was a concerted move- ment for IVPA veterans' preference. While the demand for such preference vrould probably have .-irisen out of the basic philosophy of the veteran organizations themselves, the demoiid came quicker and vrith more heated force tlirou^ experi- ence vdth other conflict groups. With the passage of the Relief Appropriation Act of 1938 ^nd as interpreted by Central and State Office instructions, veterans vircre accorded preference over non-veterans if equally qualified for the job required. This application of the rule was not particularly acceptable. The veter-'Jis contended generally that preference should be accorded if qualified and .nrgucd against Jiny comp.arative qualification rule . Other vetcrrns argued that no certified vet- errxn should be on the "v;aitin.g ascigiraent" list as long as any certified non- veterans were ^^fDrking. The Illinois WPA adhered to the policy that veterans' preference applied on the basis of comparative qualifications and vdthin occupation.al classification. These two items formed the bsi.sis for misunder- standing and much discussion during the fiscal ye.ars of I938 .and 1939. Generally, hovrcver, the veterans virere satisfied since the great majority of their certified members wore employed on 7/PA projects. The Hnergency Relief Appropriation Act for the fiscal year 1940 disturbed a relationship vdth the veteran groups which had developed into one of rather good "jnd mutual understanding even though not one of entire agreement. That Act placed relative need above veterajis' preference and applied the latter only when need was equal to or greater th-sn non-veterans. 1/Yhile this pro- vision was distasteful to them and the first reaction v;a.s criticism of tho State i;VPA organization for its action in connection theremth, the veterans were quick to see that tho Act itself v/as governing and turned the criticism to themselves for not more forcibly resisting the passage of this Act of Congress. However, the ERA Act for the fiscal year 19J+1 retained this pro- vision but extended the preference to vdves of unemployable veterans and vridcri'Ts of veterans. The ERA Acts for the fiscal years 1941 and 1942 changed the veterans' pref- erence provisions and gave preference over relative need considerations. These Acts -.irere most satisfactory to the veteran groups. The most valuable experience in dealing with these groups came in the dif- ficult years of 1940 and 1941 ''-nd leading into 1942. It was found that frank, 69 open and honest interpretations of the regulations to the various groups pro- duced a condition of mutual trust. In these years the Illinois v.PA turned to a positive approach to the problei.i. \Wk officials addressed Veteran State Conventions and Conferences. Prepared mineographed statements in question and answer form provided the basis for the discussions and were reprinted for distribution to all Veterans' posts throughout the State through the State veteran authorities. Interpretations were then made by post or local com- manders and their eraplo^'ment representatives, to the end that proper ejq^lana- tions were made and ^riovances eliminated at the source. At many of the State and District conferences of veterans' groups, VvTA representatives sat with the local and State veteran officials in a sort of class seminar. Officials of the veterans' organizations learned to know the regulations al- most as well as V/PA executives. The results exceeded expectations. Griev- ances were handled more easily, adjustments were expedited, and misunderstand- ings eliminated. At the State conventions of the American Legion, 1941 -ind 1942, resolutions of commendation and expressions of purpose to further co- operate with the ''fPA were unanimously passed. Individuals Employe relations as it relates to membership in union organizations has been treated under a previous heading. This section '.dll, therefore, deal with individual err.ploys relations but will describe the methods used by the in- dividual in his choice of representation. For the most part, workers on Wk projects presented their grievances and requ-ssts individually, but a consider- able portion of them elected to have representation, particularly in the years of 1936, 1937, and 1938. The chief organizations representing the workers, in addition to union organizations, v.'ere the Illinois 'Yorkers' Alliance and the veterans organizations . The procedure established by the Central Office throughout the course of V/PA appears to us to have been exceedingly sound. Provision v;as made at all times for appeals from the local projects to the district, to the State, and thence to the Central Office. These channels of appeal were diligently kept open as they provided an outlet to the worker and a method of securing the maximum consideration for the worker himself. In the early years of '.VPA it v/as difficult to make employment policies under- stood clearly at the project level. Some of the early supervisory people showed resentment to individuals viho brought committees with them for the purpose of adjusting their problems. It was felt by some superintendents and supervisors that the workers v;ere putting undue pressure upon those in charge of the projects. Some resentment by supervisory persons toward the Illinois Workers' Alliance was apparent, probably because this organization was the most voccJ. in its approach. By conferences and supplementary instructions this attitude on the part of the supervision was changed and an entirely different viewpoint in most cases was secured, thus providing full recognition of the rights of the workers to or- ganize and select representatives of their ovm choosing. One difficult problem v;as the handling of appeals to the district offices. At first it vias a common practice to secure a full report from the superintendent 70 or supervisor and compare that report with the worker's complaint without an "on the spot" examination of the facts and conditions surrounding the grievance. Obviously, by such a method the tendency vras to adopt the position taken by the supervisory personnel and give too little v/eif?ht to the vrorker's side of the picture. '-'Jhen this was discovered, provision was made for an individual in- vestigation at the district level whereby the worker or his representative v\rould be interviewed individually as well as the superintendent or supervisor and an objective decision reached on the basis of the investigation rather than upon ' the review of paper reports . This same method was used by the State Office where appeals were made beyond the district level and a comparatively small number of appeals to the Central Office resulted. The position was taken early in the program that where there was a question of doubt as to the decision to be made it should be made in favor of the worker. There was little hesitancy on the part of the State Office to over- rule decisions made at lower levels if the facts vjarranted. One incident vividly recalled, had to do with the dismissal of some 30 workers for wearing badges of the Illinois VJorkers' Alliance. The supervision on the project concerned was, for the r.ost part, employed by the sponsor and did not under- stand fully the Federal regulations. All the workers were ordered back to work and the supervision instructed as to the rights of the individuals pre- viously dismissed. One difficult problem vras to malrs) was inaugu- rated. This was objectionable to the operating divisions ^vho felt that the selection of workers to be separated should be made by the project supervisory personnel. Upon application of the project organization plan, the issuance of separation documents became the responsibility of the Project Einployment Officer for all reasons except partial reduction and disciplinary action. Examples of the types of sepai'ations handled at the project level are those resulting from the follovdng causes: 1. Completion, discontinupjice, or suspension (whether because of operating conditions or quota limitations) of an entire project, project work section, entire crew or crews, phase or item of work. 2. Habitual absence from duties. 3. Failure to register (or maintain active registration) with the United States Employment Service. 4. Absence due to injury while on VJPA. (WPA Form 4O3 not to be issued until thirty days' absence has elapsed because of such injury.) 5. Obtained private employment. 6. Obtained regular government employment. 7. Illness. (IVPA Form A.03 not to be issued until one full payroll period has elapsed.) 8. Moved to another locality. 9. Absence from duties for five consecutive working days without notice of cause. 10. Active military service. 11. Other sources of income. (Not private or public employment of the Wk worker . ) 12. Death This method aided groatly in reducing the clerical vrork irTthe District Divi- sion of Employment and provided an immediate copy to the worker. By staff meetings with Area and Project Employment Officers tmd project supervisory personnel, the District Employment officer was able to exjolain and clarify all policies regarding isopai-ations ♦ 75 VI COMMUNITY RELATIONS GENERAL The success of a publD.c work program depends in large measure on the cooper- ation of the sponsoring groups and the good will of the community. Since, by its very nature, the seirvlces which can be rendered must be public ser- vices, it is essential that these services from the beginning have public support. While the program of the VifPA generally was thought of as a Federal program, it was in fact a joint enterprise of the Federal Government and of the State and Local communities. In some cases this particular feature of organization was poorly recognized in field operations. Too frequently in the early days of the program the path of least resistance led to the error of making arbitrary plans for the community. However, v/ith increased expe- rience in dealing with community groups and public sponsoring bodies, and with better understanding of the objectives of the program, a closer rela- tionship was developed v^dth the local community. The dual character of the Work Program ■•md of the responsibilities involved in its operation were written clearly into the legislation and the regula- tions under which it operated. Local communities had the responsibility of sharing in its cost. Both security and non-security wage vrorkors were drawn from among citizens of these communities. Decisions as to what work was to be undertaken vrere joint decisions of WA. and local interested groups and sponsors. Project plans and proposals were presumed to be plans and propo- sals of the locol communities acting through authorized sponsors. This conception of an enterprise in v/hich the Central Government works close- ly in association vdth even the smallest political units as well as with inr- dividuals and groups of citizens in furthering an activity of community bet- terment was a new conception. Both the Administration and the communities wont through a long period of adjustments in the attempt to find and develop working relationships equally satisfactory to both. The effectiveness of communities in carrying out their responsibilities was for the most part in direct proportion to the interest and enthusiasm which resulted from their actual participation in the planning and operation of local activities. Community ppjrticipation in project activities was in the m.'d.n of three types: (l) financial support - either in cash or in kind; (2) technical assistance in the form of supervision and consultation; and (3) administrative advice and consultation in the area of policy determina- tion as it pertained to local project operations. In general, the most successful projects or activities were those in vMch the local community had a genuine interest and in vfhich it had a reasonably substantial stake. If a sponsoring agency had work which it vms interested in having done, if it entered into the planning of a course of action to get this vrork done, if it contributed both funds and technical services in the course of operations, and if it helped to shape operating policies as these developed, there always was reasonable assurance of successful completion of the vrork. Where such participation was present only in part, -and v/here the community was apparently indifferent to the lot of its security wage vrorkers 76 and to movements for community betterment, the results achieved were often mediocre. ENCtlNEERING AND CONSTRUCTION PROJECTS Sponsors' Attitude In the early part of the VifPA program, sponsors in general regarded the WPA as only a means to move people from the Relief Rolls to some type of gain- ful employment. In many instances, sponsors gave little thought to the value of the work constructed to the community. Because of the great amount of unemployment considerable local pressure was frequently exerted by the unemployed to force sponsors to provide projects so that the unemployed could be employed. In many instances the sponsors very reluctantly partic- ipated in the T/PA program. It was not until after the program had demon- strated its ability to provide useful public works that sponsors' attitudes changed to the point where the work performed by WPA was regarded as an as- set to the community. It was only then that the sponsors undertook to plan the work presented for construction in terms of general community benefit. In the later stages of WPA operation, sponsors' attitude in general was ex- ceedingly good and all projects which ivere presented for consideration were based on the single premise of returning to the community the greatest pos- sible value for each dollar expended. An important factor in changing the sponsors' attitude v;as the substitution of equipment for some of the oper- ations previously carried on by hand methods. This increased over-all ef- ficiency and returned to the sponsoring agencies a greater value for each dollar expended. Attitude of the Public The public attitude to the early operation of WPA was extremely discourag- ing to those who were in responsible charge of the program. The necessity for using large numbers of men by hand methods on projects which could have been constructed at considerably less cost with equipment naturally led to inefficiency. Also, the necessity for using men on construction work who were neither trained nor accustomed to that type of work contributed to the low efficiency of the workers in the e.arly pai't of the program. Public re- action consequently was bad, in that it regarded the entire program as an inefficient means of distributing relief or of conducting v/ork. After the program had become stabilized, and a proper amount of equipment used in con- nection ¥d.th hand labor, a change in the public attitude was frequently no- ted. Contact vath the public in general by members of the WPA staff fre- quently brought forth the opinion by the public that, v/hile they felt 1/VPA probably was an inefficient organization in other localities, they felt WPA in their ovm community was doing on. excellent job. In the areas in which there was a large amount of unemployment, WPA generally vras regarded rather highly. An index to the general public attitude in the latter part of the WPA program was the willingness of communities to vote in the affirmative on the question of levying taxes for bond issues to finance the sponsor's por- tion of WPA projects. In very few instances in the State were bond issues defeated at referendums when IVPA participation in the construction was in- volved. 77 SERVICE PRO.rSCTS Because of the nature of many of the Service Division Projects, conraunity relationshj.ps were of special importance. Many projects, such as those of the recreational and educational services, dealt \^fith the general public or •A-ith large groups of the public within any given community. This made it necessary to have active participation on the part of representative commu- nity groups and on the part of local sponsors in deteimining local operating policies, in providing technical and other types of assistance, and in se- curing community acceptance of a program. VEthout such assistance project activities in many communities v/ould have been severely handicapped if not impossible. Media through vjhich Local Communities Participated Communities participated in project operations through various pablic and private agencies, organized groups and individuals. Experience has shown that the vrider the participation in such projects as library extension, ed- ucation and recreation, the greater the acceptance of the activity and the more effective the operation. Without continuing and sustained support of the communities concerned, many of these activities would not have been pos- sible. Community participation in project activities \Yas effected specifically through: a. Local representatives of the legal sponsor b. Individual citizens with special knowledge and skills c. Organized groups such as service clubs and organizations interested in civic affairs and welfare d. Advisory councils or committees organized by WPA staff members for the specific purpose of assisting local projects in securing financial support, in determining local operating policies and in improving the techniques of project operation In some types of service projects the representative of the legal sponsor was of primary importance. Notable among these were the township supervi- sors who sponsored Sewing and Housekeeping Aide Projects and the county and city superintendents of schools on the Education and Nursery School Proj- ects. Other types of projects had only the nominal sponsorship of some state agency vdth no direct local representation, as for example, music, vo'iters, certain statc-vd.de survey projects, and others. This undoubtedly worked to the disadvantage of such projects. Certainly many of the organi- zational problems which these projects had to meet would have been less dif- ficult had they had the benefit of services which local sponsors' repre- sentatives were in a position to give. In communities where there v;a3 inr- terested, active representation of the legal sponsor, many of the most ef- fective programs were developed. Individual citizens with some related technical knowledge or skill who be- came interested in volunteering their services to the local communities 78 found many \fPA. project activities a useful medium for malcing such contribu- tions. In some instances such individuals may have had a distorted idea of how their services would be of greatest benefit and attempted to dictate methods and techniques of carrying on project activities. This, however, vxas not the general rule and projects drew much strength from such volunteer sources. Ex- amples of such contributions may be found in the records of the recreation project, the nursery school project, the library project and many others. Mary projects found that in order to widen the bases of community participa- tion and support, they could draw on alread^y established local groups and or- ganizations such as service clubs, patriotic organizations and others. Such groups responded generously, particularly when given a specific job to do or when asked to contribute certain items of support. It was through the partic- ipation of such groups that large sections of the community were represented in the maintenance of many project operations. Value of Advisory Committees and Councils Service Division projects had a variety of experiences with the organization of advisory councils or committees. The underlying assumption of the formsr- tion of such councils was that whatever community ]Darticipation on a given project activity Viras to bo secured, participation would be effected through the council. Often the sponsor's representative functioned as a member of the council. Probably the most successful advisory committees were those developed in con- nection with the School Lunch Prograjn, the Recreation Project, the Library Project, and the Nursery School Project. Of these, the most effective were those where members were chosen because of a particular interest in the activ- ity, because of a special skill or knowledge related to it, or because his or her standing in the community was such as to command respect and confidence. On the other hand, it was found that councils set up on an academic basis of attempting to have all elements of the community represented wore not as a rule either long-lived or particularly effective. From our experience we have learned that in any one locality the number of persons thinking in terms of the entire community are too few. Except in the larger, well organized communities it vras often difficult to secure personnel for a well-balanced advisory committee. However, in the process of trying to set up over-all community councils or advisory committees charged with work- ing in a particular field, the staff of the Service Division became more keen- ly aware of the need for community participation and closer working relation- ships developed. At the same time, the committee members themselves in many cases were brought face to face for the first time with the acute need for community planning, and the a.dvantages of working together on each individual problem in terms of the total welfare of the community. These committees were given responsibility in the development of one or more project services, in making plans for expaiision or contraction of project operations, of establish- ing standards, selecting locations and areas of greatest need, and for advis- ing the program personnel of pitfalls and obstacles i.d.thin the local communi- ties. In other words, the local v/ork progrpm became the responsibility of the local citizens, and the advisory committee constituted both the interpreting agent for our program and the measuring rod of our services. 79 Advisory committees were set up on a state-wide basis for the Citizenship Edu- cation Project, the Workers Service Project, the School Lunch Project, and the Child Protection Project. Such groups were difficult to get together often enough to familiarize themselves with project situations and problems, or per- haps to become sufficiently v;ell acquainted with each other to work together in a group. Experience has shown that the most valuable contributions came from individual professional members of such groups rather than from the col- lective deliberations of the committee. However, working tl:irough state-vade organizations, which the membership repre- sented, they were of great assistance as interpretative agents of our policies and objectives, end often were able to assist in the development of our local coirimittcos. 80 VII FACn.ITIES AND EQUIPMENT GENERAL Facilities and equipment for the operation of the program were in two gen- eral categories: (a) Facilities and equipment for administrative and project offices. (b) Facilities and equipment for project operations. FACILITIES AI'JD EQUIPMEMT FOR ADMINISTRATIVE AND PROJECT OFFICES Responsibility for acquisition of facilities, equipment, and supplies for Administrative offices, and of office equipment and supplies for projects, prior to establishment of the Supply Fund, was carried by the office man- agement unit. This unit, first known as the Office of the Chief Clerk, was, at the close of the program, a part of the Control Section of the Division of Finance and Control. Throughout the program the determination of pro- priety of acquisition of office equipment for projects was made administra- tively by the office management unit. Inasmuch as the matter of acquisition of facilities, equipment, and supplies represented a m^gor function attendant to office management, that subject is summarized under the title of "Office Management" in an earlier chapter, viz . , Administration . FACILITIES AND EQUIPMENT FOR PRO.TECT OPERATIONS The history of securing facilities and equipment for project operations can be broken dovm into three phases, classified as follows: 1. Operation of Supply Section before origin of Supply Fund. 2. Establishment of Supply Fund under State Supervision and District Administrative control. 