Accomplishment of mission requires optimum use of materials, methods, manpower, and money. There are occasions when the ingenuity and the labor of men can compensate, to some extent, for lack of necessary equipment; but where men and skills are lacking, the equipment used will remain idle, and the procedures, inspections, records, and so forth will have to be temporarily abandoned.

It becomes the duty, therefore, of any Navy officer to have an intelligent understanding of how to fit men and jobs together; of how men can be trained to increase their value to the work assigned to the activity or installation; and of how the work processes themselves can be reviewed and analyzed, to eliminate unnecessary procedures, and to adapt processes and methods to changing needs.

NAVY CIVILIAN PERSONNEL POLICY

The field of personnel management is concerned with many areas. Especially when the emphasis is on employee services and employee morale, there can be many approaches, and almost no limit to the factors to be studied and measured.

From the immediate viewpoint of staffing an organization and obtaining satisfactory production, we may narrow down the areas to the following: job analysis, and the establishment of effective organizational lines; selective techniques for obtaining the best qualified persons for individual jobs; training programs for employees; establishment of performance standards, and appraisal of performance standards; use of the incentive awards program to stimulate employee interest and production; disciplinary and grievance procedures; wage and salary administration; and programs for employee health and safety.

The civilian personnel policy of the Department of the Navy may be said to be essentially concerned with two basic, and comprehensive, factors: the employment of civilian personnel

for the accomplishment of those duties which not, for reasons of specific training, securit or discipline, require military incumbents; a the provision of a suitable work environment.

The Navy's Office of Industrial Relations ha been charged with responsibility for the vario factors involved generally in Navy civilian per sonnel administration. The extent of this re sponsibility is shown in the following sectio Office of Industrial Relations.

Responsibility for administration cannot b interpreted as complete responsibility. Na Regulations, 1948, requires that all commandi officers, and other persons in the Naval Esta lishment who are concerned with civilian per sonnel employment and administration, must b governed by all the applicable legal and regula tory provisions.

Navy officers concerned with civilian per sonnel matters can always obtain advice a guidance from the local activity personnel de partment, and/or from the field representatio of the Navy Office of Industrial Relation Nevertheless, the PWO will find it a distin advantage to understand Navy policies and pr cedures in this area. A basic knowledge of the policies and procedures will enable him to avoid actions that would constitute infraction of the statutes and regulations, and (2) mal use, as far as possible, of such facets of th Navy policy as are designed to stimulate go employee morale and to further productio

The varied and widespread responsibilitie of OIR are clearly indicated by the list of Na Civilian Personnel Instructions that constitu their operating instructions. A list of the NCP of special interest to the PWO appears later this chapter.

BASIC PRINCIPLES

The basic principles in civilian administra tion should be a due observance of all the leg and regulatory controls that exist in this com nection, and the rendering of the best possib

rvice to the Navy. This second principle, or ject, requires an honest attention to the first; also requires the maintenance of good morale, d the efficient use of all available manpower.

gal Framework

The source of legal restrictions and regulary controls may be: congressional enactment, vil Service Commission regulation, Executive ders issued from the White House, or dictives stemming from the Department of Dense, or from the Navy. The regulations and rectives are usually issued for the purpose of plementing a policy or a program that is inerent in some related Act of Congress.

ffective Use of Human Resources

In the matter of filling civilian jobs at an ctivity, the local Boards of Civil Service Examers and the activity personnel departments, an be relied upon to hire those applicants whose kills and aptitudes demonstrate their ability to erform the required duties.

However, no working situation remains catic. Improvements in work processes, Amplification and combination of methods, manges in the work situation itself, can make it ecessary to arrange for shifts and adjustments the use of personnel. In most cases, changes the nature of the work or in the processes or quipment, will create a need for additional aining of employees.

When conditions at an activity call for the ransfer of men, for training in new types of ork, for promotions, and so on, morale can uffer unless all the actions taken are in accord ith prevailing instructions, with activity pronotion policy as promulgated, with due regard o seniority and veteran preference, and in comliance with other existing restrictions and cusoms.

The effect that management-employee relaions can have upon the efficiency of an organizaion is of such major importance that it is the uty of all management personnel to give this matter serious consideration in all their lanning.

Qualities of leadership are expected by the Navy from its personnel; and the higher the ank, the greater the responsibility for providing his leadership. Since it is a quality not confined

to the military aspects of the service, it will be an important factor in the accomplishment of administrative tasks.

ones:

Administrative leadership is rooted in the ability to strike the proper balance between the organizational structure of the activity on the one hand and the needs of the employees on the other. These latter needs are the common human desire for recognition and personal dignity, for security, and for job satisfaction. Intelligent leadership requires that the Navy officer be aware of the goals of the activity, the internal problems of the organization and the necessity of developing among the employees a sense of personal responsibility combined with satisfaction and pride in their individual jobs.

OFFICE OF INDUSTRIAL RELATIONS

The Navy's Office of Industrial Relations (OIR) is a staff office in the Executive Office of the Secretary, and acts for the Assistant Secretary of the Navy (Personnel and Reserve Forces) in matters of civilian personnel policy. Its service to the Shore Establishment involves furnishing an industrial relations program, developing policies for governing the operation of this program, and offering advice and guidance when questions of policy or procedure arise in bureaus, offices, or field activities.

