For original appointments the Civil Service Commission or its Boards of Examiners rank eligibles for apportioned positions on registers in accordance with the condition of the apportionment. Veterans and eligibles from States in arrears are certified first. Nonpreference eligibles from States in excess are listed last by individual States beginning with the one least in excess and according to ratings and are certified only after other eligibles have been certified.

Mr. MACY. This is a statement showing the condition of apportionment as of the close of business Saturday, March 16, 1963. This is a quarterly report put out by the Commission and widely distributed in keeping with the civil service provisions.

You will note in the table that there are 44 States, territories, and Commonwealths that are in arrears. In other words, they do not have the number of positions to which they are entitled based upon their portion of the total population measured by the decennial census in 1960. The vertical column alongside shows the actual number of positions occupied.

Since I referred to California, let's look at that particular State. It is No. 8. California would be entitled, based on its population, to 4,344 positions. It has 604. The Commission ascertains the legal residence of competitors when each competitor files evidence of legal residence at the time of his application. In many instances these people will claim legal residence in a State although, in actual fact, they are living in the metropolitan area. This is a characteristic of our situation here in the Nation's Capital.

You will find over to the right of the page and near the bottom, a listing of the States that are in excess and you will see that there are 12 such States with the great bulk of the excess being in the States of West Virginia, which was referred to a few minutes ago, Virginia,

Maryland, and the District of Columbia, and the total number under apportionment amounting to approximately 50,000.

You could compute that 40 percent of this 50,000 are chargeable to the so-called metropolitan area-roughly 40 percent of the 50,000. Why only 50,000 out of this total! First of all, 232,000 that I cited includes a number of activities that have developed in the metropolitan area that are not a part of the headquarter's function of Government. We have, for example, the Naval Ordnance Laboratory. We have the Naval Research Laboratory. We have a number of Army installations in the area that do not perform the functions of the seat of Government. They are operating agencies that have been located for various reasons in this community. Their employment is included in the gross figure.

The second reason, the one I have already cited, namely, no appointee who is a veteran is limited by apportionment. Therefore, he is excepted. The employees of the District Government are not included in apportionment. Then the Civil Service Commission, under the waiver provision in the law, has excluded professionals and scientific positions that are in short supply. It is concluded that positions GS-13 and above are not covered by apportionment and because of shortage, the stenographer and typist category.

I take your time on this because I do not feel that this is generally understood as it is actually working at the present time and I think it is relevant to our consideration of the legislation.

Mr. BROYHILL. Mr. Macy, are any employees in the National Security Agency included in the 200,000?

Mr. MACY. No, sir; they do not report employment.

Mr. BROYHILL. So 200,000 are civil service employees but not total Federal employees?

Mr. MACY. These are employees reported to the Commission, who are either under the Civil Service Act or under other personnel systems such as the FBI system, the AEC system, the Foreign Service, but it does not include the classified agencies that have an exemption from Congress on reporting the number of people that they have. So if we were to include the unknown figures of the National Security Agency and the Central Intelligence Agency, there would be an increase in the figure of 232,000.

Mr. BROYHILL. Thank you.

Mr. MACY. Moving then from apportionment, which as Mr. Beckworth has said, is the primary objective of this bill, I think it is important that we look at the summer employment situation. A great deal has been spoken and written about it in the last few years. I think it is correct to say that there is an increasing amount of interest in the colleges and in the high schools in summer employment opportunities. There is a greater interest in Government today.

The Commission views this interest with encouragement because if the merit system is to function, it needs to be competitive and we are looking for quality to enter that competition so that we can offer the best people available to the agencies for appointment. Now summer employment is a factor of Federal life throughout the country, not just in Washington, D.C.

I have roughly estimated that last year, 1962, there were probably 40,000 summer appointments made across the country. Now the great bulk of these are in outdoor activities of the Federal Govern

ment that experience a significant increase in workload because of the summer. The obvious example is the National Park Service. The National Park Service now has several million visitors in the summers and it is necessary to staff up their organization in order to handle those visitors.

The Forest Service, because of its protection against fires and because of the use of many of the national forests now for recreational purposes, has to have additional staff.

There are other forms of seasonal work that are related to the summer season, which means that we do have a bulge in employment at that time and we have had it for a long time back.

Mr. DULSKI. Mr. Macy, at this point, are they recruited through the civil service system?

Mr. MACY. They are recruited in various ways. I will come to the manner in which they are appointed. I hope it will be clear.