3. Establishment of Supply Section under State operation. Prior to initiation of project operations in 1935 no serious thought had apparently been given to the methods to be used in the purchase, warehousing and movement of Federal property such as implements and equipment. Imjned- iately after the start of operations it was discovered that some manner of central control was required. In the early operations each project submitted requisitions for tools, ma- terials and supplies. Each of these requisitions was processed through the State Procurement Office of the Treasury Department and, after the delays attendant to the taking of bids, awarding of contracts, and delivery, the projects were supplied with the items required. It soon became apparent that this method was too slow for the furnishing of implements and -equip- ment. 81 Authority was therefore granted to establish warehouses to stock items of im- plements and equipment needed in the day by day operation of projects and to supply such items to the operating projects upon their request. The funds re- quired for the operation of these warehouses were secured by establishing a separate vjork project as a part of any large official project in each district in the State. Projects using the warehouse facilities did not reimburse the v/arehouse project for services received. Each of the District Warehouses was under the i:Timediate control of a Warehouse Superintendent. In each District there was established the position of District Supervisor of Tools and Equip- ment on the Administrative rolls and in the State Office there was established the position of State Supervisor of Tools and Equipment. The duties of these Administrative persons were to coordinate^ the operation of the Warehouses and to establish the rules, regulations, and procedures pertaining to the handling, warehousing, purchasing, etc., of property carried in the Warehouses and sup- plied to projects. Property accounting functions for the warehouse project and for property of operating projects were established in each district as a part of the routine functioning of the Division of Finance. The primary purpose of this activity was to maintain inventories of property and to record the movement of property from the warehouses to the operating project and vice versa. The system of warehouse operation outlined above was faulty for the following reasons: (a) The various projects receiving implements and equipment did not share in the cost of operating the warehouses. (b) The method of operating the warehouses made no provision for stock- ing a supply of commonly used materials which could be supplied to projects in emergencies. (c) The transfer of surplus materials from one project for use on an- other project was cumbersome and slow. (d) The ownership of implements and equipment was difficult to es- ta.blish in that some vrere purchased by the wjirehouse project while others were purchased by the operating projects. (e) The system of property accounting was not sufficiently developed to cover the field and, because of the difficulty in establishing ownership, was not accurate. (f) The authority of the warehouse personnel was not broad enough to permit emergency purchases of items which projects needed immed- iately. In July, 193s, a Supply Fund was authorized as a revolving fund and operated as the Supply Section under State Supervision and District Administrative control of the Division of Engineering and Construction. The Supply Section included a State Supply Manager, State Property Accountant, their staffs and a Requisition Unit which reviewed project requisitions (written in District Supply Sections) and maintained liaison with the Procurement Division for ex- pediting requisitions. Surplus property declarations were also handled by the 82 state Supply Section in the State Office. A warehouse was established in each geographical district (six in the State) and it was deter.-nined that all implements and minor and major equipment of general use should be turned over to the Supply Section for ownership and control. An Inspection Service was established to inspect all materials and equipment to determine that items received from vendors met the specifications on which they were purchased or rented. This inspection service proved to be one of the most useful services performed by the Supply Section and was a safeguard in protecting the Federal Government against unscrupulous vendors, both in the quality and quantity of merchandise being delivered. At this time a Property Accounting Unit was established in each warehouse as a part of the Division of Finance. Control records of all Federal property were established and maintained. Charges for services to projects partici- pating in the Supply Fund were made, depending on the amount and type of service rendered. Direct Service charges -^rere applied to those activities where special jobs were being accomplished, such as construction of panel job shanties, tool boxes, special assembled equipment and for tool and equipment repairs which could be charged directly to projects on work orders. The General Service charges were made on a pro rata basis, depending on the number of employees, and included wages of the Requisition Units, Storage Units, Control Units in the District and State Supply Sections. The functioning of the Supply Section followed the same general pattern of administration and control which obtained for other units of the State Admini- stration. The State Office of the Supply Section was responsible for general supervision of the entire Section, for preparation of instructions and regu- lations, for coordinating the finance functions of property control, and for maintaining liaison with the Treasury Prociu'ement Office and the Central Office of Wk. Each District Supply Section operated under the immediate direction end supervision of the District Director of Engineering and Con- struction vdth a line of information :-nd advice extending to the State Office of the Supply Section. Under District operation, methods used in the several warehouses varied to some extent. The type and quantity of materials, imple- ments, and equipment stoc'ras under- taken. Plants must have been engaged directly ot indirectly in production of defense or war materials, and occupations eligible for In-Plant Training vrere those designated in the "List of Occupations Approved by the Office of Production Management for Vocational Training Courses for Defense Workers". In other thiji approved occupations, prior approval of the Centra]. Office was required. An intensive program of employer interviews was instituted and hundreds of personal calls were made on industrial establishments. A favor'ible response was found in almost every instance and a desire upon the part of plant owners and superintendents to make use of the program. Irltial contacts were usuel- ly made through the personnel or employment manager or othor responsible of- fical. Experience showed that the program appealed moro strongly to small or medium sized plants rather than to tho larger corporations. The steel mills, packing companies, Western Electric Coianany and similar concerns usually maintained their own training programs, and vxere not especiallj'- interested in the In-Plant Training Progr.an, although recognizing its value. The progr.am operated to only a limited extent in downstate areas. A very large percentage of the In-Plojit assignments were in the Chicago area. Before assignment to the In-Pl?iit Training Program, persons whose records indicated that they were qualified were called into the flPA. office for fur- ther interview by a Reemployment Representative or an Occupational Glassi- fiar. Those selected were then referred to the employer for his -ipproval through the regular hiring channels of the plant. Those referred were se- lected to meet the qualifications specified by the employer. The follovYing :)oints were always agreed upon by the employer and the Wk be- fore initiating the In-Plant prograin in a plant. No written contract was entered into but a letter confirming the agreed-upon points was sent to the employer . In-Plant trainees were subject to plant rules r-md regulations. The plant furnished training space, equipment, machine tools, and instruc- tion. Training was not to conflict with plant practices or established employexv. employee relationships. The training was not to exceed 160 hovu?s duration, and assignments were ILmited to a maximum of 8 hours per day and 40 hours per week. 89 Trainees were paid during the period of In-Plant training in accordance vdth a schediile of earnings which is the product of the number of hours of training per 4-week fiscal period and the hourly entrance rate for learners employed at tasks comparable with those to be performed during the Wk training period. In case of injury, the In-Plant trainees v/ere subject to the benefits of compensation laws administered by the U. S. Compensation Commission. Plant employers, however, had the responsibility for safety measures in their plants . It is quite significant that every In-Plant trainee who remained in an in- dustrial establishment for a full period of 4 weeks as an In-Plant trainee was taken over onto the company payroll at the end of the training period. Many were hired before the end of the 4-weeks training period. SELECTION The Vocational Training Program provided two types of training - basic pre- emplojonent training and refresher training. Courses were offered to provide trainees with sufficient training to enable them to enter industry at a minimum skill or semi-skill level, or to restore a proficiency of skill which had become dormant due to long periods of non-use. Therefore, it was essential that in addition to those eligible for refresher courses, persons vlth adaptabilities for training be selected for pre-em- ployment training in f undc-jnent al skills necessary to meet basic require- ments for e.'iiploynient . \Wk work experience v/as given fiill consideration in determining potential adaptability to training. Before any workers were selected for assignment as trainees to the Vocation- al Training Project, an interviewing process was established in order to determine the worker's physical condition and possible employability in the fields for which training was under consideration. Among the factors con- sidered as a guide for selection were good health, some experience in the use of hand or machine tools or in some occupation requiring manual dexter- ity, vocational education or apprenticeship training, work experience in mass production industries, experience in farm mechanics, hobbies involving manual dexterity, satisfactorj' work habits, etc. Willingness to accept training was given consideration until September 18, 1941, v^hen this provision was rescinded. The State Director of Training and Reemployment allocated to the Division of Employment project personnel consisting of Occupational Classifiers and clerical workers for the purpose of assisting that Division in the inter- viewing program made necessary by the requirements of the training project. After having reviewed the records of workers in both the working and await- ing assignment files, the Division of Employment selected and assigned workers in the usual manner to the Vocational Training Project, designating the location of the school and the occupational training for which the train- ee vras assigned. Assignments and reassignraents for training under the direc- tion of the Division of Training and Reemployment and retention in such 90 training vrere given priority over all other project requirenents. The Vocational School authorities had the right of acceptance or rejection of assigned trainees at the time of reporting, or at a lator date, if in- aptitude for training was revealed. Refusals of assignments to training projects were regarded in the same manner as refusals of an;.'- other project assignment for which such persons were qualified. PLACBvENT One of the objectives of the Division of Training and R'-. emplqj.'ment was "the acceleration of the reenploj'Tnent of trainees and other certified persons in private- or other public enploynent". Innediately after the establishinent of the Division of Training and Reemployment, an intensive program for calling on industrial concerns was initiated with the objective of placing Wk nork- ers in private jobs. VJlierever fim;s indicated a preference for the United States Employment Service as a ,:ublic placement agency, they -^.veru advised to make use of it. In many instances, however, prospective workers were referr- ed direct to employers and many were placed. In Chicago this phase of the program was greatly expanded ^Jid a placement unit was established as a section of the Division of Training and Reemploy- ment. In February, 19/i.2 the supervisciy title of Reenplcyment Representative was approved and qualified persons were at once added to the placement st?-ff . The placement unit maintained a close vrorking relationship ivith the United States Employment Service, the Civil Service Commisoion, the Railroad Retire- ment Board, other Federal and State agencies and id-th numerous employers. Workers were called in for interviews with Reemployment Representatives be- fore being referred to employers who had s^Jtmitted job specifications. Re- sults of referrals v7ere verified and reported to the Division of Emplojinent. Trainees and other certified workers were advised of job opportunities, assisted in filing applications, obtaining r.edical examinations through es- tablished channels, etc. Among efforts used to aid in placements, the following may be mentioned: Want-ads were scrutinized carefully and followed up by m.ail or telephone. Former employers of ;Torkers were contacted by mail, requesting that they give consideration to re-hiring the former emplo;/ee. Selected groups of employers were solicited b' mail and by personal calls, as hotels, laundries, etc. Civil Service forms were distributed to v/orkers and to project locations ?Jid assistance given in filling them out. Employers Avere invited into the office to interview prospective workers. Employers were invited to visit projects and training schools in order to select workers. 91 The United States Eknployment Service referred many job orders to our pl'iceraent unit and tov/ard the latter part of our program r. ReemplojTnent Representative was placed in the USES Central Placement Office on a full-time basis as a liaison person for the two agencies. I I 92 IX OPERATING PROGRAMS GENERAL In funeral, the programs of the V/PA were public works and public services. The reotrictions of the liner gency Relief Appropriation Acts making funds available for the several programs provided that all work should be of pub- lic banefit. Tliis meant that no construction could be undertaken or ser- vices rendered rdiich vrould accrue to the benefit of an individual, a re- stricted ?^oup of people in a community, or to a private agency. Public works programs operated by the Division of Engineering and Construc- tion ranged from construction and improvement of drainage ditches mider un- favorable circumstances and vn.th low sponsors' participation, using a maxi- mum arnount of unskilled labor, to complicated heavy construction, such as dams and bridges and large public buildings, requiring the highest typo of supervision, skilled labor, ?Jid equipment. Public services, performed by the Division of Service Projects, ranged from the old type of emergency relief sewd.ng projects and cleaning and renovating public buildings, requiring the maximum amount of unskilled labor with a minimum amount of traj.ning, to highly technical research projects, exempli- fied by the Chicago L-md Use Survey, using so called "white collar" workers of considerable technical ability. Due to the lack of advance planning, it was necessary when the pro-am str-rted to improvise projects in most communities. The challenge v/as to put thousands of unemployed persons to work - literally over-night. 'kVhile the challenge was met, it was necessary during our early operations to over- load a great number of the projects in order to provide sufficient employ- ment opportunities. This ccndition resulted in considerable public criti- cism. It was not long before steps were taken to bring about draprovement in opera- tions. Useful projects were planned and provided by sponsors in greater numbers! Icfw typos of projects v;cre eliminated, better tools and equipment were made available, overloading of projects was eliminated, better super- vision was secured and trained, vrarkers were shifted to jobs which would more effectively utilize their skills. Sponsors began to appreciate that they were getting vforthv/hile things done for their caiununities and vrere se- curing a return for their investments in terms of human values, public im- provements and services. With those incentives, impelled in part by later provisions of the l-av requiring an average of 25^ sponsor's contribution, sponsors' pr?j?ticipation and interest in projects was amplified and they pro- moted and demanded increasingly higher types of work and correspondingly hdgher returns from their investments. Many sponsors participated up to fifty and sixty per cent, a positive recognition that efficient results were being obtained through Wk operations. During this period of evolution ad- ministrative and supervisory personnel gained experience in the conduct of a vj-ork relief program and developed new techniques peculiar only to such a program. 93 The results of lYPA operations speak for themselves! construction work and services performed were of high quality and, with improvements in methods and increased mechanization experienced in later years, unit costs were ob- tained which compared favorably vdth those on work done under private con- tract. EMGINEERING AND CONSTRUCTION General While prior to the beginning of the WPA program some broad public works planning had been envisioned, such as the Chicago Outer Drive, and engi- neering designs had been prepared for the lateral and trunk line sewer sys- tem of the Chicago Sanitaj?y District, comparatively little preliminary or detailed planning for public works had been undertaken throughout the state. Also, at the outset WPA was reg,nrded by most sponsors as a temporary agency, the life of which v^as not likely to extend beyond one year. Public works planning, therefore, was hot considered to any great extent in the early operating program. The immediate goal v;as the employment of a large number of workers from all v;alks of life. Project applications v/ere accepted in large numbers from all types of eligible sponsors and, generally, these projects were designed for the prime purpose of furnishing employment in volume with the least possible delay. The type of project submitted by sponsors depended largely upon the sponsor's function in the municipal set- up; and the varying degrees of interest .and cooperation in providing employ- ment shovm by individual municipal bodies dictated the character of woric available in local communities. Individual sponsors had no over-all know- ledge of the characteristics of unemplpj'-ed workers and generally regarded people who were unemployed as "labor". Construction projects, being large- ly plant expansion or rehabilitation work, nominally required labor trained or accustomed to m.-^jiual work. The unemployed, however, included large num- bers of white collar workers, factory workers, and others with no previous construction work experience. As a result, the amount of unskilled labor available in ratio to the amount of skilled labor available wiis dispropor- tionate. This fact, highly important to successful prosecution of constuc- tion projects, had little or no bearing on the development of projects or selection of projects for operation during early stages of the works program. It was only after the WPA had been in operation for over a year that program planning became a possibility. VifPA administrative staff carried the burden of inducing sponsors to plan projects which had as their primary objective the construction of facilities which v/ould return the greatest possible value to the community. Several years of promotion and education were re- quired before the results of this type of thinking became apparent in the type of program operated. The greatest difficulty encountered v/as that of coordinating the abilities of available labor with the program of work pro- posed by the sponsors. As stated above, the quantity of skilled construc- tion labor was disproportionate to the total labor supply, -jid it was there- fore necessary to adjust methods of construction and even the work proposed in a manner ^vhich would provide employment for the type of workers avail- able, while at the some time constructing the facility desired by the sponsor. 94 Types of Projects Operated The types of construction projects operated have been generally classified in seven categories. With the development of a better organized program of oper- ations, including the selection for operation of projects which could be effi- ciently prosecuted vd.th available labor with3.n the sponsor's financial re- sources -and with equipment and materials locally available, the ratio of work- ers employed in any one category to the total employment changed. A compari- son between the number of workers employed in each of these categories in the years 1939 and 1942 is indicated in the f ollov/ing tabulation; liighways, Roads and Streets Public Buildings Parks and Recreational Facilities Public Utilities Airports Conservation Mscellaneous Sept. 1939 Sept. 1942 53.0^ 40.0^ 7.1 11.7 13.1 7.9 19.7 24.2 .3 7.5 2.9 4.1 3.9 4.6 A resume of each of these categories seems apropos in a discussion of the gen- eral WPA operating program. Highways, Roads and Streets The early relief laws in Illinois provided assistance to the needy by to^vnship supervisors, in exchange for v/hich the persons receiving relief were usually required to work on township roads under the direction of the township commis- sioner of highv/ays. Perhaps for this reason toimship road projects constituted the largest number of any individual type of project and provided employment for tho largest number of ^vorkers in the early stages of the program. It is also t:!Aie that the need for improvements to township roads greatly exceeded any other individual need in the state, and, also, this type of project could be quickly developed and placed in operation. The work involved could most easily be performed by nearly any type of individual able to work. In Illinois a tovmship generally includes an area six miles square; as a result, township road projects could be so located as to be accessible to all workers. The typical township road project was designed around the estimated number of workers aveil^ble within the tovmsliip, the equipment available to the township commissioner of highways, and the funds available to the tovmship. These fac- tors varied considerably in different parts of the state. In the northern half of the state, f.airly respectable road constmction projects were possible, but in the southern half of the state, with low assessed valuations, practically no cash or equipment available, and id.th relatively high numbers of workers in need of employment, extremely low types of township road construction projects were developed. Nearly all of these projects v;ere placed in operation without plans, specifications, or standards of construction being available to super- visory personnel. The objective was usually to "gravel a road." Brush clear- ing and ditching sometimes developed as a major objective in this type of project. The lack of plans and specifications and engineering supervision on the part 95 of the sponsor raanifested itself at an early date in the program. Althou^ state laws provided for control of such operations by the county superintendent of highways, it had been general practice in Illinois that such control v/as not exercised. It was determined by 'ilTPA that, in order to improTre the character of work underwaj' and to safegucxd Vi/PA against criticism because of non-conforraance with state laws, township road improvement projects would not be undertaken, except upon approval of the county superintendent of highways. This policy im- proved to some extent the character of this program, but in many counties the county highway department was unable financially to cope with the problem and in some inst?Jices the county hi^way superintendent v;as not technically capable of supervising a road construction program of the magnitude confronting him. In the southern part of the state, where the problem became particularly acute because of financially poor sponsors and large numbers of utieraployed, WA engi- neers found it necessary to assist in making surveys and developing plans, spec- ifications and standards of construction. The problem was officially recognized by the State Division of Ehgineering and Construction tlirough issuance of mini- mum standards, including such items as vddth of right-of-way, sight distance, degree of horizontal and vertical curves, drainage structures, tj'^pes and speci- fications of surfacing materials, and other specifications necessary to assure that a vrorthv/hile improvement v;as being obtained. As a result of establishing these standards, applications for Farm-to-4I?j?ket road constiniction were devel- oped on a sound engineering basis and the construction which follcv^ed was great- ly improved. Cities, towns and villages participated to a considerable extent in street con- struction projects. In larger municipalities, where a regularly employed engi- neering force was available, or