The local industrial relations offices (IROS) set up at field activities act as a clearing house on local staffing needs, and on qualification requirements. Except in some very small activities, the activity command will have an IRO to which it may take problems arising in connection with personnel administration.

NCPIS

The approved means of promulgating instructions relevant to civilian personnel administration is the publication officially entitled Navy Civilian Personnel Instructions, but generally known as "the NCPIS."

Publication and dissemination of the NCPIS is a practical means for providing for a uniform application and interpretation, throughout the Naval Establishment, of all those laws, Executive Orders, decisions of the Comptroller General, directives, and instructions that relate to the established policies and procedures in matters connected with Navy civilian personnel administration.

It will be an advantage to any PWO to have a fair degree of familiarity with the NCPIs. While it is true that he can always go to the activity IRO, or to the civilian personnel department, for advice and guidance, he may find that he can cut down the need for these consultations if he acquires a working knowledge of basic Navy policies and procedures in matters involving civilian employees.

The varied and widespread responsibilities of OIR are clearly indicated by the list of NCPIS that constitute their operating instructions. In the publication, these instructions appear numerically; but the following list (which includes all that the PWO is likely to require) is arranged in alphabetical order:

# 310 Appointments and Other Accessions
#150 Boards of U.S. Civil Service Examiners
#732 Charges, Removals, and Other Actions
Under the Security Program

#305 Competitive Status and Conversion
#750 Disciplinary Actions and Prohibitions
#304 Dual Employment and Dual Compensa-
tion

# 722 Employee's Council

#721 Employee Organizations
#713 Government Nondiscriminatory
Employment Policy

#770 Grievances and Complaints

#610 Hours of Work

#450 Incentive Awards

#792 Industrial Health Program

#810 Injury Compensation and Treatment #630 Leaves of Absence

#317 Military Service Entitling Former

Navy Employees Restoration Rights #430 Performance Appraisals and Ratings #460 Placement and Utilization

# 512 Position Classification (Field) #340 Promotions, Reassignments, Details and Loans

#334 Qualification Standards and Evaluation Methods

#351 Reductions in Force

#830 Retirement and Social Security

Benefits

#5100 Safety

#552 Salary and Wages Changes #303 Selective Service and Reservists # 352 Separations (Nondisciplinary), Furloughs, and Changes to Lower Grade #593 Subsistence and Quarters

#410 Training-Employee Development

Program

#211 Veterans Preference

#531 Wage Fixing and Ungraded Rating Determination

AWCOS

The Area Wage and Classification Offices (AWCOS) are under the management and technical direction of the Wage and Classification Division of OIR. Their major responsibility is to represent that Division in the field, in the developement of classification standards and occupation information. This includes such duties as providing advisory services to activities, or classification matters.

Another function of these AWCOs is to assist in the establishment of wage rates for blue-collar workers. They review the prevailing wages paid by private industry in a specific area to laborers, helpers, and craftsmen. (This latter category includes such trades as carpenter, electrician, painter, and so forth.)

ESTABLISHING POSITIONS

The first step in organization is the establishment of the type and number of positions that will be required for the performance of allotted tasks at an activity, or unit within an activity.

On the basis of organizational charts, each Navy activity is assigned a definite number of civilian positions. This number, known as the personnel ceiling, must not be exceeded without prior permission from the management bureau.

The personnel ceiling is usually set for an activity as a whole; the various billets are assigned to the departments and other units according to comparative workloads. A PWO who must plan the organization of his department will find it advisable to refer to the suggestions and guidelines given in Organization and Functions for Public Works Departments, NavDocks P-318.

Another source from which the PWO can obtain advice and assistance with the work of establishing civilian jobs and positions is the cognizant District Public Works Officer. The

aff of this latter officer will usually include me person with the necessary knowledge and perience to help in setting up positions.

TYPES OF CIVIL SERVICE POSITIONS

The civil service jobs in Navy activities can e divided into four general groups, as follows: Group II: Semiskilled labor, helper work in le crafts and trades, and other work requiring ɔmparable skill and knowledge.

Group III: Skilled mechanical and craft work f journeyman or artisan work level; ungraded taff positions.

Group IVa: Supervisory force for the first NO groups.

Group IVb: Personnel performing adminisrative, clerical, technical, and professional uties.

Groups II, III, and IVa are known as ungraded mployees. They are often referred to as per iem employees (because originally they were aid on an hourly basis), or as blue-collar work

rs.

Group IVb employees are known as graded mployees, because they hold jobs that come nder the classified, or graded, system set up by congressional legislation.

Before any position (graded or ungraded) can be filled, it must have been officially established. Before the position can be established, there must be funds available for carrying it on the payroll. At field activities, ungraded jobs must be authorized, in the schedule of wages for the specific activity, before any hiring can be done; and a Grade IVb position must be an existing even though vacant) position before it can be illed.