Now with respect to Washington, the Civil Service Commission, frankly, shared some of the concern that has been expressed here that it did not have a more accurate picture of what the summer employment situation is. So, in January, I joined with the Director of the Bureau of the Budget in sending a letter to all of the departments and agencies, setting forth a statement of executive policy with respect to summer employment and requesting strength of a planning nature from the departments and agenies in order to make it possible for us to have a clear picture as to just what the dimensions of the summer employment situation were.

If I may, Mr. Chairman, I would like to read into the record the letter of January 25, 1963, sent to the heads of all departments and agencies, signed by Kermit Gordon, Director of the Bureau of the Budget, and by myself.

We wish to draw your personal attention to the subject of summer temporary employment in the Washington area.

Properly planned and carried out, a program for summer employment of high school and college students can be a source of effective manpower for the Federal Government as well as an opportunity to provide students with a valuable insight into the workings and problems of the Federal Government. If, on the other hand, the program is not well handled, it can result in inefficiency, poor use of public funds, and unrewarding experiences for these young people.

On the whole, we believe the advantages to the Government of continuing the program for summer employment outweigh criticisms which have at times been raised. It should be clear, however, that in every case summer employment has a purpose and reflects a need on the part of the employing agency. In general, the employment of students during the summer should follow the same critical standards of need, selection, and placement which apply to other hirings.

Particular care should be taken to assure that summer student employees are afforded genuine opportunities to observe the processes of government, that they derive the maximum benefit from their experience, and that they are given conscientious and interested supervision, to the end that even though they may not choose a Government career they will carry over insights into the problems and operations of the Federal Government which will make them better citizens. In order to accomplish these objectives, each agency should have a definite plan for summer employment in the Washington area, reflecting its needs, workloads, and staffing objectives. It should include provision for the orientation and suppervision of student employees. It should insure that each summer student employee will have a definite assignment which will occupy him fully and productively.

You are requested to furnish the Civil Service Commission with a description of your plans for summer employment of students in the Washington area for 1963. The statement should reflect your policies on the use of summer help in terms of the guidelines herein expressed. It should include estimates of the num

ber and kinds of students you anticipate hiring, respectively, for seasonal work, replacement of regular employees on leave, or in-service training. This statement should be supplied by February 15, 1963.

Mr. Chairman, in response to that letter, the Commission received agency estimates totaling 5,949. I have here the breakdown of this tabulation by agencies. It has already appeared in the newspapers. I believe, however, it might be helpful to the subcommittee if they had this as a part of the record. If you have specific questions with respect to individual agencies, we will be able to discuss that. Mr. DULSKI. It will be made a part of the record.

(The document follows:)

Estimates of summer employment in agencies in the Washington, D.C., area by cost and nature of positions

[NOTE.-The detailed estimates shown below are preliminary and subject to change. Many agencies did not have firm plans for summer hires as of the date of the survey]

Estimates of summer employment in agencies in the Washington, D.C., area by cost and nature of positions-Continued

[NOTE.-The detailed estimates shown below are preliminary and subject to change. Many agcniees did not have firm plans for summer hires as of the date of the survey]

1 Seasonal employees and vacation replacements are hired primarily for clerk-stenographer, clerk-typist, other office clerical positions, or for miscellaneous wage board positions.

2 Student trainees are hired primarily for engineering, scientific, and other professional occupations. Other summer interns are generally hired under schedule A for student assistant or field assistant positions.

Total estimated payroll is incomplete, since no estimates were made for some of the agencies.
No estimates made.

Mr. BROYHILL. Mr. Macy, the 5,000 figure you are using right

there

Mr. MACY. Let's round it out at 6,000. This is sort of a Macy bargain basement figure, 5,949. Let's round it out at 6,000.

Mr. BROYHILL. What is that?

Mr. MACY. Estimated summer appointments.

Mr. BROYHILL. In Washington?

Mr. MACY. In Washington, D.C., by the departments and agencies of the Federal Government.

Mr. WATSON. Mr. Chairman, that is what they anticipate?

Mr. MACY. This is the plan that they set forth to us as their anticipated program for the summer.

Mr. DULSKI. Mr. Macy, it was mentioned in the newspapers, according to Mr. Beckworth in his statement, that it was 11,000. There is a differential of almost 5,000 jobs. You say you have a request for 6,000. What happens to the other 5,000?

Mr. MACY. Mr. Chairman, all I can say is that I think the other higher figures were either speculative or they may have included additional employment, perhaps employment in the legislative branch or it may have included some other activities that were not included.