where it vfas the practice to employ the services of qualified consulting engineers, fairly efficient results v/ere obtained, but in smaller communities the absence of planning on the part of sponsoring offi- cials frequently resulted in development of "made work" street improvement projects, on which the results obtained were not commensurate with the amount of funds expended. "kVithin about two years, however, the ability of WPA to construct roads, streets, highways, bridges, etc., of the highest quality became clear to many project sponsors and, as a result, higher types of such improvements were considered for construction under WPA. Sponsors were mlling to spend a larger portion of the project cost and obtained such funds through Motor Fuel Taxes, special assessments, and general obligation bond issues. Improvements prosecuted began to include reinforced concrete pavements, concrete bridges, bituminous surfaced rural highways and, even with respect to township road projects, the surfacing specifications improved considerably. This improvement in character of work is attributed to the insistence by Wk on adequate plans, specifications and materials, and the demonstration by Wk that work of the highest standards could be successfully prosecuted. The insistence upon these standards by "VTA made it necessary to refuse to operate many of the lower type road construc- tion projects because adequate plans and specifications v/ere not available, or because the improvement desired was not of a sufficiently high type. The result was that fewer workers were employed on road construction projects but, at large, better accomplishments were realized. The Inrge number of individual road construction projects prevalent during early stages of the program was objectionable from an administrative point of vi^w, 96 i because each employed relatively few workers and administrative costs with respect to control and supervision were disproportionately high. This objec- tion vfas overcome through the development of county-wide road construction projects under the sponsorship of county highway departments. Development of county-'.vide projects made possible a supervisory organization of higher quality and required fewer supervisory persons than v;as necessary under individually sponsored projects. Scheduling of operations within counties was possible through the consolidation of all road work vfithin a county under one project. In general, highway, road and street construction represented the largest source of vcork for unemployed labor. The construction of roads and streets in volume greater than the sponsor's ability to maintain these improvements pre- sented a problem, and in many localities road and street construction actually progressed to a point where the sponsor was not able to adequately maintain and operate the system in place. In such localities, further possibilities for this type of work are limited unless new sources of revenue for maintenance and operation are made available to the local governmental agencies. In the program of Highways, Roads and Streets, the two most outstanding accom- plishments consisted of the Farm-to-Market Road program and the construction of the Outer Drive in the City of Chicago. The Fana-to-liarket Road program v/'as particularly important to the farm communi- ties in the state, in that at the outset of V?FA only about 21 per cent of local to^Tnship and county roads were covered with any type of surfacing mate- rial. Consequently, these roads, which carried the bulk of farm produce to markets, wei^e impassable during periods of wet weather and, because of their nat\ire, covild be used only by horse dravm vehicles for a greater part of the summer season. WPA projects, under sponsorship of tovmship road commissioners and county hi^v;ay departments, graded and surfaced ^vith crushed stone, gravel, or mine shale a total of 35,iyhO miles of these Farm-to-^arket roads. Because of this WPA construction, apprcxmately 67 per cent of the Farm-to-Market roads in the state are now equipped with some type of all-vreather surfacing. This construction now permits hauling of a large percentage of the farm produce to market in all types of weather, and, because of the surfacin/^, farm trucks can use the roads in all seasons of the year, thereby creating a great saving in time and effort so greatly needed at this time in the agricultural industry. The Chacago Outer Drive improvement had been conceived some years prior to the start of ^A. The City at that time was struggling with an exceedingly diffi- cult problan of automobile traffic between the central business district and and the north and northwest sections of the City, and the suburban area along Lake Michigan to the north of the City. The main traffic artery was the Michigan Boulevard, Lake Shore Drive, and Sheridan Road system, which approxi- mately paralleled the leke shore. Because of restricted capacity, this artery became so congested duidng rush hours in the morning and late afternoon that an average speed of approximately five miles per hour was the maximum vrfiich could be attained for a considerable distance north of the central business district. Under sponsorship of the Chicago Park District, a program of improvements was undertaken which had as its objective the construction, through relocation and new development, of a high speed traffic artery which would, for all time, solve the northbound traffic problem. The program was started in 1936 and com- pleted in 1942. The improvement began at approximately the Chicago River on 97 Michigan Boulevard and on Lake Shore Drive, and extended in a northerly direc- tion on these streets, and on Sheridan Road to Foster Avenue, a distance of approximately six miles. At some locations the existing street pavements were vd'dened. At others, additional pavement was constructed, paralleling the ex- isting streets, and new pavements wero constructed at new locations to route traffic av;ay from congested areas. The major portion of the improvement was constructed throu^ the park system fronting on Lake Michigan. The most outstanding portion of the entire improvement was a section of nev; concrete pavement constructed to replace a portion of Lake Shore Drive between North Avenue and Belmont Avenue, a distance of approximately two miles. On this section was constructed a concrete pavement 100 feet in width, equipped vath three movable traffic fins spaced 25 feet apart, which fins could be automatically raised or lowered at will, so that traffic could be routed into definite channels. ^Vhen traffic is heavy in any one direction, one of the traffic fins can be raised so that a vddth of 75 feet is available to accomr- modate the heavy traffic flow, while the remaining 25 feet are available for the lighter traffic traveling in the opposite direction. Included in this section of pavement were three grade separations, designed to accommodate in- ccming or outgoing traffic at North Avenue, Fullerton Avenue, and Belmont Avenue, without interrupting the normal flow of traffic. Also included was a new bridge over a lagoon entrance from Lake Michigan at Diversey Avenue. Since completion of this entire system of improveinents, tha traffic conges- tion has been successfully overcome and traffic may now flow from the cen- tral business section of the City in a northerly direction at express speeds. P\iblic Buildings During the early stages of the program, building projects were largely lint- ited to rehabilitation, painting, grounds improvements, etc. Insistence by WPA that maintenance work vrould not be undertaken was necessary in order to counteract a tendency on the part of sponsors to submit projects including large amounts of such v;ork. When the possibilities of construction throu^ WPA had been demonstrated, there was an increase in the number of applica- tions for new building construction projects. In many communities, school buildings, village halls, community buildings, and similar structures vrere needed. Structures 50,60 and 70 years old were replaced by modern struc- tures. This type of project required the most careful planning of all pro- grams undertaken by WPA because of the uncertainty that skilled labor suffi- cient for completion of the work would be constantly available to 1/VPA or to the sponsor. In general, the skilled labor group was the most aggressive and the first to leave I'JPA rolls when private employment of the communities developed. In larger cities skilled labor available to WPA was not pajrtic- ularly limited in number, but the workers ^vere generally in the older age bracket and included those v;ho were no longer able to compete in private in- dustry with younger workers. The more specialized phases of building con- struction, namely, electrical work, heating, and plumbing, v/ere undertaken by contract or by force account skilled labor employed by sponsors. In soine localities labor unions adopted the policy of not cooperating with WPA labor, but generally such problems were solved vrlthout much difficulty. After some experience vdth building construction through 'iVPA, buildings de- signed for monolithic concrete construction prevailed. This type of vroric could bo most easily accomplished with available labor, required the least number of higjily skilled laborers, and was desirable to the sponsor bccouse 98 usually a lower percentage of sponsor's participation v;as required. The suc- cess of building construction projects in particular was dependent upon the ability and patience of superintendents and assistant superintendents to direct workers often not familiar vdth the work. It was necessary for a WPA building project superintendent to be thorou^ly familiar with all phases of the con- struction In most cases, foremen and assistant superintendents worked side by side with project woricers in actual construction. TliatlVPA could successfully prosecute this type of project was evidenced by the fact that the percentage of workers employed on building projects in 19/^2 was 50 per cent more than the number employed in 1939* A successful Vi/PA building construction project usually required a hiigher degree of sponsor's cooperation than other types of projects, particularly because timing of material procure- ment and delivery, and accomplishment of certain skilled work vrero vital to continuity of operations. In spite of the difficulties encountered in public building construction, V/PA in Illinois was able to contidbute greatly to the welfare of many communities in the state, through this type of construction activity. For example, a total of B^^y^evi buildings were constructed and another 2,930 buildings rehar- bilitated-^ improved. Of this number, 59 new school buildings were con^ structed and another S87 school buildings^rehabilitated and improved. The nev; construction \7as mainly for the purpose of replacing buildings which had been condemned or to provide for adequate space where exj.sting facilities were seriously overtaxed. In the case of the 887 buildings rehabilitated or improved, in most instances these buildings were sadly in need of major repairs and improvements. The buildings had deteriorated to such an extent that a complete breakdown of the educational system in many communities vvras threatenedt The Vi/PA assis- tance extended corrected these faults and the conmunities are now equipped with proper educational facilities. The largest single building construction program undertaken in the State con- sisted of the construction of 13 large armories, under sponsorship of the State of Illinois. These buildings were primarily designed for use by the Illinois National Guard, but were constructed in such a manner as to be usable for many community functions, such as meetings, conventions, dances, etc. All of these buildings were constinicted in communitit5s outside the City of Chicago and sev- eral of them in communities with a population of 5,000 or less. Because of this construction in the smaller communities, the skilled labor available to WPA was not sufficient to carry on project operations expeditiously. It became necessary for the sponsor to supplement V/PA labor vdth skilled labor, which the sponsor hired with his ovm funds. However, because of the limitation on the sponsor's funds, the amount of skilled labor v;hich could be provided was not sufficient to carry on project operations on an efficient basis. The limited sponsor' s funds also required V/PA to furnish non-labor items far in excess of the amount normally furnished by the Federal Government. While the construction of the 13 armories filled a long felt want c?.tional Guard, the amount of employment provided for relief workers in relation to the total Federal expenditure was not favorable when compared v/ith other types of projects. 99 Parks and Recreational Facilities The construction of park and recreational facilities represented a ready out- let for employment of WPA labor during the early stages of the program. Proj- ects could be quickly conceived and placed in operation. The type of work, namely, grading, landscaping, minor building construction, playground develop- ment, etc., required employment of all classes of labor and the improvements desired could be scheduled to conform with the character of labor available. As in other types of projects, the need for adequate plans, specifications, and construction standards soon became apparent. The tendency to develop ■ "made woi'k" improvements in parks and recreational facilities became a prob- lem, as did the development of park or recreational facilities beyond the sponsor's ability to properly maintain and operate these facilities. Although the earlier projects included mostly landscaping, tree planting, road con- struction, and similar items of work requiring largely hand labor, a commend- able program for the construction of svdjnming pools, athletic fields, stadia, and other recreational facilities was soon developed. Such facilities were lacking in many communities and there was a definite need for this type of improvement. This category of projects offered a fertile field for a work program because it provided projects which could be constructed in useful units of the type that could be expanded or contracted within a relatively short period of time. In Cook County particularly, where large unemployment existed, the ability of sponsors to provide vrork opportunities in this category was an important factor in the success of the WPA program. On the other hand, the point at which new construction ended and maintenance began was debatable. The use of excessive numbers of laborers became a problem, and on the lar^ er types of park and forest preserve projects, a proper balance between the amount of labor and equipment was rarely attained. The most extensive program of work of this character undertaken by the WPA in Illinois was the park program, sponsored by the Chicago Park District. A considerable portion of this program was constnicted along the Lake Shore and the park area identified as Lincoln Park. The program of improvements in the park itself was carried on simultaneously vdth the construction of the Outer Drive highvjay improvement, described above. That portion of Lincoln Park lying between Foster Avenue and Belmont Avenue was developed in its entirety by WPA labor. This park was constructed on sand and other fill previously placed by the Chicago Park District. The WPA operation consisted of landscaping, planting trees and shrubs, construction of walks, drives, tennis courts, parking areas, bathing beaches and bath houses. In that portion of Lincoln Psrk south of Belmont Avenue, approximately 50 per cent of the park area was completely revamped. Drives and v/alkways v/ere relocated, parking areas were constructed and athletic fields removed from one location to another. The prime objective in most of this construe-. tion v/as to provide recreational areas which were not subject to continuous automobile traffic. In the park area fronting on Lake Michigan, approximately south of Roosevelt' Road, vfas located the Century of Progress Exposition in 1933 and 193A. ^ 100 Subsequent to the removal of the Century of Progress buildings, V/PA moved into the area and developed it into a park. Another outstanding example of park development was the construction of what is now known as Lake Park in East St. Louis, Illinois. This area of approx- imately 1130 acres in extent consisted of s^vamps and farmland prior to the start of vVPA operations. The development included the construction of the lake, swimming pool and bathhouse, an outdoor amphitheater, together vath the usual drives, walks, parking areas, and a nine-hole goK course. Because of the varied type of constniction undertaken in the development of park and recreational facilities, almost every type of occupational skill com- mon to construction work was used. This type of work provided an outlet for a large volume of available labor in the cities in which such work v/as done. In every instance, the construction would not have been possible without WPA as- sistance, because the cost of park developments which were undertaken by WPA vrere so extensive that the ccmmunities could not have undertalcen them if th^ had been required to finance the entire cost. Public Utilities Projects in the public utility category, largely sanitary sewer and water sup- ply projects, comprised the group of projects perh<:^s best suited to the WPA program. The required stimdards of sanitation had increased beyond the ability of many communities to construct or improve sanitary facilities. It also de- veloped that many necessary v/ater and sewer projects could not be financed by these communities without outside assistance, such as furnished by WPA. This field had boon fertile as a source of work for PM and the cream of the proj- ects chosen for development had been selected for operation by that agency. As a result, many of these projects which IVPA undertook were those v;hich spon- sors needed bad]y but had not been able to finance. A considerable ajnount of time was required for development of proper plans and specifications, and, as a result, this type of project was not available for operation at the inception of ViTPA. The earliest operations were limited to short sections of sewer or water main extensions, but as the possibility of improvem.ents through Wk be- came raJinifest, many communities presented projects for sanitary sewers, sewage treatment plants, water distribution systems, and water supply systems. On these types of projects the ratio between labor and non-labor requirements was such as to make them desirable to sponsors from a financial standpoint whenever sufficient WPA labor was available. In central and southern Illinois particularly, diminishing water supplies had developed to be a considerable problem and it became apparent that many commu- nities could solve this problem through construction of dams and reservoirs. This type of project v/as particularly adaptable to ViTPA and met with consider- able public favor. The possibilities for such projects have only been touched upon and a considerable number of additional projects could be developed and placed in operation. The public utility type of project is one v/hich can be developed in nearly every community, for the needs increase with the expansion of the larger communities and too many smaller communities are inadequately served, if at all. The tendency in this type of project during the early stages of the program was to use a preponderance of hand labor, resulting in unnecessarily high costs and long periods of construction. When the need for more efficient operations had been emphasized, and particularly when the number 101 of workers av3lla.ble decreased, we found it not too difficult to introduce the use of equipment in these types of projects, with the result that performance became reasonably efficient. Many coraiminities reported costs of project op- erations belav those experienced throu^ private contract methods of construc- tion. The most outstanding program in the field of public utilities constructed in Illinois was the Chicago Sewer Program. The disposal of sanitary wastes in Chicago was the joint responsibility of the City and the Sanitary District of Chicago. The City of Chicago normally constructs and maintains lateral and trunk lino sobers, while the Sanitary District collects the sanitaiy wastes from the trunk lines through a system of intercepting sewers and transports them for treatment to three large sewage treatment plants located on the south, west and northwest sides of tho City. In 1935 large areas of the City, near the outer limits which had been reason- ably well built up vdth small homes, vrere lacking in proper sewage facilities for the disposal of sanitary wastes. Also, intercepting sewers were laclcing to transport these wastes to the scvfage treatment plants. The boundaries of the Sanitary District extend outside the City limits and take in a large por- tion of suburban area immediately adjacent to the City. The sewer systems in these suburbs, in some instances, discharged into open water courses, thereby creating serious health hazards through pollution of these streams. Both the City of Chicago and the Sanitary District of Chicago seized upon WPA as a means to correct these situations through the construction of com- plete sevrer systems and intercepting sewers. The sewer construction under- taken in this program was well planned. The interceptors and lateral and trunk line systems had been designed some years previously, but, because of the limited funds available to the sponsors, they had not been constructed. The program, as laid out by the City of Chicago, also included tho constmo- tion of several badly needed relief sewers to mitigate overloaded conditions in tho City sewer system which had been constructed sane 35 to ^0 years pre- viously. In the Chicago Program, a total of 321 miles of new sewer was constructed, while 6| miles of existing sewer vrere rebuilt. The sewers as constructed ranged in size from 10-inch diamter to monolithic concrete sections I3'xl7' internal dimension. In the first several years of operation, the program included the constinic- tion of concrete pipe with WPA workers using forms rented from manufacturers of concrete pipe. Pipe sizes constructed in this manner ranged from 24-inch diameter to 90-inches in diameter. Approximately 70 per cent of the miles of sewer constructed were installed entirely by hand labor methods. General- ly, excavating and backfilling equipment was used only on the larger diameter and on the huge monolithic concrete sections. At the peak of this type of construction, approximately 10,000 workers were employed in the Sewer Program of the City of Chicago and the Sanitary District of Chicago. Airports Airport construction did not represent a major phase of the Illinois WPA pro- gram with respect to numbers of workers employed, because in Illinois the 102 means for financing such improvements by municipalities had not been clearly defined to project sponsors at the outset of the program. We did, however, construct a few high type airports. Because of the amount of drainage, paving, and grounds improvement required in a project of this type, it is desirable in a work relief program, but generally the project sponsor must be required to furnish a considerable amount of equipment in connection with the grading. The grading operation does not in itself represent a source of worthwhile vrork for vrork relief labor. The most notable achievements in the field of airports were the enlarging of the Municipal Airport in the City of Chicago and the rebuilding and extending of the iiinicipal Aix'port at Peoria. In 1935 the Municipal Airport in Chicago had an area of 160 acres and was equipped with runways of an extremely low type of surface. The first step in improving the airport consisted of constructing new runways on the existing field. It soon became apparent that a field of this size was entirely inade- quate to handle the air transport traffic, and the City of Chicago thereupon made provisions to enlarge the airport area to one square mile. A major problem which was encountered during the construction was the existence of a railroad track which bisected the field. After considerable delay and negotiation, the City of Chicago succeeded in having this track removed and routed around the field, after which the runway construction was completed. Construction on this enlarged airport consisted of drainage, grading, conr- structing runways, consisting of macadam base, an asphaltic concrete surface, and the construction of concrete runways. The runway system v^as so designed that there are now four sets of dual runways, thus providing facilities for two planes to land or take off simultaneously in the same direction. The en- tire field is also equipped ivith the most modern airport lighting system in the nation. The