Graded Positions

In the case of graded positions, a review must be made of the duties and responsibilities belongng to the proposed position. On the basis of this information, a position description (PD) is prepared. A review of the PD by the proper authority (either the civilian personnel office of the activity, or the cognizant Area Wage and Classification Office) will result in the classification of the position; that is, the proper grade will be determined.

This process of position description and classification is discussed more fully in a later section, Position Classification.

Ungraded Positions

When an additional ungraded position is required, consideration should first be given to the possibility of making use of appropriate established ratings, or of broadening the scope of an existing rating. In general, no new rating is established unless it can be proved that the position (1) requires a different set of skills than those covered in any existing rating definition, or (2) is necessary for sound personnel administration.

A good test to apply is to consider whether personnel in the desired position would be interchangeable with personnel in existing ratings, in case of a reduction in force.

Since most of the positions in the Public Works Department will probably be the ungraded ones, this is the area in which the PWO will be chiefly interested. He should become familiar with NCPI 531, Wage Fixing and Ungraded Rating Determination.

SUPERVISORY POSITIONS (UNGRADED)

Supervisory jobs are necessary for the smooth functioning of any department; but it is a waste of manpower to have too many supervisors. In general, the management bureau reserves the right to determine the need for supervisory billets, but the commanding officer of an activity has authority to appoint supervisors in the grades of chief quarterman, quarterman, and leading

man.

The grade of the highest supervisor in the Public Works Department will vary from activity to activity, since it will depend upon the size and the complexity of each activity. On a stationwide basis, the total of chief quartermen, quartermen, leadingmen, and head usually will not exceed 10 percent of the total number of employees in Groups II and III.

A leadingman normally supervises from 12 to 28 employees. However, there are occasions when a particular project-as opposed to the routine work of an activity-would require so many men on different types of work, or located at such distances from each other, that the leadingman could not provide adequate supervision. In a case such as this, a lower echelon of supervision may be provided by appointing a snapper.

The snapper is given a temporary appointment, not to exceed 90 days; if appointed for a

period in excess of 90 days, he should be appointed as a head, not as a snapper. He usually works with from 6 to 12 men. He must be qualified in the work, but he is not considered as part of the supervisory personnel. When the particular project is completed, the snapper (or head) returns to his regular rate.

The supervisor filling the leadingman grade is required to plan and do the layout work. He then assigns his men to their specific tasks. (At one time, the grade of special leadingman existed; except for some present incumbents, this rating is no longer in use.)

A quarterman will usually have from 28 to 100 employees under his supervision. When employee groups numbering more than 100, but fewer than 200, require supervision and planned coordination of their work, a chief quarterman may be appointed.

The positions of foreman and of master mechanic are established only when the responsibility of a position requires one of these higher ratings. A foreman usually supervises 200 to 300 employees; a master mechanic supervises at least 350. These numerical guides are not rigidly fixed, however. Another important point is that the group under supervision must include a variety of trades.

For example, a foreman may supervise 400 employees engaged in road grading and ground maintenance; this work force would include laborers, truck drivers, and equipment operators. On the other hand, a power system with only 110 employees might require a foreman at the head, because of the complexity of power-generating and distribution equipment.

For each position to be placed in the ratings of Master Mechanic and Foreman Mechanic, prior approval of OIR is necessary. NAVEXOS Form 3473 is used for preparing the position descriptions, but the instructions in NAVEXOS 3473a do not apply.

Instead, the requesting activity must provide a brief description of the responsibilities and functions of the position. The following points should be covered:

1. Name and title of person to whom the position reports.

2. Nature of technical and administrative supervision received.

3. Functional organization chart, showing number and kind of subordinate positions.

4. Extent of deciding authority assigned to the position.

5. Experimental, unusual technical, and/or nonstandard work performed in addition to regular production work.

6. Nature, size, and extent of physical plant for which the position has responsibility.

7. Other relevant facts (frequency of emer gency situations, round-the-clock operation geographical dispersion of units supervised, absence of higher supervision, and so forth).

Recommendations are made by the activity command, but must be concurred in by the management bureau and by the cognizant Area Wage and Classification Office (AWCO). The respon sibility of the proposed position, and the com plexity of the function or system to be supervised, is then examined by OIR, and the new position is established if the need is valid

Existing positions in the foreman or master mechanic rates are given a periodic maintenance review (normally by the Industrial Relations Department of the activity), to determine the continuing validity of the rating assigned.

POSITION CLASSIFICATION

When a new position is to be set up for Grade IVb employee, it must first be classifie on the basis of the relative difficulties and re sponsibilities of the duties to be performed

Authority for classifying positions (excep those in the supergrade levels of GS-16, GS-17 and GS-18) in the Naval Establishment is veste in SecNav. Responsibilities for programs, co ordination, adjudification, and so on, devolv upon OIR, in its staff function to the Office o the Secretary.

However, authority is further delegated to th chiefs of bureaus, and to the commanding offi cers of field activities. In exercising thi authority, bureau and office chiefs, and COS field activities, are bound by all the policie and regulations established by, or recognize by, the office of Industrial Relations.

Large activities will normally have thei own personnel departments, which can tak final classification action. Very small activitie may call upon local AWCOS for aid; in excep tional cases, they may ask help from the man agement bureau.