runways are equipped vdth contact lights and flood lights. Each runy/ay is identified \^d.th concrete numerals approximately 20 feet in height, wliich are also lighted for night landing. Prior to the start of VfPA operations at Peoria, the airport was equipped with runvrays surfaced i«rith mine shale and approximately 1500 feet in length. Under the WA project, the field 7;as enlarged, graded and drained and four concrete runways vrere constructed, ranging from 3500 feet to AOOO feet in length. In both of these projects, the entire operation vras performed with ''JPA workers. The only assistance in workers furnished by the sponsor was in the form of electricians to assist in installing the lighting system on the Chicago air- port. All subsurface work was performed with hand labor and on the Chicago airport a considerable portion of the grading was performed in the same manner. Conservation While water conservation projects vrere not numerous in Illinois, 20 dams, most of v:hich were of rolled earth fill vd.th concrete overflow spillvrays, v;cro con- structed. Eleven of them were constructed primarily to provide storage reser- voirs for municipal water supply. Along v.dth them, filter plants and pumping stations ^vere constructed and water supply lines of considerable length vrere laid. In addition to their utility value, the lake areas created, mth their 103 irregular shore lines, offered opportunities for developing nev; recreational facilities of a type not large in number in Illinois. This type of project was readily adaptable to the use of WPA labor, but in the aggregate did not provide employment for a great number of workers. Several were successfully constructed under an arrangement whereby the sponsor's participation was furnished under contract. Under this plan of operation, for example, the sponsor would let a contract v/hereby the contractor would furnish over-all supervision of construc- tion, earth moving and other equipment, skilled labor 'and certain specified materials, and the WPA would furnish all labor not supplied by the contractor, necessary TjPA supervision of such labor, and materials not furnished by the contract or r I'ne largest and most prominent dam construction involved, projects in the Crab Orchard Area under sponsorship of the U. S. Department of Agriculture, Soil Conservation Service. Wk assisted in the completion of the main Crab Orchard dam on Crab Orchard Creek near Carbondale, Wk work involved placing of rip rap on the dam, clearing a large part of the reservoir area, and construction of roads, trails and recreational facilities. WPA also constructed to a point of nerx completion an earth fill dam, 85 feet high and 3500 feet long, on the Little Grassy Creek, a tributary to Crab Orchard Creek, above the Crab Orchard dam, and partially completed a monolithic concrete dam, which when completed will be 116 feet high and 670 feet long, known as the Devil's Kitchen dam on Grassy Creek, also a tributary of Crab Orchard Creek,, above the Crab Orchard dam. These Dams were not completed, due to the liquidation of the Wk Program. Very little soil conservation ivork was done by WPA, as it was the policy of the Illinois Department of Agricultvire to encourage such work to be done by individual farm owners. However, a successful experimental soil conservation project was operated at Dixon Springs in Southern Illinois under sponsorship of the United States Department of Agriculture, Soil Conservation Service, in cooperation with the State Department of Agriculture and the University of Illinois. While useful work vms accomplished, employment on this project was limited. Diaster Relief Pro.oram Wk in Illinois participated in disaster relief activities in every instance of natural disaster during the years from 1935 to 19A-3. The assistance given to local communities and to the public consisted of the protection and repair of levees during high v/ater stages in the Illinois, Mississippi, Ohio and Wabash Rivers. Wk also assisted in the evacuation of families from flooded areas, in the removal of debris, and in reestablishing municipal functions after flood v/aters |iad subsided. Immediately after several severe wind storms, Wk aasisteji communities in re- establishing normal municipal functions by removal of debris and repaiidng damaged public property. The most notable WPA participation in the field of disaster relief was during the disastrous flood in the Ohio River. WPA was lying in wait for the flood of 19375 an Qnergency Disaster Project v;as approved by the President on Feb- ruary 29, 1936, almost a year in advance of its use. Liaison was established, with the U. S. Army Engineers and ^vith the State Division of Watercmys that WPA might be promptly informed of any serious rise in navigable or non-navigable 104 streams in the state. Plans were laid in detail for prompt action in whatever district the flood might hit, with the cooperation from all other WPA districts. The first high water of 1937 in Illinois came early in January on the KaskaslcLa River in Fayette Ck5unty. This flooding of lowlands, which proved not to be serious, involved a few WPA workers employed on a regular VfPA levee proj- ect. Next the Wabash and VThite Rivers overflowed their banks and a few mora Wk workers were kept busy in Wabash, Ed.vards and Vifhite Counties. By the mid- dle of January, 1937, it began to appear that no serious flood conditions would visit Illinois. But from January 13 to January 25, 1937^ came snow and rain - day after day after day of an almost unprecedented precipitation in Pennsyl- vania, Ohio, West Virginia, Tennessee, Kentucky, Indiana and Southern Illinois. In 13 days from 12 to 21 inches of rain descended over the main basin of the Ohio River system. Shawneetown vms the first in difficulty and the last out. Wk crews started vrark on levee strengthening at Maunie and Shawneeto\m on January 21, 1937* vrorking under the technical direction of the U. S. Army Engineers. By January 23, over 2,000 WPA workmen viere engaged on levee v/ork, on evacuation of tovjns vdthout levee protection, and on emergency supply of food, clothing and medical supplies, working with the Illinois Ehergency Relief Commission, the American Red Cross, the U. S. Coast Guard Service, the State Department of Public Health, the Illinois National Guard, and with many other volunteer agencies. The I'TPA flood fronts extended from Mt. Carmel in F/abash County to Cairo and the Mississippi banks in Alexander County. By January 24, the Army Engineers decided that the plight of Shawneetown was hopeless and permitted the river entrance to the town to prevent overtopping of the levee. Later the flood crest came to its final stand six feet above the top of the levee. With the lower sections of Cave-in-Rock, ELizabethto;vn, Golconda, Metropolis and Mounds flooded and evacuated, with Brookport entirely submerged, with Ridgway, Equality, Kamak, and many smaller towns isolated by the rising waters, the WPA battle front shifted to Mound City and Cairo. By- January 26, A, 000 V^A employees were at the water front, working until forced by exhaustion to retire, when their places were taken by fresh WPA workers shipped in from Williamson, Franklin and Perry Counties chiefly. The flood waters rose steadily until February 2, by which time Harrisburg, 25 miles from the Ohio River, was three— fourths sulsmerged and entirely surrounded by water. On the 26th of January, the Ohio, backing up in the channel of the Cache River, overwhelmed Mound City from the rear and lower levees. Although over 200 WPA workers were on the levee at the place of the 150-foot break, all made the barges in safety. This left Cairo as the only Illinois tovm - the only to-.m in the whole Ohio Valley - to come throu^ the flood with dry streets. The opening of the flood-way belmv St. Francis, Missouri, took the final edge off the flood at Cairo, while the 3-foot high, 9-^nile long bulkhead, built largely, by VJPA successfully stood against the cutting action of the waves and current. As related in a subsequent chapter, v/hile WPA workmen were battling in the water and mud and snow, WPA women and other workers in sewing rooms, commodity depots, refugee camps and work shops all over the state were maldng, bundling and shipping vast quantities of sandbags, clothing, food and medical supplies. 105 and performing all kinds of emergency health services, under the direction of the Illinois Emergency Relief Commission, the Red Cross, and the State Depart- ment of Health. The grand total of V/PA workers all over the state who by February 6 had been enlisted in flood relief and supply work amounted to 14,3^3 men and women. To supervise their activities during the 2^-hour work day, ad- ministrative employees from all districts and from the State and Regional WA offices, were sent into the flood area and worked under the leadership of that district's staff. In the flood emergency period, before the vrater had subsided sufficiently for the main cleanup and health campaign, WPA Illinois had expended $280,000 for labor, $2/v0,000 for purchased materials, and $290,000 for clothing, foods, etc. It utilized the services of fourteen thousand workers. All this was done be- tween January 19 and February 6, 1937* With the passing of the flood crest during the first week of February, the big cleanup and and sanitation job was put under v/ay under direction of the Sanitary Engineers of the State Department of Health. WA crews, pumping and chlorinat- ing vrells and cisterns, burying animal carcasses, restoring privies, and clean- ing public buildings and streets folloyred close on the receding flood waters. Houses were floated back to their foundations - sometimes several blocks away - and restored to their ovmers. In Mound City, out of a total of 780 houses, 331 had been carried off of their foundations by the flood waters. The proportion was even higher in Shawneetown, where houses were freakishly overturned to stand precisely on their ridges, and piles of lumber were picked up intact and deposited on the downstream levee. Even brick walls crumbled under the impact. A church floor rose vertically a full t^Arenty feet, causing its cargo of furniture to punch holes through the metal ceiling, and subsided again practically to its original level. A garage roof was lifted off its supporting walls, which collapsed as the roof jackknifed. Private owners T,vho T/ere still able to locate their homes, shoveled the mud and plaster and debris that was once furniture out into the street, and WPA gangs hauled it av;ay. The official figures of the State Department of Health shcm that WA gangs under their direction pumped and chlorinated some ^.,880 water supplies, reset 1,500 privies, burned or buried over 1,000 animal carcasses. In January, 1942, the Mississippi River rose to unpredicted hei^t and caused serious damage to the low lands on the Illinois side of the River. WPA crews were celled out, under the State-wide Qnergency Disaster Project, ?4id vrorking under the technical direction of the Army Engineers, reinforced levees and placed riprap and sand bags to protect the upper part of the important levees from serious erosion. This work was a major factor in preventing serious flood damage to some 5,000 acres of farm land and to embankments of bridges over the Mississippi River in the St. Louis area. Since the Snerjency Disaster Project vras always given first priority in the employment of WPA labor, it was necessary each time the project operated to secure the greater part of the required supervision and labor by quick tran- fer from other operating projects in the same area. This usually made it necessary to temporarily suspend or curtail operations on other projects. Operation of the Disaster Project v/as usually of short duration and other projects were not seriously affected. However, in the case of the Ohio River disaster, the heavy vdthdrawal of workers from other projects in Southern 106 IllJ.nois for a period of nearly three weeks disrupted other projects to a con- siderable extent, and it was some time before operations became normal. Spon- sors in general were most patient in these situations because they appreciated that the assistance rendered by WPA in disaster work was of utmost value. Program of War Connected Pro.jects In recent years legislation authorizing the VJPA program included provisions affecting projects v;hich were directly connected with the Defense effort and later the War effort. The projects were first known as "Certified Defense Projects" and later as "Certified vTar Projects." In order for a project to qualify for this special designation, it was required that either the Secretary of ViFar or the Secretary of the Navy certify that such project was necessary in the Defense or War effort. Under the legislation, Wk v;as permitted to depart from the statutory limitation of $6.00 per man-^nonth of employment in the use of funds for non-labor purposes; and from the usual limitation of I30 hours of work per month. WPA in Illinois was called upon by the Armed Services to assist in the con- struction of many projects in this category. Because of the release from the limitation on the use of non-labor funds, projects were undertaken which made use of a considerably greater volume of equipment than obtained on other proj- ects in the state program. A brief summary of some of the v/ork accomplished by these War-connected projects follows: Rock Island Arsenal - Roads, vfalks, building rehabilitation; Camp C^ant - Concrete tent floors, roads, walks, railroad relocation, warehouse foundations; Savanna Ordnance Depot - Three miles of access road, roads inside the Reservation and fencing; Elwood Ordnance Works - Ten miles of access roads; Camp Logan - Shore protection for rifle range, and roads; Great Lakes Naval Trainin,.? Station - Parldng areas, roads and walks repairs, sewer and water system rehabilitation; Fort Sheridan - Roads and bridges, remodeling officers' quarters, remodeling barracks, new garages and warehouses; Navy Pier, Chicago - Building rehabilitation, underpinning, new drives and walks; Naval Armory , Chicago - New sick bay, remodeling old building, new sevirage disposal plant; Chanute Field - New pavements and walks, sewer system and water main extensions; Chicago Airport - Runway paving, lighting installations, drainage extensions; Peoria Airport - Complete new airport with concrete runways; Scott Field - Taxi strips and runways, drainage extensions, roads and walks, svrLmming pool, ware- house, field grading. In addition, access roads were constructed for the Buick Engine works at Melrose Park, the Acme Steel Company at Riverdale, the U. S. Corps of Engineers Depot at Granite City, the Twin Engine Bomber School at George Field near Lawrenceville. Prior to the establishment of the Certified Defense projects, the WPA in Illinois had operated many projects at the Army Posts and Naval Stations in the state, particularly at the Savanna Ordnance Depot, Rock Island Arsenal, Camp Grant, Camp Logan, Great Lakes, Fort Sheridan, Navy Pier, Naval Armory, Chanute Field, Scott Field. At all of these locations a large number of workers was employed and many of the facilities nov; so urgently required by the Armed Forces were constructed by WPA far in advance of the date on which the nation embarked on its organized defense progran. 107 Improvement in Type and Quality of Woi^ The quality of work performed increased in proportion to the improvement in the type of work. In the early operation of the program, it was necessary in some localities to seriously overload operating projects in order to pro- vide employment. This led to poor workmanship, as well as low efficiency. The interest of the worker under such conditions was extremely low. As better projects were developed, the interest of the worker increased and efficiency and workmanship also increased, as the workers took pride in their accomplishments. Improvement in efficiency and workmanship was also assisted by the use of more mechanical equipment to perform operations pre- viously accomplished by hand methods. Construction equipment was for the most part rented from either Federal funds or by the project sponsors. Very little construction equipment was Federally purchased, except air compressors and trucks* Operation of Federally Ovmed Equipment In general, it can be stated that the use of Federally owned trucks and other pieces of minor construction equipment was success ul. There was, however, a considerable loss in operating efficiency, due to the difficulty of keep- ing equipment in repair* The equipment would necessarily operate through- out the State, but repair shops, with qualified mechanics, could be operated only in a few locations in the State. Inexperienced operators would fre- quently cause serious damage to the equipment, and if equipment was not in proper adjustment, it frequently was permitted to operate when it ghould have been sent into the shops for repair. It required constant checking by- traveling equipment inspectors to keep the Federally owned equipment in proper repair. The advantage of Federal ownership of equipment was in the flexibility of use in moving the equipment from one project to another as the need for such equipment arose. Such movement eliminated the lengthy, cumbersome method required for the rental of equipment from Federal funds. DIVISION OF SERVICE PROJECTS General Since this Division was given responsibility for the employment of all women, skilled and unskilled, and both men and women of clerical and pro- fessional skills, the projects developed were many and varied. At the inception of the WA program, there were scattered here and there throughout the state a number of women's work relief projects which had operated under the Illinois Qnergency Relief Commission. The majority of these were sewing» renovation and institutional assistance projects, em- ploying for the most part unskilled women. Because these projects were easy of expansion, it was logical that they should be among the first to be organized as service projects under WPA. In the early months of the program hundreds of women were assigned to numerous sewing projects, util- izing the old treadle sewing machines of the relief administration and adopting the styles and patterns of the "relief" clothing programs. Other women ;vorkers were placed in public institutions and hospitals, supple- menting the services of the paid staff by serving as attendants, laun- dresses, kitchen helpers, and matrons. These general service programs 108 were easily set up at all points in the state where there were heavy concentra- tions of certified unskilled vromen. The need for speed in making assignments precluded the possibility of carefully worked-out plans or the establishment of uniform standards. For the most part, the needs and desires of the sponsors dictated the type and style of clothing produced or seirvice rendered; super- vision was uneven, much of it given by sponsors; training of workers was ha{>- hazard; and standard equipment was lac>cing. Development of Program However, early in 1936 the pattern of a work program for employing thousands of women began to take shape. More definite directives were formulated and uniform standards of operation began slowly to emerge. Qualified supervision was employed, modern equipment was secured, definite rates and standards of production were established, and training of project workers was initiated. Later, as our workers demonstrated their ability and our services proved their worth in the community, more hi^ily skilled weljfare services were inaugurated by the Service Division. Among these were the State-wide Program for Vision and Hearing Testing of school children, the School Lunch program, the Special Dietary Project for state hospitals and institutions, the operation of two Tuberculosis Sanitoria, a convalescent home and several Venereal Disease Clinics. New techniques were developed for the old established projects, such as Housekeeping Aide Clinics; modem industrial machinery was introduced into Sewing, Mattress Making, Furnitiu'e Repair, and Canning and Gardening Projects. Commercial standards of operation and production were achieved and the effi- ciency of the v.'orkers compared favorably v/ith that of private industry. White Collar Workers Although unskilled women comprised the largest group to be eraployed by the Service Division, the early labor inventories in 1936 revealed a heavy per- centage of men and vromen of general clerical skills available for employment. Job opportunities to employ these skills were not so readily apparent. The greatest resource was municipal and county offices. Sponsorship was secured and projects developed to provide supplementary service to every department of local government. With hundreds of extra workers available to them, public officials were quick to take advantage of the situation and in many locations inaugurated a major campaign of general housecleaning of their records, reports and files. Simple transcribing, refiling, and rearranging of cards and records were the first services to be operated. They called for little real skill be- yond the ability to read and write, but filled a tangible need of the sponsor- ing agencies. Satisfaction vfith the vrork accomplished, and confidence in the ability and character of the \TPA v^orkers as demonstrated in this class of proj- ects, proved an entering wedge for record programs of a higher type. Analysis of assessment records and tax data, and real property inventories were the sec- ond phase of the Record and Survey program. The growing efficiency of workers in these activities led to experimentation in the use of this group for the more technical v/ork of traffic surveys, census studies, and research in health, agriculture, and social science. Training of project workers vias rapid in this type of project and the improvement in work skills and in project operation and organization kept pace vd.th the increasing demands of public officials and edu- cational agencies for assistance in more and more highly technical research projects. 109 Professional Programs A third group of unemployed for whom the Division of Service Projects was re- sponsible was the professional and technical workers. Among these were doc- tors, dentists, nurses, teachers, librarians, lawyers, laboratory technicians, and many others. With the growing confidence of the public in the general WPA program, an increasing number of requests was received for types of ser- vices which required one or more of these professional and technical skills. Where labor was available to meet canraunity needs, professional projects were placed in operation. Recreation and adult education programs were among the first of this group to get under way. Later, nursery schools and rural li- brary centers were developed. Early planning in these fields sometimes failed to make full appraisal of the needs of the community and some public misunderstanding resulted. Assignments of large numbers of workers were made before detailed plans for their training had materialized. However, the pressure upon supervisors to produce an adequate program on a professional level compelled them to utilize every possible skill of the workers. As the program grew in size and experience was gained, the demands for these public programs became greater. To secure better coordination of activities and achieve economy of supervision, the many small local programs were consol- idated into county-wide, and later district-ivide, projects. Every available source of qualified supervision was tapped. Professional or.'janizations, colleges and universities were drawn upon for advice and direction. Leadei>- ship and teacher-training programs were initiated. The Recreation project opened a Summer Training Gamp for project workers and a year-round training school for supervisors and leaders. IVhere the early programs emphasized athletics and special events, vrith only a minimum of public participation, later programs made great progress in developing social recreation and in introducing activities for special age groups based upon study and observa- tion of their needs. In the field of Adult Education, great strides were made toward fitting the program to the needs of the adult pupils. Old formalized educational patterns were discarded for modem informal student-participation and group-participation methods. Work centers were established for informal teacher-training vfhich set new patterns for techniques in the training of adults. Nursery schools, though established for the children of low-income groups, advanced the cause of pro- gressive education by many years. Among other achievements, the nursery school program introduced the concept of educational care for the pre-school age child into the average homes of the average community. It vri.ll no longer be cons- sidered as the prerogative of the privileged few or a luxury reserved fcr the wealthy. Library and music programs rendered direct services to large groups of people who previously had little or no access to books or music. The standards of operation were on the highest professional level, and constant training and emphasis on standards brought personal achievement to the workers and much public acclaim for the programs. Other professional projects such as Art, Museum, and Writers seirved specialized groups of workers and appealed to limited groups in the community. Nevertheless, they made major contributions in their own programs and brought vdder appreciation for the fields 'nhldh they represented. no T:^''pes of Pro.jects Operated Projects in the Division of Service Projects covered all activities repre- sented by the skills of the available workers. After a short peidod of exper- imentation yn.th thousands of small local programs, it was found that the proj- ects grouped themselves naturally into three major fields. State— wide projects were then developed, and administrative and project organization patterns were established for their direction and operation. The programs which were most higjoly developed and most widely spread throughout the state wei^ as follows t In Welfare Services a> Production (1) Sevidng (2) Furniture and Shoe Repair b. Heeilth Services (1) General assistance to public hospitals, clinics and sanitoria (2) Assistance to schools and municipal health departments (3) Complete operation by WPA of two Tuber- culosis sanitoria, a Convalescent Home, and Venereal Disease Clinics (U) Vision and Hearing testing program c. School Lunch d. Housekeeping Aide Service e»" Child Protection Program 2. Research and Reccrd Projects a. Refiling and retranscribing of public records b. Surveys (1) Traffic, Land Use, Property Inventory and Tax Records (2) Sociological Studies: Recreation, Cost of Living, Economic History, and Juvenile Delinquency c. University Research: Chemistry, Agriculture, Biology and Electronics 111 d. Health Studies: Tuberculosis - Dental - Nutrition e. Historical Records Sixrvey 3* The Cultural Projects a« Adult Education b« Recreation c. Library Service d. Music e. Art, Craft and Museum f. Writers* g. Workers' Service Redirection to War Effort Early in 19 Al^ vdth the growing demands of the national defense program, the activities in the Seirvice Division were redirected to provide more intensive service to the Army and the Navy, local Civilian Defense Offices, the OPA and other War agencies. To expedite these activities three nation-vdde Cer- tified Defense Projects were placed in operation, - the Certified Research and Records Project, the Venereal Disease Control Program, and the National Defense Recreation Project. Under the special conditions of operation per- mitted Certified Defense Projects (later Certified War Projects), hours of work were extended beyond the usual I30 hours per month and a greater per- centage of non-certified workers was authorized. This permitted the employ- ment of an increased number of professional workers such as doctors, nurses, technicians, recreation leaders and research workers, and made it possible to give far greater service in the emergency than could have been rendered under the general regulations. a. Certified Research and Records Project Under the broad provisions of the Certified Research and Records Project, a series of rapid surveys was made for war agencies which were in need of basic data pertinent to the War effort. Among these were the Nation- wide Truck and Bus Survey for the Office of Defense Transportation, the inventory of Array Reserve Officers, Dextigraphing of Naturalization Rec- ords for the Department of Justice, and the clearance and revision of Birth Indices in areas heavily engaged in the War effort. Under a sep- arate phase of this program, the Army Mapping Project established three units for the production of aerial charts, and topographical and maneuver maps. These maps were for the immediate use of the armed forces and TT/ith the outbreak of war became of vital importance as technical aids in reconnaissance flights and other military operations. This project at- tained such a high standard of operation that it was awarded the Array-Navy "E" award on January 5, 194-3. At the close of the program this entire project was taken ovQf by tbo War Departdeat. 112 b. Nationr^wide Venereal Disease Control Program The Certified Venereal Disease Control Program provided for the expansion of the services of the former WPA Project which had been assisting the Chicago Board of Health. Under the liberalized rulings permitting longer hours of v.-ork and the employment of a higher ratio of non-certified tech- nical supervisors, this project was enabled to give major assistance in the examination of thousands of selectees, and to cooperate with the Amy and Navy in an intensive program of case-finding. VK.th the withdrawal of WPA workers. Federal funds under the Lanham Act were made available to continue this essential health service. c. Nation-wide Defense Recreation The Certified Defense Recreation Project was established to provide direct recreational services to Service lien's Centers, military posts and indus- trial defense workers. With the decreased nvunber of skilled workers avail- able for assignment during this period, it became necessary to take advan- tage of the liberalized policy regarding non-certified workers. Although the professional recreation field had been seriously depleted by calls from the Red Cross, it was possible to organize and operate twenty— eight centers for Service Men throughout the State and to assist the Special Services Officers at ten military and naval posts. This program did much to fill the heightened recreational needs of this critical period until the military authorities and civilian war agencies could organize their own programs. d. Visual Aid Services to the Army and Navy The Art Program was among the first to redirect its activities to the War effort. In fact, a complete conversion took place in every department of the former Art, Craft and lAiseum Project. All work for civilian agencies, and all activities in the Creative Arts, such as easel painting and sculp- ture, were discontinued. The efforts of the entire project were directed toward designing and producing graphic training aids for the Army and Navy. These included charts of airplane and torpedo parts, wood and plas- tic models of all types of equipment used in Array and Navy maneuvers, three dimensional panels for use in the training of radio operators, and many charts and models of a confident nature. When war was declared, this program was accelerated to keep pace with the rapidly developing military training program. The requests for these services were greater than could be met v/ith the steadily declining available labor file. However, the im- portance of these training devices to the war effort was fully recognized by the War and Navy Departments, and a number of Ordnance Depots and mili- tary and naval posts in Illinois established their own Visual Aid units, in some cases employing former WA technicians to direct and supervise them. Ccmmunity Benefits WPA services penetrated to every level of the social structure, serving the needy, the sick, school and government officials, and the music lover and art connoisseur. Vital records of births and deaths, citizenship and education, transfers of property, tax accounts and assessment files, police and fire 113 records, health statistics, water, electric and sanitary systems were retran- scribed and refiled. modernized and made more accessible to the public. Mil- lions of records vital to the orderly processes of democratic institutions were uncovered in the vaults, storage basements and filing rooms of public buildings v;here they had lain neglected for years because of lack of skill or lack of interest of each succeeding generation of public officials. By utilizing the idle man-power of thousands of white collar workers, efficient and up to date filing systems were established and public records brought into such orderly condition that when pre-war and vfar conditions made unpar- alleled demands on these records, government bureaus and departments were en- abled to meet them with little or no loss of time and a minimum of confusion. If no other type of service was rendered by unemployed workers, this alone would have justified the vast ejqsenditure of public funds and fully demon- strated the value of giving useful public work to the unemployed. This con- tribution to public administration was accomplished by the employment of only ten to twenty-five per cent of our certified workers. An outstanding example of the value of the Research Program is reflected in the accomplishments of the Chicago Land Use Survey. This project made a field inspection and recorded detailed information on every parcel of land in the city. The final report, compiled in a volume of 500 pages, entitled "Residental Chicago," was printed by the Chicago Planning Commission in August 1942. It has been recognized as the most comprehensive and authoritative rec- ord of city property ever compiled. It makes available to the people of Chicago vital information ^vhich id.ll be of help currently in the v/ar effort, and of tremendous benefit in planning for the post-^ar period. Even now it is of major assistance in determining the proposed location of war plants. After the war, when the city must face the task of restoring blighted areas of valuable land, the data secured by the sui^ey vdll form the basis of plans for parks, recreation facilities, public buildings, and for the re-zoning of residential and cctimercial areas. The hi^est percentage of employment in the Service Division was in the Wel- fare Program, v;here the Sewing Projects alone at the 1939 peak employed over 8,000 unskilled women, the School Lunch 4,666, Housekeeping Aide 5^593* and Health Services over 3,000. These workers produced over 35,000,000 articles of clothing in seven years, prepared and served 25,608,178 meals to school children between September 1939 and January 1943^ gave service in the homes of 302,519 needy families v/here the mother or homemaker was temporarily ill or incapacitated, and thousands of days of service to hospitals and clinics during the darkest years of the depression. Vifhat these services have meant in improved health and nutrition for thousands of children and adults in one state alone, only the future can tell. The drab "relief" clothing of the early depression gave place to new styles and color designs, illness and dis- couragement were alleviated by timely help in home and hospital, gains in weight, in mental alertness and in stamina among the thousands of children sej-^ed by the School Lunch Program are beyond calculation, and fear was lifted from the hearts of thousands of workers v/ho, for the first time in many years, were back on a job. The following paragraph is quoted from a report of the County Supervisor of a small Housekeeping Aide Project in Southern Illinois: "Be it said to the glory of WPA that altho the women reported for work so 'beat into the earth' - dirty, ragged, hungry - seemingly Yvithout hope - it wasn't long before they had clothes, shoes, went 114 clean, began to shcrv the effects of better food and more of it and vfalked with their heads up - looking the world in the face - unafraid once moret I think that was the most miraculous thing I have ever seen. And I have since noticed that when a worker has been A03'd (released from a project) many of them begin to retrograde, week by week they seem more careless of their appear- ance. But as soon as they go back to work, they perk ri^t up again. To know that you can pay your own way is certainly a great morale builder." One of the outstanding contributions which the Service Division made to commu- nity health, welfare and morale was the part it played during the Ohio River Flood of 1937. Here the Service Division worked hand in hand vdth the Division of Engineering and Construction to alleviate human suffering, minimize the physical affects of the disaster and to restore living conditions to normal. Workers in the sewing rooms, commodity depots, and in work shops throughout the State made, assembled, bundled and shipped large quantities of sandbags, used by constiTUction workers on levee protection, as well as clothing, food and med- ical supplies. All available women from the Housekeeping Aide and Serving Proj- ects in and near the stricken area were mobilized for service in the refugee camps, and in cooperation Avith the Illinois Bnergency Relief Commission, the American Red Cross, the Local and State Departments of Health, performed any service required in the emergency. They organized and operated canteen units and soup IcLtchens. At the local sewing projects thousands of garments, sheets and tovrels vrere made for immediate distribution. Buildings were cleaned for use as onergency hospitals, and WPA workers in the capacity of nurses' aides and attendants assisted in giving emergency health seirvices of all kinds. Af- ter the flood waters receded these workers went into hundreds of homes and cleaned and renovated both the buildings and the furniture. They assisted in the herculean task of rehabilitating public buildings and schools. They cared for the children, and for the sick, and were of major assistance in reestablish- ment of family and community life. In the Public Activities or Cultural Program services rendered were for the benefit of the general public. Althou^ the primary objective of these proj- ects was to malce educational and recreational services of various types more directly available to the underprivileged, there could be no separation of economic levels in educational classes, in the libraries, recreation centers, or at concerts or art exhibits. Such activities were open to the entire commu- nity, and it was not long before all groups and classes were participating. The task of organizing these services on a State-wide basis, of inducting and training thousands of semi-skilled and skilled workers for placement in posi- tions and activities never before experienced by most of them, and of interpre- tation and education of the communities in the value of these leisure time ac- tivities was enormous. The significant contribution of these services, over and above the direct enrichment of the life of the people, was the unity of the ccraraunity life which developed out of and around these activities. These things were not, however, accomplished without making some errors. Over- all community programs of such size and sc<^e had never before been launched by any agency - state or national. There v;as not sufficient technically trained personnel available from colleges and professional schools to staff the thousands of locations where certified workers were placed. Much of the super- vision was trained "on the job." The trial and error method v/as bound to bring 115 mistakes and public criticism. However, the staff profited from its mistakes and public criticism was healthful, as it pointed up weaknesses. By the end of two years an organizational pattern for these services was developed which stood the test of repeated quota adjustments and constant community analysis. The final test of the soundness of the program has been made. The services developed to improve the standards of health and nutrition for the underpriv- ileged and low income groups, and those designed to enrich the life of the community have so firmly demonstrated their worth that now, at the close of this social experiment, ^vith techniques perfected and organization stream- lined, the majority of Wk activities are being continued as permanent serv- ices in the communities. Out of 509 schools vri.th Wk operated lunch programs, A-IO are continuing, vd.th a considerable number of former WPA cooks and super- visors placed on the sponsors' pay roll. Under a plan of state— wide supervi- sion and assistance from the Illinois State Library, all but 5 of 92 War In- formation Centers are operating as the nucleus for permanent tax— supported libraries in rural communities which prior to the advent of ViTPA had no li- brary service of any kind. About half of the former Wk Gardening and Canning units vdll operate under local community leadership. In some cases, the County Boards of Commissioners have already raised the necessary eight or ten thousand dollars to guarantee the financial soundness of this food preservation program. One of the Visual Aids units is being taken over by the Array Air Corps, another by the Ninth Naval Command, and two by State Departments. Seven of our House- keeping Aide Units will continue operations under the former sponsors. Forty- nine communities vdll continue the Wk Recreation programs which vrere unknown and uiiheard of before 1936. Thousands of former WPA workers, taken from relief rolls, their self-respect restored and trained in new skills, will find their own way into these nev; and expanding public services. Their avn enthusiasm and the demand for their services, v;hich is slowly but steadily rising from every town and village that has had some experience with one or more of the Wk programs, constitute fac- tors of great social significance. The tremendous advance in technological improvement which has come from the War need precludes the possibility of the orderly absorption into civilian industry of all the millions of workers even- tually to be released from the War effort. Therefore, it is necessary to look to the ever expanding fields of public service to provide the channels of em- ployment for countless numbers of men and women in the post-War period. This will constitute the most important and most i^adily accessible reserve of job opportunities in the critical period of adjustment v;hich lies ahead. The organizational patterns and the tried and tested plans of operation are not stored away in the archives. These are present today in the civic con- sciousness of the community. The sponsoring groups, advisory committees, public officials and the rrorkers themselves, have the collective axperience which m.11. provide the blueprints for the future reservoir of public service 170 rk programs. 106 X MAJOR PROBLae AND CONCLUSIONS VDMINISTRATION Much of the success of administration of the WPA program in Illinois result- ed from the fact that personnel, particularly in key positions, was made up of persons of considerable experience in private business and who had served in the relief and vrork relief programs preceding the WPA. This ex- perience was particularly important during the early stages of the program, in that key personnel had knowledge of the proper course to pursue during the formative days when detailed instructions on matters of policy and pro- cedure could not keep pace with the rapid expansion of employment and oper- ating programs. The earlier organization structure was broken down into far too many sec- tions and units, resulting in an excessive number of supervisors, duplica- tion of functions, and lack of good administrative control. Later, a uni- form and simplified national organization stinicture was established. This plan of organization, vrhich provided for a minimum number of divisions, sec- tions and units and heads of each, did much to simplify and improve adminis- tration of the program. Since Illinois was one of the larger states in terms of WPA employment and of large area, decentralization of administration to districts proved a sound plan of operation. Project sponsors and workers themselves needed the close contact with persons of authority in the district offices in order that their needs could be served without the delays virhich would have oc cured had it been necessary that they contact only a State Office remote from their coinmunjties. It was not only proper but necessary that the public have a good understand- ing of the objectives and accomplishments of WPA in order that the program could operate smoothly. Therefore, the maintenance of good public relations played an important part in the operation of the program. While the release of information concerning objectives and program operations to the public through the press played an important part, the best avenue for developing and maintaining good public relations was good performance of project oper- ations and personal contacts of administrative and project supervisory em- ployees vdth the general public and project sponsors. Press releases on mat- ters of local interest were generally given better reception than those of state-wide character. While the V/PA never was given a Civil Service status, its methods of select- ing personnel were similar to the Civil Service process in that prospective employees were given appropriate interviews and examinations, and education and experience records v/ere verified before the persons were made available for appointment. These checks and balances in a large measure assured the appointment of personnel qualified to perform specific tasks. Although the matter of making administrative salary adjustments was general- ly handled vdth gDod judgment and under close control, it did not follow a recognized pl.an of progressive salaiy adjustment. It is believed that oper- 117 ation of a plan of progressive salary adjustment, supported by a system of rating or service reports, vrould have improved morale among employees and, consequently, resulted in higher administrative efficiency. While in-service training did take place as a by-product of administration and supervision, only in the project phase of the Division of Service Proj- ects v;as there a definite planned in-service training program. An in-ser- vice training program for personnel at all levels should have been started early in the program in order to bring out the best qualities of workers and develop supervisory, technical, and skilled capacities. The Safety Program played .in important part in minimizing huraoji suffering and loss of lives and property, and assisted materially in effecting the ef- ficient use of labor. The early practice of assigning project safety inr- spectors v/ho v;ere not adequately trained for the job proved to be in error. Subsequently, the safety organization was reduced in number, nnd inspection, education, and promotion of safety practices was placed in the hands of only well qualified safety engineers. At the sojne time, safe operation of proj- ects vras emphasized as the rcsixjnsibility of every person charged with super- vision of T/orfc. Steacfcr improvement in the Safety Progr:an resulted, and in the latter years the safety record of the Illinois Wk in terms of lost-time injuries and deaths compared favorably with other states of equal size oper- ating similar progr.nms. Inspection of project operations was a major function in the administration of the program. Experience proved that inspections in which the approach was that of reporting conditions .-and effecting subsequent administrative ac- tion from higher levels in the organization did not bring the best results. The results of inspections made by administrative personnel. State and Ms- trict Supervisors, and technicians were beneficial v/here the approach of the inspector was that of an advisor who made helpful criticisms and suggestions at the district level and wrote his report as a confirmation of the condi- tions found and the action taken. PLAI^miNG While there vfere a few locations in the state where public works planning had been done, such as for the Outer Drive in Chicago and for the lateral and trunk line sewer system of the City of Chicago, in general planning in neither preliminary nor detail form vfas in readiness when the emergency of the depression years was imminent. Therefore, a sufficient number of sound projects to which the thousands of unemployed could be quiclcLy assigned were not available. This, of course, was to be expected, since there had been no parallel unemployment situation in the history of the nation. The initial objective of the program was to put large numbers of people to work quickly. As a result, many so-called "made work" projects had to be developed and many projects of sound character were overloaded with workers in order to accomplish the objective. Efficiency dropped to a low level on these projects, as it was impossible to maintain the workers' interest in the job. Consequently, public criticism arose because of the low type of work being performed, the inefficiency of workers, and the overloaded condi- tion of projects. Later when it had been demonstrated to sponsors that the people employed by WPA were essentially no ■different than those employed in 118 i private industry and that with proper supeirvision and adequate materials and equipment good work could be accomplished, a new interest was shown and sponsors began to conceive broad as well as detailed plans for new vrork. Althou^ we continued to have difficulty in securing satisfactory detail plans for some construction v/ork, control was effected by providing an en- gineering review unit which carefully reviewed all plans and work was not authorised to start until plans had been approved. Similar lack of planning was felt in the early program of the Se3r\d.ce Divi- sion, since there v/as no substantial precedent for the manj' kinds of i/rork it was to perform and the methods under which it was to operate. Therefore, the initial expedient was to operate projects mainly in the fields of mak- ing clothing and other items for distribution to the needy, renovation work, cleaning of public buildings, etc., largely requiring the use of un- skilled labor. Gradually community interest was developed and community committcos began to participate in the planning of activities and programs. In addition, persons at the several levels of WPA administration - Central, Regional, State, and District Offices - furnished technical assistance and advanced nev: ideas and techniques in planning. The result of this combined effort was the initiation and operation of improved projects in the fields of Health and V/elfare, Education, Recreation, Music, Arts, Research and Records, utilizing almost evcrj' Idnd of occupationc?! skill available. It is significant that the most stable programs, rnd those which apparently became most deeply rooted, v;ere those vAiich drew the local communities into active participation in the early planning of prograjns and projects. FINANCE The Division of Finance carried a major part in the successful operation of the program. When consideration is given to the work involved in account- ing for time and payment of wages for a labor force that at one time reacl>- ed 257,000 and the record keeping and accounts necessary to the operation of several thousand projects, a tremendous task was accomplished. It had to operate in the beginning, particularly at the project site, with largely untrained personnel, and v;as under constant pressure to meet deadlines in the preparation of time reports, pay rolls, and reports. It was confronted with many difficult tfusks but none v^iich viere insurmountable. Time reports were prepared on a project basis. In counties where several projects were operated, there vras a duplication of timekeeping services and many separate time reports. The function of timekeeping and preparation of time reports on a county or area basis, with appropriate distribution of charges, rrould have simplified the job and resulted in reduced cost of such services. ELffLOBiSNT The lack of sufficient occupational information concerning the people ceiv tificd for VffA anployment was a definite handicap to good placement of work- ers and efficient operation, particularly in the carl;^'- da^s of the program. Only scanty information concerning education, vocational experience, apti- tudes and pl^sical condition vras obtained from the certifying agency and recorded in the files of the \VPA. As a result, v/orkers were frequently- placed in jobs for v.'hich thej' were not best fitted - the availability of all of the skills of a worker vrere not knovm and persons ivith undisclosed 119 physical handicaps were assigned to vrork beyond their capacity. With the in- auguration of the training prograjti, occupational interviews were given to all ^ workers and vocational information was obtained which made possible more accu- rate assignments to IVPA work and served as a source of information for place- ment of workers in training classes and for referral to jobs in private indus- try. This procedure should have been followed from the beginning of the pro- gram. Also, in order to safeguard the physical standards of workers, the services of competent examining physicians should have been furnished by the \VPA, either as members of its staff or under contract arrangement. Eligible v/orkers v;ero referred to the WPA by local relief agencies. The re- ferral of needy unemployed persons by the local relief authorities; the re- view, approval and certification by the certifying agency j and the final re- view and acceptance by the WPA - all provided checks and balances in determi- nation of need, but the total administrative cost of such a process in tho several agencies was far out of proportion to the results obtained. In the final analysis, the ^TPA made the determination of acceptance or rejection of certification and in many cases where doubt arose it was necessary to dupli- cate the reviews of the other agencies. Administration of the intake process would have been greatly simplified, the workers themselves would have been better served, and less administrative cost would have been involved if ap- plication for employment had been direct to the ?^A in the first instance. 1,'VPA workers ;vere paid a monthly "security wage." For a period, from July 1936 to July 1939, it was required that hourly rates of pay for persons en- gaged upon projects should be not less than the prevailing rates of pay for work of a similar nature in the same locality. Since there was at the same time a maximum monthly wage, there was considerable variation in the actual number of hours worked by the respective skills. Under this arrangement, the higher classes of skilled labor received higher hourly rates of pay and worked fewer hours than unskilled labor, whereas to successfully operate con- struction projects all skills should have worked the same number of hours. It was extremely difficult, under these conditions, to secure enough work hours from slcilled labor to properly support the greater number of hours of available unsl- lans of a similar character. This approach to the problem did much to improve the quality and efficiency of the program. # # # # 124 BnploymGnt provided by the WPA assisted in a largo measure in meeting the un- camployment problem of the depression years. Aside from the human benefits to workers themselves, this source of employment eased the local tax burden through lightening expenditures for direct relief, and made possible the con- struction of useful public works and the performance of public services of un- told value to local governmental agencies and the public welfare. Therefore, those of us who have watched the developnent of the V/PA program from its infan- cy, its mistakes and successes, its improvements in administration and operat- ing methods, its benefits to humanity, and its physical accomplishments, cannot help but be inclined toward a favorable appraisal. However, impartial apprais- als are evidenced in the hundreds of letters of testimony of ^froxkers and spon- sors, from the sm.allest hamlet to the largest city in the state, as exemplified beloiv: "WA NEEDS NO DEFENSE "Lately, numerous politicians and commentators ^^ath fewer facts than fancies at their disposal, have been walloping ViTPA as it is, under press of the war- created manpower shortage, about to die. This shall be no attempt to defend WPA. It needs no defense. It was bigger than its 2x4 critics ever could be and its good works v/iLl outlast their partisan rantings. "V7e speak only for Oglesby. ',Vhat was there vrrong about giving work to men who were out of work, work that ivould rehabilitate them and build up their heme cities, their communities? The work accomplished in all cases was con- structive, not destructive, and that is something that cannot be said for war expenditures. "This assertion can be made flatly from seven years' experience as sponsor's agent vdth the WPA. If there was boondoggling and loafing and waste, it v;as the sponsor's fault in almost every case, not a "/PA weakness. "Look around j'ou at Oglesby. Without WA there would be no northeast hi^way. We would still be a one-way town, doomed in perpetuity to suffer from that un- wholesome condition. "Look at the 11 miles of concrete curb and gutter. Do they help the appear- ance of your street and your residence? Do they enhance values and permit orderly tree planting and parkway developments? "Look at the concrete tennis courts. IVPA labor built them. "Consider the adult education sewing classes, the water leak survey which saves everyone in Oglesby money. Think about the land use survey and the foundation thereby created for planning and zoning. "This is no catalog of WPA accomplishments in Oglesby. This is a rough sketch, this is just part of the story. Wk did well by Oglesby. Oglesby is a better city because of WPA, and if, OTA, you arc about to pass from the scene, here's a salute to you." 125 Appendix A MNUAL OF RULES AND REGUUTIONS OF THE Y/ORK PROJECTS ADMINISTRATION AND ILLINOIS PROCEDURES DEPOSITORY - CHICAGO PUBLIC LIBR,\RY The Manual, of Rules and Regulations of the VJork Projects Adniinistration is a f our-volu.iie edition of basic policy and regulatory procedures for the or- ganization and operation of the V/ork Projects Administration. It cc .isists of the following volumes: Volume 1 - Organization and Administration Volume 2 - Project Planning and Operation Volume 3 - Employment Volume Lr - Finance Within the Uanual of Rules and Regulations v/ill be found Illinois Supple- mentation provided to supplSiiient the Manual ivhere necessary to effect local application, Illinois Supplomention is readily identified by the buff colored pages. Illinois Procedures, from the inception of the program to early in 19^1, were issued by the State Office in several forms such as Administrative Letters, Official Bulletins, etc. All such media wore superseded by Illinois Divisional Lettc^rs designed to contain non-recurring instructions, technical and ini'orma- tional data. Illinois Divisional Letters are serialized by functional subject as shovm belof"; and numbered in sequence by divisions: Illinois Administrator's Letters Engineering and Construction Letters Service Letters Training and Reemployment Letters Finance and Control Letters Employment Letters Supply Letters ILLINOIS ADliINISTRATOR'S LETTERS: Relate to matters of policy, overall prograin significance and specifically to the folloviing subjects- organization, personnel, "procedures, statistics, administrative budgets, office management and records. Also, in instances whore the subject matter of a divisional letter involved more than one division such letter ;vas, to avoid possible conflict of direction, issued in the Administrator's series. ILLINOIS ETIGIIJEERING AND CONSTRUCTION LETTERS: Project planning, project operations, safety, property and impersonal services, and other matters in the area of engineering and construction. A-1 ILLINOIS S2RVIC3 LETTERS: Project planning, operations, Lanham Act appli- cations, recreation, education, clerical services, health, feeding, clothing and child protection. ILLINOIS TRAINING AND REEtffLOYliIENT LETTERS: Vocational training, liaison with Federal Agencies and private employers regarding training and reemploy, lont activities. ILLBI0I3 FINANCE AND CONTROL LETTERS: Timekeeping, payrolls and other vouchers, property inventory racords smd reports, injury, compensation and dam- age claims, and accounting. ILLINOIS Sr/IPLOYj!,EI^T LETTERS: Eligibility and certification, occupational classification, assignment, terminations, conditions of employment, labor rela- tions and filing. ILLINOIS SUPPLY LETTERS: Activities of the Supply Section, i.e. acquisi- tion, storage, issuance, maintenance and disposition of property. During the final stages of the program no attempt was made to revise previously issued formal instructions to give effect to those in connection with the liquidation of the program. Such instructions, as required, viere made effective by means of correspondence or personal direction on the part of Division Heads in the State Office. The Chicago Public Libraiy lias been made the depository for the Manual of Rules and Regulations and Illinois Procedures. A-2 INDEX TO ILLINOIS FROCaOURSS jub.-ject Nunber ILLLNO IS ADMINIGTRATOK'o LSTTSRS Illinois Divisional Letters 1 Divisional Letters to Supersede Currently Active Conference Memorandum Iteris, Officicil Bu3J.etins, Accounting Control Menoranda, Etc. 2 Dual Family Bnployment 5 Cancellation of Contractual Tnaclc Services 6 Distribution of Illinois Divisional Letters 8 "I Am An Araerican Day" 10 Notice Dated 5/9/41 from the Administrator to Project Vfage Snployees Concerning National Defense Training Project lA Staff Changes 18 Smploj'raent Division Clearances v;ith the Illinois Emergency Relief CoMr.iission and the Illinois State Emplo^inent Service 21 V^orlc Sections 28 Interior Signs for Community Service Projects 29 Establishment and Use of the Occupational Title "Mattress Maker" in the Unsldlled "A" Vfage Class 36 Executive Order Restricting the Eligibility of Employees to take Civil Service Examinations and to be Certified to a Civil Service Position — ^Administrative Letter No. 11 39 Instructions for the Preparation of Form P-206, Estimate of District Budget Raquircmonts 43 Clarification of Responsibilities in Connection vath Processing Inactive V[PA Records Prior to iiicrofilraing 43 Assignment sind Timekeeping Procedure for the National Defense Vocational Training Project, O.P. 165-2-00-1 49 Revision of "Section C - Safety of 7/PA Trf-inees" of the "Manual of VfPA Procedures for the Operation of the National Defense Vocational Training Project" 50 Staff Cha:res 54 Disposition of Unused Materials Vfliich Have 3ccn Produced in Connection vdth Project Operations 55 Posting of Notices on Projects 58 Disposition of Federal Scrap from Sewing Projects 59 American Legion Convention 62 ^fTPA Forms 420, "i:c:iedulc of Titles and Sclaries for Project Supervisory Eiuployees" 63 Administrative Letter Ho. 7, Revised, and Administi-ative Letter No. 7, Revised, Supplement No. 1 64 Staff Ch.'uiges 65 Statement of project Estimate Detail - OTA Form 701, Revised 67 Staff Changes 69 Community Facilities Bill 70 Sstablisiiment and Use of the Occupational Title "iticrofilm ilachine Operator" in the Intermediate Wage Class 72 A-3 Subject Number ILLINOIS ADMMISTRATOR'S LSTTERS , Continued Illinois Public Aid Coiimdssion 73 Staff Appointments - Division of Training and Re-employment 74 5taff Changes 75 Commissioner's Letter ilo. 26 - Discrimination Against Vforkers Because of Race, Creed, Color ^ or National Origin 77 Establishment of the Division of Training and Re-employment 80 Approved Project Supervisory Titles and Grades - Finance Division 83 Repli3S to Requests for Verification of Employment from U.S. Civil Service Commission (Forms 308^), and from the Chief of Office, The Panama Canal BU Application of the Provisions of the lianual of Rules and Regulations 87 Staff Changes 94 Staff Changes 95 Project Organization 96 Discontinuance of Official Projects Approved Under the Ei.-ierf:ency Relief Appropriation Act of 1938 97 Use of Central Office Divisional Letters and Technical Circulars 103 Central Office Instructions on Certified National Defense Projects Applicable to Both the Divisions of Operations ai^.d Community Service Programs 104 Sstablisl-mient and Use of the Occupational Titles Principal Group Leader, Senior Group Leader, Group Leader, Cook, and Junior Cook 105 Procedure for the Operation of the National Certified Defense Recreation Progi-am Project, O.P. No. 265-2-00-2, State Application No. 19006 109 Payment of Vfeges in Addition to the "Schedule of Monthly Earnings" 110 Revised Instructions on Accounting, Reporting and DccUi.ient Preparation 111 Regional Office Memorandum No. RA-64 (Reemployment of Certified Pcr:;ons) 112 Indebtedness of Project Employees 113 Procedure for the Purchase of Postage Stamps 114 Preparation of Assi^Timent and Termination Documents — Transfers Between Appointive Staffs and Projects 118 General Letter No. 321, Supplement No. 2 (Revised List of Occupations for National Defense Industries 2?.ploymcnt Register) and General Letter No. 321, Supplement No. 3, (Revisions to List of Occupations for National Defense Industries Employment Register 119 Staff Changes 120 Establishment ond Use of the Occupational Titles "Institutional Training Aide" and "WPA In-Plant Trainee" 121 Christmas Mailing 122 YJinter Hazards 124 Procedure for Project Supervisory Employees on Requests for Information 128 Division of Responsibility Between the Division of Employment and the Division of Training and Rc-omployment 130 Commissioner's Letter No. 33 (Wk In-Plant Prccmployment Training) 131 A-4 Sub.jcct Number I LLINOIS AD.JMISTRATOR'3 L3TTSRS . Continued Staff Chanses Division of Trainin?, and Reemplojinent 133 Furnishing a List of Administrative Er.iployees loalcin^ Retirement Payments or Ulligible for Retirement - Administrative Letter No. 16 135 Christr.ias Gifts I36 Procure.'T.ent Division — (J. S. Treasury Departnent 137 Conraissioner's Letter No. 35 (Operation of Nation-VJide Project for Trai.nins of Airport Servicemen) 138 Staff Changes Division of anployir.ent 143 Driveways and Service \7alks Located on Street Ri^hts-Ci-VJay liu Radio Scripts 145 Staff Changes Division of Community Service Programs 147 Staff Chanjes Division of Employment 143 Priorities in Smployment - (1) Private Zknployiient, (2) V/TA In-Plant Training, (3) Airport Servicemen Training, and (4) Vocational School Training 149 Release of Information Concerning Defense Activities 150 Contributions to Sponsors by Project Employees 151 Photographs - Aerial and High :-:ievation 152 Telephone Toll Credit Cards 153 Performance of Duties on llore thai: One Official Project in Related Fields of the Division of Coi.ununity Service Programs 155 Staff Changes Division of Community Service Programs I56 Commissioner's Letter No. 34 (Facilitating Placements in Private or Other pjblic Zmployriient ) 159 Preparation of Travel Authorizations and Vouchers Pursuant to the Provisions of Illinois Supplementation, Page 1.6.008 (Revised January 2?, 1942) to Chapter 6, Volume I, ilanual of Rules and Regulations I6I Staff Changes 162 US0-V7PA Relationship I63 Elimination of project Non-Labor Control, VJPA Form 769, and Centralization of the Preparation of Certain V.TA Forms 744 " and 746 166 Memorandum from iir. F. H. Dryden, dated F^^braary 5j 1942, Re: Amendment to Civil Service Retirement Act 168 Future Releases on Spanish Classes for Army or Navy Personnel 171 Staff Changes - District No. 2 173 Changes in Per Diem Rates £ind in Travel Authorization (V.TA Form 210) 174 Washington's Birthday, February 22, 1942 175 YJPA Forms 707-l-"JR ajid 707-2-V;'R, Project Financial Status Reports 177 Transfer or Liquidation of Encumbrances and Obligations on Superseded Projects 178 Insurance Available to Persons in the Armed Forces 179 Regional Office ::euorandu;n No. RA-C4 (Transfer of Certified persons to Agricultural Eraployriont) 180 Handling of Requests for the V'ithholding from Publication of Information of Aid to the Enemy 181 Change in Designation of Community Sci-vice Progra:iis Division 182 A-5 Subject Number I LLINOIS ADIiINI3TFJi.T0R'S LST TSRS, Continued Staff Changes - District No. 6 183 Inter-State Assi£,rm\ents (Regional Menorand'jun No. RA-o3) 134 Consei'\'-ation of Tires and Tubes for Automotive and other Zquipment 187 Leave for Voting 183 Staff Changes 129 Coinndss loner's Letter No. 37 (Procedure for the Operation of Nation-.Tide Project for Vocational Training of Defense "forkers) 190 Reporting Items Acceptable for Credit as Sponsors' Contributions 192 Religious Holidays in April 194 Staff Change - Division of Operations - State Office 195 Building Construction 19° Procedure on Reporting Complaints of Disloyalty to the Government of the United States 197 GormTdssioner's Letter No. 37, Supplement No. 1 (Auxiliary Shop Traiining ProcTain) 198 Certification of Vouchers 199 Typev.Titers 200 Survey and Disposition of Surplus Property 202 Organization of the Service Division in the State and District Offices 203 Staff Changes - District No. 6 206 Requireaents for the Clothing PrograiA 208 Project Organisation and the Submission of Applications 209 Requirements for War Services Program 210 Staff Change - Division of Operations - District 1 211 Staff Changes - Division of SiplojTiient 212 Staff Chan:-,v-; - District No. 6 214 National Emploj-Tncnt Week 215 Staff Change - Divioicn of Operations - State Office 21? Vacations 218 Telephone Service and Equipment CurtaiLnent 219 Memorial Day, May 30, 1942 223 Staff Changes - District No. 3 224 Aid to "JFA '//orkcrs in Securing 3irth Certificates 225 Eligibility for Veterans' Preference of Persons Serving in the Armed Forces During the Present Ifer - Comirlssioner's Letter No. 5S 226 Furniture on Loan from Illinois Public Aid Comiviission 22? Emergency E:<.enptions from Established Hours of VJork 228 Eraergency Collection of Scrap Metals and Rubber 229 Change in Reporting Period of VJPA Form 211 - Project Supervisory Employees 230 Requisitioning Materials Stocked by the Procurement Division in "ashington 231 ilaximuj.i price Regulation No". 134 232 Requirements for Child Protection Program 234 Physical Inventories as of June 30, 1942 235 Establishment of V/ork Projects for State-Wide Programs in the Service Division 236 Staff Changes - District No. 6 23? A-6 Subject Number ILLINOIS ADiaN ISTRAT OR'S I.^TTI:;RS . Continued Requirements for Health Program 238 Requirements for Feeding Program 239 Employment Letter No, 35> "Specification Sheets for Supervisory- Titles" 2A0 Additions, Revisions, and Deletions - Schedule of Staindard Project Wage Occupational Titles and Schedule of Standard Project Supervisory Titles (Appendices A and B of Operating Procedure No. E-9, Respectively) 241 Staff Changes - District No. 5 242 Travel Documents Affected by Change in Fiscal Year 244- Clearances Affecting Special VJage Adjustments, Supervisory Titles and Salaries, and Exemptions with Respect to Hours of Work and the 95-5 Ratio Required Prior to Initiating Operations on a Continuing or Superseding Project 245 Staff Changes - District No. 5 247 Annual Leave Policy 250 Exemptions for the Standard Limitation on Hours of Tcrlc 254 Sov.dng Machines for the American Red Cross 255 Independence Day, July 4, 1942 256 Preparation of Travel Vouchers 257 Staff Changes - Division of Training and ReemplojTnent 259 Staff and Functional Chui^ef; - Division of Finance - Effective July 1, 1942 260 Revised Occupational Specification Sheet for the Standard Project ?'age Occupational Title "Helper (Non-Construction)" 261 Office Forms 262 Civil Service Retireiaent System (Commissioner's Letter No. 51 and Supplements Nos. 1, 2, and 3) 264 VJPA Forms 401 for Project Supervisory Employees Requiring State Ad:.-Linistrator' 3 Approval Prior to Assii^nment 265 Abolishment of District Ko. 1 Office - Roclcford 266 Staff Changes - Administrative 26? General Order No. 3, Revised June 12, 1942 268 Consei'vation of Motor Equipuient 269 Planning of Division of Operations Program 271 Safety Section 274 Information Regarding Certain Civil Service Privileges (Administrative Letter No. 22) 275 Disposition of Scrap Rubber 276 Staff Changes - Supply Section 277 Purchase of Transportation and Pullman Service 278 Revised "Schedule of Standard Titles and Salaries for Project Supervisory Employees" Applicable to the Service Division and Training and Reemployment Division 279 Long Distance Telephone Calls 281 Staff Change - Division of Finance 282 44th National Sncajnpmeiit of the United Spanish ''Jar Veterans 283 Scheduling of Project Operations and Allowable Hours of VJork 284 Consolidation of Supply Section Activities 285 Staff Change - Administrative Offices 266 A-7 Subject Number ILLINOIS ADMINISTItATOR ' 3 LlZTTIilRS , Continued Per Diem Rates 288 Change of Address, District Office, District No. 2 289 Periodic Review of Need,, EFiA Act, Fiscal Year, 1943 290 Official Station Provisions and Method of Distributing Re iiiibur sable Travel Expense Incurred by Project Super-visory Employees Author- ized to Perform Supervisory Functions on More than One Official Project or llore than One Vfork Project 291 Agricultural Mark3ting Adrrdnistration 292 Address to be Sho^vn on Envelopes Addressed to State Office 293 Form AD-154, Request for Travel Authorization 295 Labor Day, September 7, 19^2 296 Exemptions from the Standard Hours of Work Linutation on Division of Operations Projects Sponsored by the V.'ar or Navy Department 297 V'Jar Service Transfers and Appointments 298 Staff Change - Division of Finance 299 Change of Address, District Office, District No. 5 300 Change in Certification Required on Travel Vouchers 301 Staff Changes - District No. U, Division of Operations 302 Religious Holidays in September 303 Staff Changes - District No. 6, Division of Employment 304 Consolidation of Sub-Projects of the State-VJide Certified Research and Records Project by Program 306 Conser'/ation of Rubber 307 Revised Occupational Specification Sheet for the Standard Project VJage Occupational Title "Cloth Cutter (power Machines)" 308 Organization of the State Administrative Office 309 Staff Changes - Finance Division 310 Staff Change - Division of Finance and Control 311 Annual Fire Prevention V'eek - October 4 to 10 312 Staff Change - Administrative 313 Applications to OPA for Tires 314 Staff Change - Office of the Administrator 315 Staff Change - District No. 2, Division of ^Engineering cjid Construction 316 Staff Change - Division of Training and Reemployi;ient 317 Additions, RevisioiiS, and Deletions - Schedule of Standard Project ■'Jage Occupational Titles (^^ppendix A of Operating Procedure No. E-9) 318 Staff Change - State Office, Division of Employment 319 Leave for Voting 320 State-'7ide Defense Health and Welfare Project, O.P. 365-1-54-8 321 Establisl'iment of Accident Control Boards 322 lionthly Evaluation of Certification Processes 323 Use of "Official Project Number" for Assigiiment Purposes 325 Nevjspaper Clippings on \i?k Activities 326 Elimination of Rental Charges on Portable Building Panels 327 Comirdssioner's Letter No. 71 (Agreement of the Social Security Board and VJork Projects Adndnistration Concerning Use of the Available Labor on VJPA Rolls) 328 Child Protection Program, O.P. 365-1-54-8 329 A-8 Sub.i3ct Number ILL INOIS ADIilJ'JISTRr'vTOR'S LETTERS . Continued Procedure for "Supervisory Employees" on Requests for Information 330 Release of Official Information or Records of the Illinois VJork Projects udivinistration 331 Reviev; of Overhead Labor Costs of VJPA Projects 332 Armistice Day aiid Thanlcs giving Day 333 Application for Gasoline Rationing Books Other than "a" 334 Illinois Adjninistrator's Letters - Discontinurince of Statistical Series 335 Fuel Oil Rationing 336 Investigation of Alleged Irregularities 337 Stcff Change - Division of Sei-vice Projects 338 Special Interviewing and Placement program (Identification of WA Form 451 ) 339 Participation of VfPA Appointive and Supervisory Employees in a Voluntary Pay Roll Allotment Plan for the Purciiase of United States Defense Savings Bonds - Series S 3A-0 Staff Change - District No. 5j Division of Service Projects 341 Transfer of Heavy Equipment , Supply Fund O^-Jned 342 Preparation and Submission of Project Applications 343 Painting of Job Ap};'Urtenance3 and Equipment 344 Quarterly Report on Use of Penalty Privilege 345 Project Er.iplo;;ment H.andbook 346 Fleet Certificate of War Necessity 347 Eliioination of Rental Charges on Certain Mnor Equipment 348 Christmas Day, December 25, 1942, and New Year's Day, Jai.uary 1, 1943 349 Continuance of Official Projects Approved Under the ERA Act of 1939 351 Staff Appointment 352 Establishnent of State Division of Supply 353 Annual Leave Involving Travel Between December 18, 1942 and January 10, 1943 354 Staff Change - District No. 3, Division of Engineering and Construction 356 Mage Payments During the Christinas Fsriod 357 Registration of Employees of VJork Projects Adriiinistration for Selective Training and Service 358 amendment to Para^Taphs 8, 13, 29, 92, 93, and 94 of the Standardized Government Travel Regulations 359 Termnation of tlie Review of Need and the Certification Programs; Future Responsibilities of the Intake and Certification Section; and Procedure for Re-setting Division of Employment Files 360 Consolidation of Dir.trict Areas 361 Staff Change - Division of Training and Reemployment 362 Poli.cy of the Training and Reemployment Division for Placement of Other than Certified V.'orkors 364 Office Hours 365 Semi -Annual Inventory Report - Projects, Vifarehouscs, and Administrative Offices and Special Report of Typewriters 366 Abolishiiient of District No. 3 Office - Chicago 367 A-9 Sub.loct Nuraber ILLINOIS rJ)I.IINIST?u^TQR'3 LETTERS , Continued Processing of Project Applications Submitted Under the L'lnliani Act 369 Minimati Assigned Hours of Work - Project Supervisory Employees 370 Surrender of Gasoline Rationing Books Other than "A" 371 Property of Service Division Projects \Tnich May Be Left on Projects of Sponsors and Co-Sponsors on Custodial RGceipt 372 Reports of Survey - Designation of Survey Officers and Routing of Survey Docuiaents, V.TA Forms 715 373 Retirement of Inactive Project Field Records 375 Inter-Project Transfer and Termination Procedure 376 Staff Change - Field Finajice Office 377 Removal of Project Signs 37S Preparation and Routing of "ffA Forms 210, Travel Authorization, Routing of Standard Form 1012, Travel Voucher 379 Staff Change - Division of Training and Reemployment 380 Washington's Birthday, Ilonday, February 22, 19^3 381 Staff Change - State Division of Supply 382 Telegrams 383 Staff Change - Safety Section 384 Staff and Address Change - Field Finance Office 385 Staff Change - Eniplo;)'ment Division 386 ILLINOIS ADMINISTRATOR'S LETTJES - STATISTICAL SERIES Release of Statistical Procedures in the I'anual of Rules and Regulations, Statistical Series in Administrator's Letters and Statement of Adininistrative Policies and Rules Governing Release of Statistical Data 1 Discontinuation of Defense Supervisory Employment by Eripioyment Officers 2 Preparation of Report on Public Participation in the VfPA School Lunch Program, DPS Form 22 3 "Report of Public Participation in V/PA Classes and Related Activities", Wk Form 380 8 Change in Reporting Day of Weekly Report of Projects VJ'orking in Excess of Standard Limitations of Hours 1/+ Instructions for the Preparation of Form DP-200R, "Llonthly Report of Certification, Cancellation, Revievj of Need, aiid Number of Certified Persons" 19 Preparation of Form DP-233 (2.1842), "VJeekly Report of the Number of Certified Persons Aviaiting Assigament to '.^/PA, by County and Sex" ' 21 Reporting on '.TPA Form 732 for the Auxiliary Shop Training Program 22 Revision in Methods of Preparing Form DP-288 (5.1542), "Number of Trainees Previously Employed by VJPA on Defense Projects for Vocational School, Auxiliary Shop, In-Plant Preemploynent, and Airport Ser^^Lcemen Trainees, by Emplojrment Status, Race and Sex" 24 Special Report of "JPA Educational and Recreational Services Rendered for Personnel of Naval Stations 25 A-10 Subject Nimiber ILLINOIS .IDIIINISmiTOR'S LZTT7JIS - STATISTICAL SIlRTSS , Continued Revised Routing of WPa Form 732 aiid VJPA Form 732a, "Weekly Report of Sraploj-Tient on VIPA Projects" 26 Revision in Instructions for Preparing V-TA Form 732, "Weekly EmnlojiTient Count" for Projects Operated by the Division of Training and Reemployment 27 Special Report of Trainees Available for Referral to Private or Public Employment on August 18, 1942, by Last Type of Training Received and Last Course Taken on Vocational School Training Projects 28 Vfeekly Employment Reports for Project Wage Employees Assigned to Mere Than One Official Project 29 Vfeckly Employment Reports for Activity Units of the '7ar Services Project, Official Project No. 265-1-54-158 30 Discontinuance of tho Preparation of "fPA Forms 732 for Non- Certified Defense Work Sections 31 ILLINOIS ENGIIvIEERINGr km CONSTRUCTION LETTERS (Nos. 1 to 99, inclusive, issued as ILLINOIS "OPSR.VTIONS LETTERS) Project Applic dtions Involved in Skilled Labor and Availability of Skilled Labor 1 Street IlarL-ars and Traffic Control Lines and Signals 2 Defense Housing Projects 3 Projects Sponsored by Illinois iiilitary and Naval Department U Project performance llecord for Sponsors 8 Certified National Defense-Health and Sanitation Projects 9 Civil Flying Schools Under War Department Contract 10 Certified National Defense Strategic Highv/aj''s Projects 12 Storage of Property Ovviied by Projects 13 Trails port at ion Between Units Within a Project 14 Discontinuance of Supply Fund Direct Service Account 2-21 16 Testing V'ater Pipe 19 Excavation in Deep Trenches 22 VJater Mains - Fire Insurance Rates - Water V/orks Requirements for Tovms with Population 1,000 or Less 23 Concrete Sidewalk Construction 24 Storage of Gasoline 25 Spec5-fic&tions for Cast Iron Pipe to be Purch.-sed from Federal Funds 26 Project Identification Signs 27 Non-Certified National Defense Projects 29 Discontinuance of Form P-96, Fiequisition Record 30 Form Ties 31 Pipe Laying 33 Eligibility of Area-7ide Constructions Projects 34 Building Grades 35 Work Involving Private Property - County-VJide Blani'.et Project Proposals 36 Use of Federal Materials on Closed Projects 37 A-11 Subject ILLINOIS EMC'IIGERING AI-JD CONSTRUCTION LZTTERS, Continued Number VJPA Project Produced Crushed Stone Placing Filtei- liedia Conservation of Carrier Eciuipment Engineering Letters Nos 17, 18, and 20 Chaii^es in Specifications for Chain Linlc Fence Suggested by the Office of Production Management Filter liedia Engineering Letter No, 21, Sponsorship of 'i7PA Projects on VJar Department Leased Airfields Certified National Defense Access Roads Projects Execution of Form PD-73 Trench and Tunnel Shoring Revision of Form P-132 (2.1141);, "Sponsor's Work Order and Certificate" Easements and Permits for '7ork Involving Railroad Property- Standard limimiLm Specifications for Rural Highv;ays G12-16994 - Construction of Ne^v asid Rehabilitation of licisting School iVater Supplies Abandoned Street Car Trades Removal Sraergency Disaster Project Preference Rating for ilaterials Used for Repairs, Maintenance and Operating Supplies Safeguarding Explosives Specifications for Construction Materials Specifications for Component Parts of Concrete Specifications for Road i.Iaterials Specifications for Lumber and Timber Specifications for Building Materials Specifications for Electrical and Plumbing Supplies Specifications for Sevjer and Culvert Pipe, etc. Specifications for :]isc3llaneous iiaterials Certified National Defense Access Road Projects Map-Reports of VIFA Road-V'ork Accomplishment Preparation of Report of Accomplisliment, TfPA Form 375, on Projects of the Division of Operations Procurement of Motor Vehicles, Tires and Tubes Summary of Procedures Applicable to the Establis'iment of Certified National Defense Status of "flPA Projects Operated by the Operations Division Deliveries of D;mamite and Exploders Disposition of Waste Iiaterials Construction of Dams Construction Projects Vital to the War Effort Licenses for Purchasing and Handling Explosives Release for Operation and Control of Projects or V/ork Sections Thereof War Production Board Constinaction Conservation Order L-Al Assistance to Contractors in Securing Preference Rating Order for Purchase of Equipment 39 AO a u U7 48 U9 51 52 54 57 62 63 65 69 70 71 72 73 74 75 76 77 78 79 80 81 82 84 85 86 87 88 89 91 92 93 A-12 Subject Niomber ILLLNOIS EriGPIEjEING kW CONSTRUCTION LZTTSRS . Continued Release of V'ar Department Coranunications Relative to Certified National Defense Projects 94 Application of Land Grant Freight Rates 95 Routing of Division of Ofierations Mail - District No. 1 96 Restriction on Use of Bituminous Road Materials - Engineering Letter No. 31 ai-^.d Supple;,-ents, Nos. 1 and 2 93 Revision in Procedure for Reviewing and Routing Various Forms and Reports - Division of Operations 99 Monthly SstLiaate of Project Non-Labor incumbrances and Preparation of Form P-214 100 Office of Defense Transportation, General Order No. 21, Consei-^ration of iiotor 3quip::i.ent 101 Processing of Applications for IVar Public Vforks Financed from Lanhai.1 Act Funds 102 Truck and Equipment Rental - Vendor Owned - Contract Basis 103 Disposition of Waste Materials 104 Preparation and oubj.dssion of Report of physical Progress on Certified I7ar Projects of the Division of Engineering and Construction on VTA Form 370 (Revised September 19, 1942) 105 Abolishing of District Offices 106 - Daily Activity Report by Area Superintendents 10? - Liquidation of projects - Final Inspection Reports 108 VTPk VJork Financed v/ith iiotoi- Fuel Tax Funds 109 ILLINOIS ENGL\:EERD^'G AIO CONSTRUCTION LETTERS - SAFETY SERIES (Nos. 1 to 63, inclusive, issued as ILLINOIS OPERATIONS LETTERS SAFETY S:i::;iES) Cranlving Gasoline Engines Fire Protection Protective Sai'ety Equipment Annual Fire Prevention Week - October 5th to 11th - Fire Hazard Survey Annual Fire Prevention Week - October 5th to 11th - Fire Drills Annual Fire Prevention Week - October 5th to 11th - Fire Extinguishers Annual Fire Prevention VJeek - October 5th to 11th - Reporting of Fires Safety Bulletins Inspection, Certification and Operation of Trucks Transportation of YJorkers To All Superintendents and Foremen Demolition Road and Street Construction Tree Cutting and Trimming Women's Projects Work Camps Co.mmodity Distribution 5 8 10 12 13 14 15 16 17 18 19 20 24 25 26 27 28 A-13 Subject NujTiber ILLINOIS ENGINZERBIG AI'ID COMSTRUCTION LETTERS - ShF3TY S3RIS3 , Continued i/Tatchmen and Flagmen 29 Snake Bite 30 Sunburn, Sunstroke, and Heat Exhaustion 32 Tools 34 Gravel Pits and Trenches 36 Intoxication 37 High Voltage Lines 38 Winter Hazards 39 Tunnel Vfork 40 Specifications for protective Hats 41 Airport Construction and Improvements 42 Mattress Projects 43 Use and Care Of and Specifications for Portable Sanitary Drinkin/j Fountains 44 Specifications for Safety Cans for Gasoline, Naphtha, Etc. 46 Specifications for Safety Belts and Shock Absorbers for Safety Belts 47 Crafts Production projects (vfoodv/orking Shops and Woodworking Machines) 48 Specifications for Sodium Chloride Tablets 49 Quarry Op-sr^tions ' 50 Handling Asphalt and Tar 51 Specifications for Liquid Fungicide 52 Specifications for Viooden Tools for Blasting Operations 53 Control of Accidents Resulting in liinor Injuries 54 Instructions to VJorkers in Military, Naval, or Armed Guard Areas 55 Fire Hazards in Warehouses, Garages, and Faint Shops 58 Specifications for First Aid, Burn Treatment, and Snal-ce-Bite Kits and Kit Contents 59 Protection of Workers Engaged in Work Involving Hazards V.Tiich May Result in Dromiing 60 Routing of Accident Report, v.rpA Form 351 61 Safety in Machine Shop VJelding Training 62 Trial Blackout, Wednesday, August 12, 1942 from 10:00 P.M. to 10:30 P.M. 63 Safe Practices on Construction Work 64 Steam Boilers 65 Specifications for Blasting Machines, Rheostats, Etc, 66 Specifications for Goggles 67 Poison Ivy and Poison Sumac 68 Handling Explosives 69 ILLINOIS SERVICE LETTERS (Nos. 1 to 46, inclusive, issued as ILLINOIS COIDIUWITY SERVICE LETTERS) Release of Sewing Room Equipment to the American Red Cross and Bundles for Britain, Inc. 1 Policy for Participation in National Defense by Community Service PrOiTrains Division 2 A-14 Subject Niinber ILLINOIS SERVICE LSTT5RS . Continued Processing of Cotton fop Coniforter-Making 3 Construction of Home-Guard Uniforms k Reimbursement to 3e'/dng Projects for Textiles Used in Making Uniforms for Other Projects- 5 Housekeeping Aide Projects 6 Recreation Service for Military Forces 7 Costurae-Halcing on Sev/ing Projects 8 Restrictions on Use of Surplus Marketing Administration Cotton and Cotton Textiles 9 Procurement of Board and Lodging for V.TA Employees Attending Training Conferences 10 Supplemental^ Assistance by Housekeeping Aide Projects 11 Operating Policies Pertaining to Sewing Projects 12 Operating Records for Community Service Programs 13 Operating Records for Community Service Programs - Research and Records Section 15 Operating Records for Conmunity Servica Programs - 'Workers Seirvice Project 16 Operating Records for Coramunity Service Programs - Uusic Project 1? Operating Records for Community Service Programs - Adult Education and Nursery School Project 18 Operating Records for Community Service Programs - Visual Aid and Liuseuin Extension and Assistance Projects 21 Operating Records for Community Service Programs - Instructions for the Preparation of Form DPS-V.H.-27 and 27A, Report of Accomplishments on the Vision and Hearing Project 23 Operating Records for Community Service Programs - Writers Project 2U Operating Records for Community Service Programs - Art smd Craft Project 25 Operating Records for Community Service Programs - Health Service Projects 26 Operating Records for Community Service Programs - Library Project 27 Operating Records for Community Service Programs - Dietary Project 30 Textile Inventories 33 Plans for the Organization and Development of the National Citizenship Education Program 34 Operating Procedure Memoraxidum No. 152 - Revision of Operating Procedure No. G-1 - Section 87, Sewing, Mattress, and Comforter Projects 37 Program for Clerical Assistance to State and Local Registrars of Vital Statistics in Meeting Increased Demand for Birth Registrations Occasioned by the National Defense Program 39 Community Sei'vice Letter No. 119 - Community School Lunch Programs /J Identification for Nursery School and Play School Children 42 Deletion of the Specification "Impregnated 3uckram" from Book Requisitions 43 Current List of Community Service Teclinical Circulars 44 Operating Procedure for the Illinois Writers Project 45 Operating Records for Service Programs 47 A-15 Sub.1e.c t Number ILLINOIS SSIIVICE LETTERS , Continued Consolidation of Surplus Marketing Adjiiinisti^ation, Agricultural Marketing Service and Cormiodity Exchange Administration, Now KnoiTO as Agricultural Marketing Administration AB Requisitions for Books 49 format and Routing of Correspondence in the Service Division 50 Requests for VJar Assistance Service 51 Participation in Victory Gardens 52 Routing of Service Division Mail - District No. 1 53 Form S-101 - Job Schedule 54 Operating Records for Service Programs Housekeeping Aide Phase Including Housekeeping Clinics 55 State-lVide War Services Project, Official Project No. 265-1-54-158 56 Operating Records for Service Division - School Lunch, Food Production and Preservation 57 State-V;ide Health Project, Official Project No. 265-1-54-155 58 State-Wide Feeding Project, Official Project No. 265-1-54-135 60 3tate-47ide Clothing Project, Official Project No. 165-1-54-140 61 Form S-102 - Progress and Control Report 62 Release from the Agricultural Marketing Administration with Relation to the Support Through. Allocation of Commodities for School Lunch Programs 63 Control of Project Non-Labor Expenditures - Service Division 64 Child Protection Program 65 Functions, Change of Titles and Routing of Correspondence and Documents 66 ILLINOIS TRAINDIG A^ REEMPLOYMENT LETTERS Training and Reemployment Letter No. 2, (Transmittal of List of Occupations Approved by the Office of Production Management for Vocational Training Courses for Defense Workers ) 2 Washington Office Training and Reemployment Letter No. 3 Facilitating Placements of Certified Persons in Railroad Employraent Through the United States Railroad Retirement Board 3 Training aiid Reemployment Letter No. 5> (Regional Labor Supply Conr.iittees) 4 Training and Reemployment Letter No. 1, (Availability of Labor MarJcet Information from Eriiployr.ient Service) 5 Form ISES-245> Referral and Report of Enrollment in Defense Training Course 7 Training and Reemplojnnent Letter No. 7j (State and Local Councils of Administrators - Relationship v/ith the Work Projects Administration) 8 ' Training and Reemployment Letter No. 7 - Supplement No. 1, (state and Local Councils of AA-iinistrators - Relationship Tfith the Work Projects Administration) 9 Training and Reemployment Letter No. 2, Supplement No. 1, (Transmittal of List of Occupations Approved by the Office of Production Manage- ment for Vocational Training Courses for Defense Vi'orkers) 10 A-16 Subject ^ Number ILLDTOIS TRAININCr AMD RSEIIPLOYliSNT LSTTSR3 , Continued Trainin.fj and Reemplojinent Letter No. 8 (Training and Reemployment of Women in the "Jar Production Program) 11 Trainin:^ and Reeinployiaent Letter No. /+, Supplement No. 1, (Civil Service Eraploynent for VJPA Certified Persons) 12 Civil Service Sxamination Announcements 13 Training and Reemployment Letter No. 11, (Activity Reports) 14 ILLINOIS FINANCZ A:TD CONTROL LSTT3RS (Nos. 1- to 42, inclusive, issued as ILLINOIS FINANCE LETTERS) Monthly Report of VJPA anployee's Earnin.'^s - Surplus Commodity Distribution Projects 2 Time Reports - Preparation, Certified Defense Projects 5 Recording Report of Appraisal of Property - VJPA Form 364 7 Prefixing Encumbrance and Document Nurabers with the State Code Number 15 Procedure for Instiillation of Revised Cost Accounting System and Report Preparation 22 Change in Disbursing Syrabols 26 Report of Supply Section Service Charge, Form ADF-676 32 preparation and Pui\-)Osa of VJPA Form 740M 33 Forms CA-4 and CA-S 3U Special Instructions on Klaintenance of Inventory Records for Transportation Tickets and Tokens 35 Timekeeping Instructions for Project Supervisory Employees Authorized to Perform Project Supervisory Functions on iiore than One Official .Project 36 Preparation and Submission of V.TA Forms 756 and 756A 38 Participation of the Civil Aeronautics Administration in Non-Labor Expenses of Certain Airport Projects Operated by the Work projects Adjninistration 39 Preparation of Project Time Report — Fiscal Year Adjustment ifi Transition of Accounting and Other Finance Operations to the Fiscal Year 1943 41 Change in Routing - VJPA Fori.is 508, 765, 766 and 767 42 Division of Finance and Control and Document Routing 1 Functional Changes - Statistical Reporting IF&C 2 Instructions for Classifying VJork Projects and VJork Project Units by Type of VJork, and for Preparing the ■■Jeekly Report of Employ- ment on VJPA Projects, VJPA Form 732 3 Supply Fund Overhead Rates for November and December 4 Submission of Time Reports, VJPA Form 502 's IF&C 5 Information for Income Reporting Purposes - Preparation of Time Reports and Attendance Records 6 VJithholding Tax Provisions of the Revenue Act of 1942 IF&C 7 Area Project Sxajniners - Addresses and Counties Supervised 8 A-17 Subject Number ILLDIOIS E!,ffL0YI.I5NT LETTERS Instructions for Use of Form DP-290 1 General Policy Regarding Exemptions - Employinent Letter No. 11 U Washington Employment Letter No. 12 (Transmitting Release from the United States Office of Education and the Bureau of Employment Security) 7 'vVashington Eraployment Letter No. 9 (Selection and Assignment of Trainees without Related V/ork Experience - Nation-V»'ide Project for the Vocational Training of Defense ''forkers, O.F. 165-2-00-1) 8 Employment Letter No. 17 (Project Supervisory Titles and Salaries for the Fiscal Year 19A.2) 12 Revised Manual for Occupational Classifiers - Employment Letter No. 8 13 Employment Letter No. 13 ("Defense Job Training") H Participation of the VIork Projects Administration in the Food Stamp Plan of the Surplus Marketing Administration 18 Obtaining Medical Information from the Veterans' Administration 19 Employment Letter No. IS (Alphabetical List of Selected Occupations Important for National Defense Industries) 26 Employment Letter No. 20 (Selected Bibliography - Machine Shop) 28 Sinployment Letter No. 24 (Currently Active Occupations Series) 34 Identification of Records for Unemployment Compensation Benefit Clearance 38 Employment Letter No. 26 (Persons Alleged to be Communists or to Hold i'.lembership in a Nazi Bund Or:'5anization) 39 Employment Letter No. 31 (Occupational Titles Not Found in The Dictionary of Occupational Titles) 44 Aid to V/orkers Securing Private Snploymcnt which Necessitates a Change of Residence 45 Identification of Occupational Records Cards, \'IPk Forms 451} on a Quarter-Tovmship Basis 47 Additional Instructions Regarding the Preparation of '.VPA Forms 402 and 403 for Trainees Assigned to Defense Projects for Vocational School, Auxiliary Shop, In-Plant Preemployment and Airport Servicemen Training 49 Employment Letter No, 36 (Payment of Pay and Allowances of Certain Persons During Periods of Absence from Post of Duty) 50 Submission of Form DP-316 "Project Inspection Report" by Area Employment Officers 54 Allotments and Allov/ances Received by Dependents of Persons in the Armed Forces 55 Routing of Emplojmient Documents - ?/PA Forms 401, 402, 403} 418, 419, and DP-322 (Copy 3, Blue) 57 ILLINOIS SUPPLY LETTERS Gas Ration Coupons 1 Major Construction Equipment Operations Costs Record and Check Chart 2 Conservation of Motor Oil and General Care of Equipment 3 Supply Fund Overhead Rates for January 4 Disposition of Surplus VJPA Property 5 Gasoline Coupons, Fuel Coupons, Certificates of VJar Necessity 6 A.-18 A.ppendix B LIST OF PUBLICATIONS, UNPUBLISHED iiANUSCRIPTS, TECHNICAL AND 0P3L\TINa liANUALS PREPARED BY THE DIVISION OF SERVICE PROJECTS PUBLICATIONS SUBJECT PROCHIAII DEPOSITORY VJho ' 3 "'/lio in Aviation Parking Survey - Clncas-o - 1939-A^O Develoment of Public Recreation in iletropolitan Chicago - 19/+0 Chicago Megro Community Occupational Changes Among Negroes in Chicago Churches and Voluntary Associations in the Chicago Negro Comiiiunity Directory of Negro Baptist Churches in the United States, Vol. I Directory of N^igro Baptist Churches in thic United States, Vol. II Cavalcade of the American Negro Inventory of Federal /Lrchivos in the States. Scries 3, Mo. 12, 1939 Inventory of Federal Archives in the States. Series U, No. 12, 19A1, Vols. A and 3 Inventory of Federal Archives in the States. Series 8, No. 12, Illinois Inventory of Federal Archives in the States. Series 17, No. 12, Illinois Inventory of the County Archives of Illinois, Morgan County, Nc. 69 Summary Report of the Archeological Research and Preliminary Restoration Fort Massac State Park Ten Tours in Illinois AtVilete's Foot The Red Man Rules (A Play) Parties for Anerican Holidays Octave Chanute, Aviation Pioneer Lanterns and Floats Archery - Making Tackle and Shooting Indoor Model Airplanes Christmas Tree Ornaments VJriters Research & Records Writers Historical Records Museum Extension Writers U.S. Naval Reserve Navy Pier, Chicago Chicago Historical Society, Chicago, II]. Rosenwald Fund Chicago, 111. Chicago Historical Society, Chicago, 111. Dept. of Public Works & Buildings Springfield, 111. Newberry Library Chicago, 111. ti Chicago Park District Chicago, 111. II Chanute Field, Rantoul, Illinois Chicago Park District Chicago, 111. B-1 SUBJECT PROGRAM DEPOSITORY Craft Plans and Suggestions for Haiv.iercd lietal plov/ering Perennials for the Home Garden You Can Have A Good Lawn Boondog^'^ling Hovr to Make Costume Jewelry .'ind Accessories from Nature Material at Little Cost Water Pets Kayalcs Manual for Caddies i.Iiniature Sailboats Amateur Lapidary and Jowelsmith Ventures in Charm Gliders Stage Makeup for Amateurs Grotesque Heads Simple Puppets Masks and Costumes Stage Lighting Jevdsh Education in Chicago (Survey) Directory of Major Agencies in Chicago in the Pan-American Field Canada — New Mem.ber of the Pan-American Front Geography of Latin Ar.erica People of Latin America Puppets for Little People '^ Baseball Fundaraentals-Technique-Strategy Leather Craft VJood Inlay Honeycomb VIeaving Chess Diving Puzzles Vifhittling Tmnbling: Instructions for the Beginner Bird Houses Animated Toys Snow and Ice Handicraft Projects Clovm Costumes and Makeup Playground Apparatus Checker Problems and Puzzles Gajnes and Game Boards Playing Marbles The Great American Game in the Chicago Parks Stunt Songs Clovming Writers Chicago Park District Chicago, 111. Board of Jewish Educa- tion, Chicago, 111. Nev:berry Library Chicago, 111. Chicago Park District Chicago, 111. B-2 I SUBJECT PR0C21AM DEPOSITORY Illinois Writers' Mews Letter This Week in Roclcf ord The Log Inventory of the County Archives of Illinois, Adams County, No. 1 Inventory of the County Archives of Illinois, Jo Daviess Co., No. U?> Inventory of the County Archives of Illinois, Stephenson Co., No. 89 Inventory of the County Archives of Illinois, DeWitt County, No. 20 Inventory of the County Archives of Illinois, JacIcsonCo., No. 39 Inventory of the County Archives of Illinois, Clark Co., No. 12 Inventory of Federal Archives in the States, Series 16, No. 12, Illinois Inventory of the County Archives of Illinois, Montgoiiiery Co., No. 68 Inventorj^"- of the County Archives of Illinois, St. Clair Co., No. S3 Calendar of the Robert V-cidensall Correspondence Guide to Depositories of Manuscript Collections ii. Illinois A History of the First Presbyterian Church of Chicago Evolution of the Theatre l.Iilitary Area Guides Roosevelt Speaics - VJords that Shook tlie World Writers' Program Public Activities Prograiis Section Chica.go's Charter Jubilee Bulletin of Progress Chicagoans at Play - Radio Program Chicago Mobilized - Bulletin No. 78 Princeton - Ai'Aerican Guide Series Galena - Ai.ierican Guide Series Cairo - American Guide Series Ferry Hall, Lalce Forest, 111. Nauvoo - Ajnerican Guide Series Achievenents of \VFA Workers in Illinois Chicago Syphilis Control Program V/indbreaks, Circular 38 - Natural History Survey - Illinois Survey of Tenants Historical Records Survey List of Publications Writers Historical Records Iriters Research & Records Historical Records Nev;berry Library Chicago, 111. n U.S. Naval Reserve Navy Pier, Chicago Chicago Historical Society, Chicago B-3 SUBJECT PROGRAM DEPOSITORY Our U. 3. Hariiios Writers Aeronautical Dictionary Ilunicip'al government Tovmship and County Cioverninent The Citizens and the Schools The Flag o.f the United States Pablic 'Tolf arc Institutions Annals of Labor and Industry in Illinois Baseball in Old Chica^ Catalo.^e of Plays Cliicago in Periodical Literature Delavan From Church Bolls to Electric Signals Stories from the Stage in Chica.^ Chicago's Candy Kettle Thirty-Five Million Letters a Day 'dor: Chicago '7as Raised Forty Forty A. F. Ryder August Renoir Edgar Degas Thomas Rowlandson Frans Hals and A. Van Dyke "Tinslov/ Homer Jean Francois Millet Paul Cezanne Edouard Maney Mary Cessatt Augijst Rodin Tintonetto Thomas Sakins Hillsboro Guide Historical Brevities Illinois Guide Illinois Recreational Handbook Legends of Illinois Illinois VJriters' Nevfsletter North Star (A Play) Out of the Wildernsss Pan-American Forum (S2rie3) Peoria Home Defense (Series) Progress of Science and Industry (Series) Public Forums in Chicago Costume Accessories Social Activities Quoits Softball Entertainment for Banquets Nautical Terms Touch Football Choral Singing Chicago Historical Society^ Chicago Newberry Library Chicago, 111. Chicago Park District Chicago, 111. B-4 SUBJECT PR0C3UM DEPOSITORY LoTif Orgr-iiised Ganes Volleyball Thr-nks giving Square D'Jices VJinter Sports Wowen's Volleyball Rules Nature Lore A Foretaste of Spring Sherman Rod and Reel Club Kites Flower Pots from Tin Cans Spatter Prints Recreation Theater Thoughts for Arbor Day Lifeguard Lianual Tuiibling for Be,^nners American Sports Quiz Marquett at Checagou A Group of Gymnastic Marches 19U Spring Hikes Drills OVand, Hoop, Ccjie, Dumbbell) Baseball Federation Handbook Kites (Rovided) Cavalier (A Flay) Historical Pageant of Chicago Story of Illinois Wand Drills for Men and Boys Surai.ier Hikes, 19A-1 Public Parks Tennis Assr.., Chicago Crayon Prints S ;eds of Conmon Annuals A Cross Ylcrd Puzzle on Trees Ink Printing Patriotic G<"J-!es and Quizzes Spicy Pomanders Siraple Vfeaving Rabbits as Pets T3nnis, Bulletin rf39 Roc!3?ord City Guide Route Descriptions for Conducted Tours (Series) Second Historical Tour (Southern Illinois) Selected Bibliography - Illinois, Chicago and Its Environs Survey of Jewish Education in Chicago Third Degree - The Case of \7illiara Harris Yeoman of the IJavy Bibliography of Illinois "Triters Writers Chicago Park District " Chicago, 111. Nev\rberry Library Chicago, 111. Northwestern University Svanston, 111. 3-5 SUBJECT PROGRAM D3P0SIT0RY Chicago Public Library - Final Research & "rlai-rative Report - 5 Soctions Records Check List of Books Printed in America Before 1800 in the Libraries of Chicago " A Jlirror Held up to the Czechs of Chicago - Denni Hlasatel " Newspapers in Libraries of Chicago " Bibliogi^aphy of Illinois poets Since 1900 " Bibliography of Foreign Language Newspapers and Periodicals Published in Chicago " Foreign Language Press Survey Final Narrative Report " Historical Records Survey - Final Historical Narrative Report Records List of Publications " The Historical Records Survey and the Political Scientist " Prelljninary Check List of Missouri Imprints " Check List of i-iinnesota Imprints " Chock List of Arizona Imprints " Check List of Chicago Ante-Fire " Check List of Kentuclcy Imprints " Check List of Nevada Imprints " Check List of Alabama Imprints " Check List of Ki\nsas Imprints " Check List of Kellogg Collection " Check List of Sag Harbor, L. I. " Check List of Idaho Imprints " Check List of V/est Virginia Imprints " Check List of Iowa Imprints " Check List of Wyoming Imprints " Check List of Tennessee Imprints " Check List of Utica, N.Y. Imprints " Check List of Records - Elgin State Hospital " Check List of Films and Slides on Latin America " Chicago Civic Directory to Organizations Giving Public Service \7riters Bibliography by and About the Negro in the United States " Union Catalog of Lav; Books " Chicago in Periodical Literature " Proposed List of Location Symbols for Libraries in all Countries of the World 3xcept the United States " Union Catalogue of Literature on Greenland " Northwestern University Evanston, 111, John Crerar Library Chicago, 111. B-6 SUBJECT PROCKAM DEPOSITORY Research & Records Historical Records Writers' Pro-am Publications Catalogue Writers Location Symbols for Libiaries in the United States " Location Symbols for Libraries in the United States ( Suppleiaent ) " Classified List of Pictorial Materials On Civilian Defense " Illinois Historical Anecdotes " Index to Literature on Negro Art Index of the Chicago Metropolitan Press The Comparative Stratigraphy of Early Iran State Council of Defense, Series III 1917-1919 The Federal Courts, No. 12, Illinois " Inventory of the Church Archives of Cairo, Illinois Presbyi^ei^'- " The Department of the Treasury, No. 12 Series III " The Department of War, No. 12, Series IV " The Department of Justice, No. 12 Series V " The Department of Navj--, No. 12, Series VI " The Department of the Interior, No. 12 Series VIII " The Department of Apiculture, No. 12 Series IX " The Department of CoiTimerce, Mo. 12 Series X " The Department of Later, No. 12 Series XI " The Veterans' Administration, No. 12 Series XII " The Farm Credit Administration, No, 12 Series TJl " Miscellaneous agencies, No. 12, Series XVII " Guide to the Depositories of Manuscript Collections in Illinois Prelijninary Edition " Guide to Public Vital Statistics Records in Illinois " Inventorj'' of the County Archives of Illinois, Brovm County No. 5 " Inventory of the County Archives of Illinois, Carroll County No. 8 " Inventory of the County Archives of Illinois, Cass County No. 9 " Collection of Early American Methodist Manuscripts, 17^5-1339 Writers Northwestern University Evanston, 111. Louisiana State Univ. Baton Rouge, La, Northwestern University Evanston, 111, B-7 SUBJECT PROdlAM DEPOSITORY Calendar of the Szekiel Cooper Inventor;'- of the County Archives of Illinois, Champaign County No. 10 Inventorjr of the County Archives of Illinois, Cujflberland County No. 18 Inventory of the County Archives of Illinois, Douglas County No. 21 Inventory of the County Archives of Illinois, Effinghani County No. 25 Inventory of the County Archives of Illinois, Franl-clin County No. 28 Inventory of the County Archives of Illinois, Idiox County No. 48 Inventory of the County Archives of Illinois, Livingston County No. 53 Inventory of the County Archives of Illinois, Logan County No. 5U Inventorj/- of the County Archives of Illinois, Macoupin County No. 56 Inventory of the County Archives of Illinois, Ogle County Ko. 71 Inventory of tlie County Archives of Illinois, Piatt County No. 7A- Inventory of the County Archives of Illinois, Pil<;e County No. 75 Inventory of the County Archives of Illinois, Rock Island County No. SI Inventory of the County Archives of Illinois, Saline County No. 82 Inventory of the County Archives of Illinois, Sangar.ion County No. 83 Inventory of the Comity Archives of Illinois, Scott County No. 85 Inventory of the County Archives of Illinois, Shelby County No. 86 Inventory of the Coionty Archives of Illinois; Vermillion County No. 92 Inventory of the Church Archives of Illinois, Bloomington Presbytery Inventory of the Church Archives of Illinois, Cumberland Presbytery Inventory of the Church Archives of Illinois, Mattoon Presbytery Guide to Church Vital Statistics in Illinois Little Hell and Gold Coast Joined The Russian Community in Chicago Local Community Fact Book, 1938 Study of Mental Abnormality YJr iters Historical Records VJriters Research & Records Northwestern University Evanston, Illinois Chicago Recreation Comm. Chicago ; 111. Northvjestern University Evanston, 111. B-8 SUBJECT PR0C3UM DEPOSITORY Economic Differentials in the Probabilitj'- of Insanity The Incidence of Mental Disease Relationship Between Constitutional Characteristics and Delinquent Behavior The Development and Standardization of the Chicago Non-verbal Examination Index of Concessional Debates Recent Trends in Family Disorganization A Study of Personal Disor^-anization The Trend and Ecology of Family Disinte^ation in Chicago A Study of Minority Groups and Race Relations A Study of the Effects of the Depression upon Social Disorganization in Chicago A Study of Recent Social Trends and Er.ierging Problems Illinois Occupational Survey A Study of Eng-aged Couples to Discover Factors of Adjustment and of Prediction Relating to Marriage CCC Prediction Study Information in Regard to the Proposed South park Gardens Housing Project Index of Statistical Compilations Prepared on Research Projects in Chicago The Previous Housing of the Tenants of the Julia C. Lathrop Homes Regional Patterns in the Density of Settlement of the Mid-T,7est Population Urban Study of Consumer Purchases Occupational Changes Among Negroes in Chicago Wages and Hours of Women and Minors Employed in Hotels and Cleaning and Dyeing Establishr:ients Negro Housing in Chicago Housing in Chicago Communities Series - Coa-iunity Survey Areas 1 to 75 Analysis of the Real Property Inventory and Financial Survey of Urban Housing for Peoria Compiled Data on Blighted Areas in Chicago Chicago Land Use Survey - Vol. 1 Residential Chicago Chic Van Winlcle V/akes from Long Sleep on Southwest Side of Chicago Research & Northwestern University Records Evanston, Illinois n II Chicago Plan Commission Chicago, 111. Northwestern University Evanston, 111. B-9 SUBJECT PR0C31AM DEPOSITORY The Real Property Inventoiy of Aurora Real Property Inventory of Joliet Real Property Sun.''ey and Lov/ Income Housing Area Survey for Peoriaj 111. Valuation of Real Property; St. Clair County; Illinois Report of the Land Use Survey and Real Property Inventory of the City of Rock Island Survey of Local Finance in Illinois Vol. I - Atlas of Taxing Units, 1939 Vol. II - Property Taxation: Assessed Valuations, Tax Rates, and Tcix Extensions, 1927-36 Vol, III- Property Taxation: Assessed Valuations, Levies, Tax Rates and Tax Extensions, 1937-38 Vol, IV - Receipts and Disbursements of Tovmships and Road Districts, 1925-1936 Vol. V - Bonded Indebtedness of Local Governjnents, 1927-1940 Vol. VI - Special Assessment Financing of LocaJ. Iiriprovoments, 1925-1937 Vol. VII- Drainage District Organiza- tion and Finance; 1879-1937 Vol. VIII- Tax Rate Limits and Assess- ment Ratios, 1925-1940 System for Cook County Real Estate Tax Records and Code for Identification of Land Parcels Tax Mapping Survey - Narrative Report Transcribe, Consolidate and Renovate Records Cook County Assessor's Office Marketing Lavjs Survey Vol. I - State Anti-Trust Laws Vol. II - State Price Control Legis- lation Analysis of Retail Prices Consumption Habits of the American People Vital Statistics for Cook Co. and Chicago Vol. I - Death Statistics Vol. II - Birth Statistics Vol. Ill- Birth Statistics Renovation and Recorapilation of Chicago Park District Records Research & Records Northwestern University Evanston, 111. Illinois Tax Commission Chicago, Illinois ?ursery School " Chicago Plan Conmission Chicago, Illinois Illinois Tax Co::imission Chicago, Illinois Ne-wberry Librarj- Chicago, Illinois Illinois Tax ComxLssian Chicago, Illinois Chicago Board of Health Chicago, Illinois Public Roads Adj.iinis- tration, Washington, D.C. National Housing Agency Chicago, Illinois Bureau of Lxagration L Naturalization, Chicago, Illinois Office of the Governor Springfield, 111, University of Illinois Urbana, Illinois Vital Statistics Regis- trar, Springfield, 111. Office of County Clerk Chicago, Illinois Division of Traffic Eng. Chicago, Illinois Chicago Plan Go.':::;iission Chicag-o, Illinois Army Map Service St. Louis, Mo. Chicago Historical Society, Chicago, 111. II Board of Sducation Chicago, Illinois B-24 SUBJECT PROGRAM DEPOSITORY Nursery School & Child Protection Manuals, Cont'd Suggested Menus for the Nursery- School Let's Visit the Nursery School Pre-Service Training Course for Staff Members and Volunteers Handv;ork with Pre-school Children Sketches and Measurements for Nursery School Equipment Sug^stions and General Guide for New Teachers and Volunteers in Nursery Education Library Guide, Vol. I - /oi Apprentice Course for Menders and Binders Library Guide, Vol. II - An Apprentice Course for Aides Rural Library Hemdbook Rural Library Manual of Procedures Play Centers - Manual of Operation Housekeeping Clinic Manual Nursery School Education Child Protection Education Child Protection Library Recreation Housekeeping Aide Housekeeping Aide Vfork Book " Housekeeping Aide Recipe Book " Manual of Procedures - Vision and Hearing Project Health Manual of Dietary Organization - Illinois Soldiers' and Sailor's Children's School " Diet Laiiual for State Institutions, 19^tJ. Diet Manual - Illinois School for the Blind, Jacksonvi.llc, 19 /(O Manual for Dietary Employees in State Hospitals Manual of Procedures, Dietaiy ProjQct, December, 19A-1 Curriculum - Attendants In-sorvice Training - Dietary Project Training Guide for Dietaiy Project Supervisors Work Book for School Liuich Project School Lunch Canning Manual - Scliool Lunch Gardening and Canning Project Outline for Training Cooks - School Lunch Project Pattern Service Manuals For Men For V/omen For Junior liiss Sewing Board of Education Chicago, Illinois Illinois State Library Springfield, Illinois Elizabeth McCormick Memorial Fund Chicago, Illinois Cook County Dept, Public V/elfare Chicago, Illinois State Dept. of Public T7elfare, Springfield, Illinois Cook County Dept. Public Vfelfare, Chicago, 111. B-25 SUBJECT PROCHAM DEPOSITORY Pc-.ttorn Service Manuals, Cont'd For Girls Mar!:ers Miscellaneous Lesson Materials for Adult Education Lesson Units for Adults s First Lessons Lesson Units for Adults: Second Lessons Steps to Citizenship Reading Lessons - Miscellaneous Services to the Sick and Disabled Book I Boo!: II Book III Teachers Me Heat &ar Hoiiies Book I Book II Book III Teachers Aid to Dependent Children Book I Book II Book III Old Age Benefits Book I Book II Book III Teachers Unemployi;ient Coinpensation Book I Book II Book III Teachers On The YJay to Social Security Book I Book II Book III Teachers Aid to the Blind Book I Book II Book III Teachers We Buy Our Food Book I Book II Book III Columbus Discovers America The Story of the Constitution The United States Grov?ing Up Our Plan of Union Abraham Lincoln Education Cook County Dept. Public Welfare. Chica^^'o. 111. Board of Education Chicago, Illinois B-26 SUBJECT PROGRAM DEPOSITORY Lesson Materials for Adult Education, Cont'd Benjamin Franldin Education Stars and Stripes " Our Governnent Workbook " Teachers " On the VJay to Democracy Book I " Bool: II » Book III " Teachers " Instructor Training Course in Adult Education " Organization of VJork Center Libi-aries Bulletin No. 1 " Better Reading and '7ork Habits Bulletin No. 2 " Studies in Community Cooperation Bulletin IIo. 3 " A Guide for the Induction Training of Mevj Teachers Bulletin No. 4 " Citizenship Education Bulletin No. 5 " Fre-Service Training of Citizenship Teachers Bulletin No. 6 " Consumers Help in the VJar - Save on Sugar Bulletin No. 7 " Introductory'' Traininj for Nursery School VJorkers Bulletin No. 8 " In-Service Training for Nursery School V/orI:ers Bulletin No. 9 " A Narrative Report of the Illinois Parent Education Program, 193^-1937 " Parent Education Report (Chicago Area) " An Adventure in Parent Education (Rock Isl?-nd County) " Board of Education Chicago, Illinois B-27 Appendix C FOLLOfTING IS A PARTIAL LIST OF ACCOMPLISHMENTS OF THE WORK PROJECTS ADMINISTRATION IN ILLINOIS: DIVISIOM OF ENGINEERING AND CONSTRUCTION. FROM JULY 1. 1935 THROUGH APRIL 30, 19A3 14 Airports and Landing Areas; 6 new construction, 8 improved, including: 87>757 feet of new runwsys, 3,058 feet of runways improved. 32,047 feet of new taxiways, 45,009 square yards of new aprons, 6,405 square yards of aprons improved. 337,163 linear feet new drainage ditch and drainage pipe, 100,91? linear feet. 45,149 Miles of Highways, Roads and Streets constructed or improved, including: 37,281 miles or rural roads. 7,063 miles of urban streets. 805 miles of other roads (parks, etc.)* 28,177 feet of Road drainage ditch and pipe, including: 13,045 new ditch and pipe, 15,132 improved ditch and pipe. 11,952 Bridges; 4,096 new construction, 7,856 improved. 108,127 Culverts; 95,120 new construction, 13,007 improved. 2,708 Miles of Sidewalks constructed or improved. 1A2 Miles of Roads and Streets lighted with 6,158 lig^t standards. 67,448 Traffic Signs erected. 3,674 Miles of Parkways and Roadside landscaping. 13,645 Trees planted in reforestation programs. 24 Pedestrian Tunnels; 18 new construction, 6 improved. 262 Miles of Abandoned Car Track removed. 4,530 Public Buildings and Additions constructed or rehabilitated, including: 1,023 educational bxoildings; 113 new construction, 910 improved* 750 recreational buildings; 375 new construction, 375 improved* 189 office and administration buildings; 38 new construction, 151 improved. 534 airport buildings; 33 new construction, 501 improved. 30 armories; 16 new construction, 14 improved. 548 garage and storage buildings; 132 new construction, 414 improved . 1,456 other public buildings; 289 new construction, 1,167 improved. 14,661 Acres of Ground landscaped around public buildings . 72 Stadia, Grandstands and Bleachers constructed or improved (seating capacity, 258,293 persons). 567 New, improved or enlarged Parks - total area, 38,349 acres. 213 Athletic Fields constructed or im.proved - total area, 1,807 acres* 900 School and Other Playgrounds constructed or improved. 1,159 Tennis Courts constructed or improved. 80 Concrete and Tile Swimming Pools; 37 new construction, 43 improved. 67 Wading Pools constructed or improved. 29 Public Golf Courses; 3 new c<»istruction, 26 improved. C-1 i 235 utility Plants constructed or improved, including: 7 electric power plants; 2 new construction, 5 improved. 7 incinerators; 6 new construction, 1 improved, 9U pumping stations; SA nevr constinction, 10 improved. 87 sewage treatment plants; 69 new construction, 18 improved. UO water treatment plants; 31 nevr construction, 9 improved. 2,053 iOLles of Watermains constructed or improved. 389 Water ViTells; 180 new construction, 209 improved. 566 Water Reservoirs; U32 new construction, 134 improved. 19 V/ater Storage Dams; 13 new construction, 6 improved. 2,217 Miles of Storm and Sanitary Sewers constructed or improved. 71,072 Outdoor Sanitary Privies constructed. 60 Abandoned Mine Openings sealed. 259 Miles of Public Telephone lines constructed. 84 Miles of Public Power Lines constructed. 22 Conservation, Flood Control and Erosion Dams; 17 new construction, 5 improved. l-A-7,331 Acres of Land drained for mosquito control purposes. 112,988 Acres of Land drained (Other than Road, Airport or Mosquito Control). DIVISION OF SERVICE PP^JECTS, *JULY 1. 19A0 THROUGH APRIL 30. 1943 5,224,390 Men's, Women's, Children's and Infants' Garments made for distribution to the needy through the relief agencies. 2,125,993 Other Articles produced in sewing rooms for distribution to the needy. 186,292 Articles of All Kinds repaired for hospitals and instituticms. 332,704 Library Books re-bound and renovated, 171,964 cataloged. ^,456,605 Quarts of Food canned, and 943,717 pounds dried for distribution to relief families or for school I'onches. 403,020 Hot Lunches served to school children. 355 schools in 35 counties participated in the School Lunch Program. 930 Indigent Families with 1,231 childresn under 15 years of age were assisted by Housekeeping Aides. 33,602 Toys made, 31,538 repaired for distribution to children of needy families. 37,101 Pairs of Shoes repaired for the needy. 239 Libraries operated or assisted. They had 68,434 registered, readers and a circulation of 275,556 books. 165,235 Miscellaneous Craft Articles made on Art and Craft Projects for distribution to schools, park field houses and other public institutions. )IVISI0N OF TRAINING AND RSEtJPLOniENT . »JULY 1. 1940 THROUGH APPJL 15. 1943 J4,142 Trainees were assigned to Vocational School Training Classes; of these 18,677 completed the course. Classes were conducted in 80 different schools. 2,290 Trainees were employed on In-Plant Training Projects; of these, . 1,342 completed the course. 84 manufacturing plants participated wi in this activity. ^ 4,083 Women were assigned to the Household Workers' Training Project; ' of these, 3,471 completed the course. j -3,024 Known Placements, including Trainees and Non-Trainees, in private I or other public employment resulted directly from the efforts of the Division of Training and Reemployment. *NOTE: Cumulative statistics were not maintained for these Divisions prior to July 1, I94O. C-2 IP The foregoing accomplishnients and similar additional work were performed with an expenditure of $974,709,646 during the nearly eight years of V/PA operation Federal expenditures on projects for this period totaled $760,790,725, or approximately 78^ of the total expenditure, while state and local government a agencies, as sponsors, and other local organizations as co-sponsors, contrib- uted approximately $213,918,921, or 22^. These public works and services represent valuable and economical improvements, since they meet public needs and a large portion of the monies expended would have been required for direc relief had a work program not been operated. m LIBRARY Of THE JL'L 7 1943 UNJVEfiSJIY OF JiDNOis (• C-3 ♦•J :•;? «^